Nottingham Highway Safety Inspection Manual

Guidance for Highway Safety Inspections

Second Edition March 2012

For further information on this document please contact:

Kevin Charnley Highway Maintenance Lead Highway Services Communities Department Nottingham City Council Humber Building Eastcroft Depot London Road Nottingham NG2 3AH Email: kevin.charnley@nottinghamcity.gov.uk

Contents Revisions .................................................................................................................................. 3 1. Introduction ......................................................................................................................... 4 2. The need for Highway Safety Inspections ............................................................................... 4 3. Customer Care Policy............................................................................................................. 4 4. Aims and Purpose & Inspection ............................................................................................. 4 5. Responsibility of persons undertaking Inspections ................................................................. 5 6. Highway Safety Inspections ................................................................................................... 5 7. Network Hierarchy ................................................................................................................ 6 7.1 Table 2 Carriageway Hierarchy ...................................................................................................6 7.2. Table 3 Footway Hierarchy ........................................................................................................7 8. Methodology for Network Categorisation .............................................................................. 7 9. Method of Inspection ............................................................................................................ 8 10. Health and Safety ................................................................................................................ 8 11. Information to be recorded ................................................................................................. 8 12. Coverage ............................................................................................................................. 9 13. Categories of Defect and Defect Category Selection.............................................................. 9 14. Carriageway and Footway Intervention Levels ................................................................... 10 15. Target Response Times ...................................................................................................... 12 16. Claims by Third Parties ...................................................................................................... 12 1A TYPES OF HIGHWAY DEFECT (CARRIAGEWAYS)......................................................................... 13 1B TYPES OF HIGHWAY DEFECT (FOOTWAYS AND KERBING)......................................................... 14 1C TYPES OF HIGHWAY DEFECT (TRAFFIC SIGNALS, STREET LIGHTING AND STREET FURNITURE) 15

Revisions An effective regime of inspection, assessment and recording is a crucial component of highway maintenance. The Highway Inspection Manual (Appendix B) is the procedural guide for all employees involved in the inspection of Nottinghams highway network. A robust safety inspection regime will support a defence under Section 58 of the Highways Act. The manual details the authoritys inspection regime, intervention levels and response times to repairs. In June 2011 a benchmarking exercise was undertaken through the Midland Service Level Improvement Group in order to compare our existing intervention levels, repair categories and response times. Further discussions were then undertaken between Highway Services and our Insurance & Risk Management section. As a result of the above discussion the following changes to our existing inspection regime have been made and will take effect as follows; 1. Carriageway and footway intervention levels will be changing from 40mm to 50mm and 20mm to 25mm respectively and; 2. Existing 10 day repairs will change to within 28 days. 24 hour repairs and 3 month repairs will remain unchanged.

1. Introduction This document is intended as a procedural guide for all employees involved in the inspection of Nottingham City Councils highway network. It covers only highway safety inspections. 2. The need for Highway Safety Inspections Under Section 41 of the Highways Act 1980 Nottingham City Council has a statutory duty to maintain a highway maintainable at public expense in a safe and serviceable manner for all types of road user. Neglecting this duty can lead to claims against the City Council for damages resulting from a failure to maintain the highway. Under Section 58 of the Highways Act 1980, the highway authority can use a Special Defence in respect of action against it for damages for non-repair of the highway if it can prove that it has taken such care as was reasonable. Part of the defence rests upon: Whether the highway authority knew, or could reasonably have been expected to know, that the condition of the part of the highway to which the action relates was likely to cause danger to users of the highway. This is where highway authorities have to show that they carry out highway safety inspections in accordance with their policies and national guidance. Highway inspection reports are part of the evidence used to show that the highway authority has acted reasonably. Section 58 of the Highways Act also says The court shall in particular have regard to a) The character of the highway and the traffic which was reasonably to be expected to use it; b) The standard of maintenance appropriate for a highway of that character and used by such traffic; c) The state of repair in which a reasonable person would have expected to find the highway. Case history demonstrates that the highway authority must also be recording all customer reports of highway defects, however not all defects which the authority becomes aware of by inspection or customer report need to be repaired. Records from the CONFIRM Enterprise Highway Asset Management System (HAMS) records may be used as evidence to show that the highway authority has acted reasonably. HAMS currently provides a single database for the recording and tracking of customer enquiries, the management of routine highway safety inspections, asset inventory and management and works ordering. 3. Customer Care Policy All enquiries are logged into HAMS via the Customer Enquiries Module. The system automatically forwards the details to the relevant highway inspector for action and reply. 4. Aims and Purpose & Inspection The aim of inspecting the highway is to identify and take action to remove those hazards causing danger to highway users. Additionally the process will support the development of programmes, to maintain the asset and keep the highway in a serviceable condition. This is in line with our overall aim of network safety, serviceability, and sustainability.
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Highway Safety Inspections are undertaken to identify defects that are creating or likely to create a danger or serious inconvenience to users of the network or the wider community. Such defects should include those that will require urgent attention (within a maximum of 24 hours) as well as those where the reduced level of severity is such that longer periods of response would be acceptable, or confirm that no response is needed. 5. Responsibility of persons undertaking Inspections The person undertaking the inspection is responsible for the accuracy of that inspection and the recorded information. In certain circumstances, that person may be called into Court to substantiate their inspection records. Persons undertaking inspections may also be required to provide information relating to third party claims received and provide statements towards the defence of claims where NCC legal and insurance representatives are involved. 6. Highway Safety Inspections Nottingham City Council has set its own standards for the frequency of its highway safety inspections. These take into account national guidelines for the definition highway type, hierarchy and inspection frequencies, issued in the latest Code of Practice for Maintenance Management Well Maintained Highways (December 2009). Nottingham City Council have established two forms of safety inspection planned and reactive. Planned inspections are carried out by Highway Inspectors at frequencies identified in the table below. These inspections are logged as planned inspections on the Highway Inspection database. Frequencies are provided for guidance only, and operational activities may lead to fluctuations in the recommended time periods.
6.1 Table 1 Frequency of Highway Safety Inspections* Feature Carriageway Category Strategic Route Main Distributor Secondary Distributor Link Road Local Access Roads Footways Prestige Area / Shopping Forecourts Primary Walking Route Secondary Walking Route Link Footway Local Access Footway Frequency 1 Month 1 Month 1 Month 3 Months 1 Year 1 Month 1 Month 3 Months 6 Months 1 Year

It may be necessary to inspect certain highways at a higher frequency than shown above when there are particular hazards, e.g. a highway is deteriorating quickly or a road being used as a diversion route for 1 month or more. Any agreed additional (ad-hoc) inspections will need recording in the Highway Asset Management System.

7. Network Hierarchy Each part of the network is assigned a hierarchy which relates to its importance to transportation and usage. This hierarchy is stored in the Highway Asset Management System and records are kept of hierarchy changes. Footway hierarchies are different to carriageway hierarchies and therefore most roads have different hierarchy classification and potentially inspection frequency for carriageway and footway. 7.1 Table 2 Carriageway Hierarchy The following table has been taken from the Code of Practice and forms the basis on which the highway network was categorised.
Category 1 Description Motorway General Description Limited access motorway regulations apply Trunk and some Principal A roads between primary destinations Detailed Description Routes for fast moving long distance traffic. Fully grade separated and restrictions on use Routes for fast moving long distance traffic with little frontage access or pedestrian traffic. Speed limits are usually in excess of 40 mph and there are few junctions. Pedestrian crossings are either segregated or controlled and parked vehicles are generally prohibited 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 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 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 inter-connecting roads with 30 mph speed limits random pedestrian movements and uncontrolled parking In rural areas these roads serve small settlements and provide access to individual properties and land. They are often only single land width and unsuitable for HGV. In urban areas they are often residential loop roads or cul de sacs.

Strategic Route

3a

Main Distributor

Major urban network and inter-primary links. Short medium distance traffic

3b

Secondary Distributor

Classified Road (B and C class) and unclassified urban bus routes carrying local traffic with frontage access and frequent junctions

4a

Link Road

Roads linking between the main and secondary distributor network with frontage access and frequent junctions

4b

Local Access Road

Roads serving limited numbers of properties carrying only access traffic

7.2. Table 3 Footway Hierarchy Four broad maintenance categories are recommended in the code of Practice for footways including a sub-division of category 1 as follows:
Category 1a Category Name Prestige Walking Zone Brief Description Prestige areas in towns and cities with exceptionally high usage, such as Princes Street in Edinburgh and Oxford Street in London Busy urban shopping and business areas, and main pedestrian routes linking interchanges between different modes of transport, such as railways and underground stations, and bus stops etc Medium usage routes through local areas feeding into primary routes, local shopping centres, large schools and industrial centres etc Linking local access footways through urban areas and busy rural footways Footways associated with low usage, short estate roads to the main routes and cul de sacs

Primary Walking Route

Secondary Walking Route

Link Footway

Local Access Footway

8. Methodology for Network Categorisation The process for categorising the highway network involved dividing roads and footways into the categories recommended in the code of practice. It was essential that factors that encourage higher pedestrian/vehicular traffic were identified and considered, and initially the locality of schools and colleges, main shopping areas, important bus routes, and main industrial areas were recognised as having an impact on usage. The process for categorising the network was as follows: Classified Network established and matched to criteria set by the code Bus routes established Roads that have a main entrance to a large school established (not including private or nursery schools, with the exception of the High Schools). Large industrial areas established Essential shopping areas were already established under previous categorisation, with one further area identified. Carriageways Main Distributor A road network Secondary Distributor B and C road network Link roads roads directly linking main and secondary network Local Access Road all other residential roads Footways Primary Walking Route large number of shops (City Centre) Secondary Walking Route dependent on location Link Footway footpaths directly linking main and secondary network, and larger residential streets Local Access Road all other residential roads

Important Bus Routes Carriageway regarded as at least link road for inspection purposes Footway regarded as at least link footway for inspection purposes Large Schools (at present where there is a main entrance to a large school) Carriageway dependent on location categorised accordingly but inspection frequencies may be adjusted to reflect usage. Footway categorised accordingly but inspection frequencies may be adjusted to reflect usage. Main industrial link roads Carriageway link road Footway link footpath

The defined inspection frequencies should be maintained in accordance with Table 1. The Authority will ensure that the routes include the existing highway network and newly adopted highways, where appropriate, are added to the inspection routes. 9. Method of Inspection DRIVEN Carriageway Safety Inspections should always be undertaken by two people in a suitable vehicle travelling at a suitable speed that will enable adequate recording of defects (guidance speed is 25mph), one driving and the other inspecting. The driver will not be expected to be actively involved in identifying and recording defects, but will concentrate on ensuring the safe passage of the vehicle. WALKED Carriageways can be inspected by one person on foot if the person is walking on a footway and can inspect the footway and carriageway at the same time. All Category 1 and 2 and 3 footways (if there is a footway on both sides of the road) are to be inspected in both directions. 10. Health and Safety Inspections must be carried out in a safe manner so as not to endanger our colleagues or local citizens. All operations will have a current risk assessment which must be followed by colleagues. 11. Information to be recorded Each inspection must be recorded against the relevant Street Section in HAMS. This information will be considered to identify potential preventative maintenance and renewal schemes. When recording inspections using a handheld device it will automatically time and date stamp the inspection. The inspection will show the inspector who carried out the inspection. (Inspections must not be carried out in another persons name). Category 1 defects (24 Hour Repair) which require immediate attention should be transferred from the handheld device as soon as the inspection on a particular street has been completed. If it is not possible to transfer the Category 1 (24 Hour Repair) defect at the time of inspection, it must be transferred within 2 hours of it being recorded.

All Category 2 defects (28 Day and 3 Month Repairs) should be transferred on the day of inspection. All inspections shall be properly recorded into HAMS and retained by the Authority for future reference. 12. Coverage A safety inspection should identify and record highway defects such as Debris, spillage or contamination on footways, cycleways, carriageways or hard shoulders Overhead wires in a dangerous condition Vandalism, the results of which are likely to endanger the public Abrupt level differences in footways, cycleways, carriageways or hard shoulders, the results of which are likely to endanger the public Potholes, cracks and gaps in footways, cycleways carriageways or hard shoulders, the results of which are likely to endanger the public Damaged, broken or displaced kerbs representing a safety hazard Missing or defective ironwork and other apparatus that is the responsibility of public utility companies should be directed to the relevant utility company for action as soon as possible, under section 72 of the NRSWA 1991. Blocked drains, standing water, water discharging onto or overflowing across the highway if present at the time of inspection Damaged, defective, displaced, missing traffic signs, signals or lighting columns Badly worn road markings NRSWA Defects contained in NRSWA 1991 Specification for the Reinstatement of Openings in Highways Second Edition 2002 Bollards and street furniture defects Damaged safety fencing, parapet fencing, handrail and other barriers Overhanging vegetation causing obstruction to pedestrian or vehicle traffic

The list is not exhaustive; the important issue is to ensure the safety and to prevent serious inconvenience to road users and the wider community. 13. Categories of Defect and Defect Category Selection Category 1 Defects (24 Hour) These are all defects that require immediate action to be made safe at the time of inspection, If reasonable practicable. In this context, making safe may constitute displaying warning notices, coning off or fencing off to protect the public from the defect. If it is not possible to correct or make safe the defect at the time of inspection, repairs or other action of a permanent or temporary nature should be carried out as soon as possible and in any case within a maximum period of 24 hours. Permanent repairs will be carried out within 28 days. Repair of Category 1 defects must take first priority of available resources and budgets. Category 2 defects have been categorised according to priority, 28 Day Repair and 3 Month Repair. Category 2 (28 Day Repair) defects are those that WILL become Cat 1 within 3 months if not attended to. Category 2 (28 day repair) defects will be issued for a 28 working day completion time. Category 2 (3 Month Repair) defects are those that are LIKELY to become Cat 1 in 3-12 months time. We will monitor our performance of rectifying these defects within 90 working days depending upon the available budget.
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Category 2 (3 Month Repair) defects will be issued on a 90 working day completion time. If a defect is found to be below intervention level the Highway Inspector may identify the area for repair. However, this will depend on whether the defect is perceived to be hazardous due to its location, or whether the defect will deteriorate by the time of the next inspection. Therefore, it may not be necessary to identify such a defect for repair on roads that are inspected on a higher frequency, as it will be possible to monitor the progress of the defect and issue a repair as it approaches or exceeds intervention level. In general, response to highway defects may depend on the available funding to undertake such repairs. Therefore, operations are planned / programmed in order of priority, linking the repairs to the network hierarchy. 14. Carriageway and Footway Intervention Levels Our intervention level for Footway repairs is greater than 25mm.

a) Footway Modular - Trips greater than 25mm

b) Footway Modular - Rocking flags greater than 25mm

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c) Footway Bituminous - Change of footway profile greater than 25mm and extending in plan direct less than 600mm

Our intervention level for Carriageway repairs is greater than 50mm.

d) Carriageway Bituminous - Change of carriageway profile greater than 50mm and extending in plan direct less than 600mm

e) Carriageway - A depression (pot hole) of 50mm or greater in depth and extending in any one direction greater than 300mm may constitute a safety hazard

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15. Target Response Times Target response times are as follows; These are defects that require immediate action to be made safe at the time of inspection, if reasonably practicable. In this context, making safe may constitute displaying warning notices, coning off or fencing off to protect the public from the defect. If it is not possible to correct or make safe the defect at the time of inspection, repairs or other action of a permanent or temporary nature should be carried out as soon as possible and in any case within a maximum period of 24 hours. Repair to be carried out within 28 working days of minor works team receiving notification Repair to be carried out within 3 months of marking - should enable work to be grouped together based on highway inspections. The repair of these defects could also be undertaken as part of a planned maintenance programme.

Category 1

24 Hour Repair

28 Day Repair Category 2

3 Month Repair

Defect category selection will depend upon the inspectors assessment at the point of inspection which should be based on: Overall probability and impact of damage or accident occurrence Hierarchy and frequency of inspection from Table 1 above The depth, surface area (extent of the defect) The location of the defect relative to other highway features such as junctions and bends The location of the defect and its likely effect on the road user.

Consideration will be given to pedestrians and our vulnerable citizens and whether it affects walking routes outside sheltered accommodation, elderly peoples homes, doctors surgeries etc. Consideration will also be given to the position of the defect in traffic lanes and in particular the wheel tracks. The volume of traffic, vehicular or pedestrian The nature and extent of interaction with other defects Forecast weather conditions and time of year, especially considering the potential for freezing of standing water Example defects, classification and guidance contained in tables on pages below. Additional guidance on what would constitute a Category 1 (24 Hour Repair) and Category 2 (28 Day and 3 Month Repair) within a carriageway or footway surface is given in the illustrations on the next page. 16. Claims by Third Parties The authority receives many claims for damages for alleged failure of statutory duty, i.e. Section 41 Highway Act 1980 (Duty to maintain a highway). Consequently inspection records constitute an important defence document

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1A TYPES OF HIGHWAY DEFECT (CARRIAGEWAYS) The following are examples of highway defects together with a description of those classed as Category 1 (24 Hour), Category 2 (28 Day), Category 2 (3 Month) The list is not exhaustive and the Inspector will need to use his or her judgement as to what is likely to be hazardous. Category 1 (24 Hour) defects should be made safe or repaired within a period of 24 hours of discovery.

Carriageways
Defect Pothole Depressions Rutting Gap/crack Sunken ironwork Cat 1 (24 Hour) 25mm deep or greater within a controlled crossing. Greater than 50mm deep elsewhere. Diesel / oil spillage etc If reported within working hours (9:00 to 17:00) this service is managed by Street Cleansing Missing or collapsed covers. Broken gully grates, manholes, service covers etc. At 50mm or greater trip within the frame. Where excess water requires signing and guarding Cat 2 (28 Day) As Cat 2 (3 Month) unless the defect is likely to deteriorate within 28 days. Cat 2 (3 Month) Less than 25mm deep within a pedestrian crossing. Up to but not exceeding 50mm deep elsewhere. Notes Repairs should be programmed if a candidate for planned resurfacing.

Debris, spillage, contamination

Diesel / oil spillage etc, mud on road. If reported outside working this service is managed by Highway Services Raised or low gully grates, manhole/ service covers. Utility should be dealt with The New Roads and Street Works Act Section 81 via the Network Management Team Minor discharge across the carriageway. Where applicable serve notice to landowner. During Winter maintenance the manager needs to be informed.

Defective gully grates, manholes, service covers constituting a hazard

Surface water discharging across highway.

As Cat 2 (3 Month) unless the defect is likely to deteriorate within 28 days.

Longitudinal and transverse trenches

Refer to NRSWA tolerances

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1B TYPES OF HIGHWAY DEFECT (FOOTWAYS AND KERBING)

Footways
Defect Pothole Cat 1 (24 Hour) 25mm deep or greater. And 25mm deep or greater on dedicated cycleway 25mm deep or greater vertical movement Open joint/cracks 25mm or greater width Diesel / oil spillage etc If reported within working hours (9:00 to 17:00) this service is managed by Street Cleansing Missing / Raised / low or broken gully grates, manholes, service covers etc. Trip hazard at 25mm or greater Cat 2 (28 Day) As Cat 2 (3 Month) unless the defect is likely to deteriorate within 28 days. As Cat 2 (3 Month) unless the defect is likely to deteriorate within 28 days. Cat 2 (3 Month) Less than 25mm deep or greater than 25mm on dedicated cycleway Less than 25mm vertical movement and open joint/cracks less than 25mm width Notes

Trip hazard Trip/pothole Rocking slab/block Tree root damage Sunken ironwork Debris, spillage, contamination Constituting a hazard

Tree Roots Seek Advice from Tree Services

If reported outside working this service is managed by Highway Services

Missing gully grates. Manhole and Service covers

As Cat 2 (3 Month) unless the defect is likely to deteriorate within 28 days.

Raised, low or broken gully grates, manholes, service covers etc. Trip hazard less than 25mm

Manhole and Service covers. Refer to NRSWA Section 81 Duty to maintain apparatus

Kerbing
Defect Damaged, rocking, missing or dislodged kerbs Cat 1 (24 Hour) Creating a trip hazard greater than 25mm where a risk assessment indicates substantial risk within pedestrian desire lines. If there is not a substantial risk within the desire line the defect can be categorised as R2 (28 Day Repair) or R2 (3 Month Repair) depending on the level of risk Cat 2 (28 Day) As Cat 2 (3 Month) unless the defect is likely to deteriorate within 28 days. Cat 2 (3 Month) Notes

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1C TYPES OF HIGHWAY DEFECT (TRAFFIC SIGNALS, STREET LIGHTING AND STREET FURNITURE)

Traffic Signals, Street Lighting and Street Furniture

Defect Traffic Signals Cat 1 (24 Hour) For all Traffic Signals please refer to the Traffic Control Centre during the working hours of 9:00 to 17:00. All electrical signs, bollards, beacons, street lighting columns should be reported to Scottish Southern Electrical (SSE) Damaged or missing Stop or Give Way Sign. Loose sign face in danger of falling on pedestrian, or falling into carriageway. Potential hazard if causing obstruction of carriageway or footway. Damage or missing safety barriers Cat 2 (28 Day) Cat 2 (3 Month) Notes Outside of normal working hours this service is managed by Siemens.

Street Lighting

SSE manage this service on behalf of NCC

Signs / Lining

As Cat 2 (3 Month) unless the defect is likely to deteriorate within 28 days.

Faded or missing road Stop or other mandatory lines at major junctions Obscured or dirty sign face. Minor damaged Safety fencing / pedestrian barrier Damaged or missing temporary barriers or signs at road works (refer to NRSWA guidance)

Fences / Barriers

As Cat 2 (3 Month) unless the defect is likely to deteriorate within 28 days.

Verges / Visibility
Defect Overgrown verges /vegetation or obstruction at road junctions and roundabouts Cat 1 (24 Hour) Visibility at junctions & roundabouts severely restricted. If applicable defer to Cat 2 (28 Day) Footway impassable (Cat 1 & 2 footways). If applicable defer to Cat 2 (28 Day) Cat 2 (28 Day) As Cat 2 (3 Month) unless the defect is likely to deteriorate within 28 days. Cat 2 (3 Month) Visibility at junctions & roundabouts partially restricted. Notes Vegetation letter for home owners to take action.

Overgrown vegetation or obstruction to footway

As Cat 2 (3 Month) unless the defect is likely to deteriorate within 28 days.

Footway impassable (Cat 3 & 4 footways)

Vegetation letter for home owners to take action.

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