Consistent condition data collection

Consistent condition data is increasingly important in the New Zealand transport sector's approach to lifecycle asset management, benchmarking, performance management and investment decision-making.

Background

In 2021-24, approximately $1.5 billion will be spent on local road sealed pavement maintenance, resurfacing and rehabilitation. However, recent experience and engagement with the sector show that the current approach to sealed pavement condition data collection across local road networks is outdated, inefficient, variable, and does not reflect current international best practices. This results in inconsistent and non-comparable outputs across local authorities and hampers national investment decision-making processes.

The Consistent Condition Data Collection (CCDC) project will improve both local and national asset management planning and decision-making by:

1. Specifying the minimum requirements for automated pavement condition inspection for roughness, rutting, texture, cracking, and geometry on sealed roads.
2. Implementing national data standards and specifications to ensure consistent data collection, accuracy, processing, and management.
3. Establishing a National 'Centre of Excellence' approach to data collection and quality assurance to ensure consistency.
4. Grouping local authority road networks into geographic contract areas. It is proposed that Te Ringa Maimoa leads these contracts via the Centre of Excellence delivery model.

The expected benefits include:

• Better lifecycle management and performance.
• Enhanced asset management decision-making.
• Improved road safety outcomes.
• Value for money in both data collection and forward programmes.
• Health and safety risk elimination.

Detailed Business Case

Te Ringa Maimoa and Waka Kotahi endorsed the CCDC Detailed Business Case in July 2022. This was a significant milestone and the culmination of 18 months of hard work from a wide range of sector stakeholders and organisations. Following endorsement, the CCDC programme entered into the ongoing implementation phase. Te Ringa Maimoa is leading this with support from road controlling authorities, Waka Kotahi, and sector stakeholders.

CCDC Implementation

The CCDC implementation phase is being undertaken collaboratively by a team of sector representatives from road controlling authorities and Waka Kotahi, supported by industry subject matter experts.

Implementation is structured into five workstreams (Investment Policy, Technical, Procurement and Contracting, Communication and Engagement, and Change Management) through to June 2024 with new national requirements and a contracted delivery model expected to start from 1 July 2024. An overview of each workstream's key achievements as of May 2023 and upcoming activities is below:

Investment Policy

CCDC will implement new minimum pavement condition inspection requirements, standards, and specifications for sealed pavements. All road controlling authorities must meet these to receive National Land Transport Fund (NLTF) funding assistance for road maintenance.

Draft funding conditions for the 2024-27 National Land Transport Programme (NLTP) have been prepared. They will be issued to Waka Kotahi for formal approvals before adoption into the Planning and Investment Knowledge Base (PIKB). The conditions of funding direct:

• Condition data parameters to be collected and the frequency and minimum extent of automated pavement condition inspection based on One Network Framework classification.
• Certification requirements for approved data collection suppliers.

Draft funding conditions for the 2024-27 National Land Transport Programme (NLTP) [PDF, 192 KB]

The business case estimated the cost for each local road controlling authority to meet the new minimum requirements compared to historical spending on condition data collection in the 2018-21 and 2021-24 NLTP periods. At a national level, the total cost is comparable, with an increased cost of automated data collection offset by the removal of manual (visual) surveys.

However, the impact per road controlling authority is varied, and some organisations meeting the minimum requirements are expected to have an increase in cost. In contrast, others who have independently moved to automated data collection will have less impact.

A decision is being sought from the Waka Kotahi Board on 5 July 2023 for the preferred NLTF funding assistance rate for the 2024-27 period. Options range from each road controlling authorities' normal funding assistance rate to more enhanced and/or targeted funding assistance to meet the minimum requirements. Following this decision, the CCDC team will commence engagement with each road controlling authority.

Technical

Continuing from the business case recommendations, the technical workstream is:

• Finalising documentation for minimum pavement condition inspection requirements, standards, and specifications.
• Developing guidance for road controlling authorities, Waka Kotahi and data collection suppliers to support implementing the new requirements.

A key recommendation from the technical workstream, endorsed by the CCDC Sector Technical Reference Group, Project Control and Sector Governance Group, is for all automated pavement condition inspections to be undertaken using the Pavemetrics LCMS-2 3D Scanning Laser.

This recommendation was made following an extensive review of available technologies in New Zealand and overseas. Pavemetrics LCMS-2 was endorsed based on:

• All current NZ and Australian survey suppliers operate various Pavemetrics systems and are familiar with the equipment, software, and company.
• Some NZ survey suppliers are already working with Pavemetrics on customising data collection and processing software for NZ conditions.
• All major integrators are using Pavemetrics products.
• There is a substantial international body of knowledge, including published research and reports on the performance of Pavemetrics systems.
• The algorithm-based approach means data can be re-processed as improved algorithms are developed, so historic data retains value and changes have fewer unintended consequences.
• Ongoing support is provided to survey suppliers via contract arrangements, including routine maintenance of LCMS-2 units.
• Ability to establish a long-term professional services arrangement with NZ to develop new and improved data collection and processing techniques/algorithms, and share these with all local suppliers via contract arrangements.

CCDC implementation has subsequently standardised on the LCMS-2 system, and the standards and specifications are being drafted to conform with this equipment.

Procurement and Contracting

Three tranches of procurement will transition CCDC to the Centre of Excellence delivery from 1 July 2024:

1. Data collection survey suppliers: engagement of suppliers who can:
   1. Provide annual automated pavement condition inspection surveys.
   2. Commission / integrate and maintain survey systems (LCMS-2, ancillary equipment, vehicle, software).
   3. Meet prescribed certification and quality assurance requirements.

Geographic contract areas will be determined following engagement with road controlling authorities in July 2023 to confirm their participation in the Centre of Excellence delivery model. Areas will be developed to maximise the productivity of individual survey vehicles nationally.

All successful suppliers will be required to purchase a Pavemetrics LCMS-2 unit and integrate this into a survey vehicle alongside ancillary equipment ready to undertake the first annual surveys in late 2024.

This procurement is scheduled to commence in August – September 2023 via a competitive open tender approach, with contracts starting in December 2023 to provide sufficient time for suppliers to integrate survey systems and vehicles and establish survey teams as needed. An initial term of 7-years (1-year of establishment + 6-years of surveys) is proposed with one right of renewal of 3-years for a total term of 10-years. This term is proposed to provide consistency in data collection at a local level and enable a return on capital investment for suppliers.

2. Pavemetrics professional services: We intend to direct appoint Pavemetrics for a long-term relationship with Te Ringa Maimoa and the Centre of Excellence. This engagement will focus on developing the capability of LCMS-2 for NZ conditions, especially regarding crack detection on coarse texture surfaces. As developments are tested and verified for use, these will be issued as updates for all NZ survey suppliers to use to ensure consistency.
3. Centre of Excellence support: Professional service provider engagement to support the Centre of Excellence with delivery activities, including survey planning, quality assurance and validation, and contract management. This is the final procurement activity, and decision-making is yet to commence for the scope of work and preferred approach to procurement. However, in the interim, the CCDC technical workstream is advancing critical deliverables in this space.

The procurement workstream has several dependencies, most notably:

• Waka Kotahi decision-making for the 2024-27 NLTF funding assistance rate for the requirements described in the funding conditions (see Investment Policy workstream above).
• Majority of road controlling authorities agreeing to participate in the national contract delivery model, noting all road controlling authorities will be required to meet the minimum requirements as a condition of funding regardless of their inclusion in these contracts or the Centre of Excellence (see Communication and Engagement workstream below).

Communication and Engagement

Successful implementation of the CCDC project is focused on communication and engagement with road controlling authorities, data collection suppliers, and key stakeholders and partners. This is a continuation of the comprehensive engagement Te Ringa Maimoa led during the development of the business case.

Key phases of upcoming communication and engagement are:

• Road controlling authorities
  • May 2023: advice for 2024-27 budget requirements to meet new minimum requirements based on each organisation's standard funding assistance rate.
  • July 2023: communicate Waka Kotahi's decision for the 2024-27 NLTF funding assistance rate to support implementing minimum requirements.
  • July 2023: engage with each road controlling authority to confirm their involvement in the Centre of Excellence delivery model and to understand if they want to exceed the minimum requirements.
• Data collection survey suppliers
  • May / June 2023: pre-procurement survey supplier briefing to inform key technical, procurement, and contracting items.
  • August 2023: release of procurement documentation to the market, date to be confirmed.
  • August 2023: supplier briefing approximately 1-week after procurement release.
  • September 2023: tender closing, date to be confirmed.
  • December 2023: contracts commence, date to be confirmed.

Change Management

Change management activities are focused on:

• The transition from local road controlling authority led contracts to the National Centre of Excellence model. Broadly the guidance is for road controlling authorities to continue to procure their condition data collection services in line with current practices until 30 June 2024. Plus, we strongly encourage automated condition data collection, such as rutting and texture.

CCDC Council Guidance 2021 [PDF, 121 KB](external link)

Te Ringa Maimoa is available to discuss specific situations and has subject matter expert support available to advise about other condition data collection. Contact us by email TeRingaMaimoa@nzta.govt.nz

• Waka Kotahi internal changes needed to support successful implementation, including data storage and management and PIKB updates. Engagement is also underway with the related state highway condition data collection to identify opportunities for efficiency and/or alignment.

Major Milestones

Resources

• Te Ringa Maimoa resources
• Te Ringa Maimoa newsletters
• CCDC presentation – regional workshop – W1 (May 2023) [PDF, 555 KB]
• CCDC Frequently Asked Questions (May 2023) [PDF, 281 KB]
• CCDC Council Guidance [PDF, 295 KB]

Webinar

CCDC sector briefing webinar – September 2021

Te Ringa Maimoa RIMS Forum 2023 - CCDC presentation