Annex 12

1. Introduction

Stated priorities of the Council’s latest Strategic Plan include responding to climate change and helping communities to be safe, connected and resilient. This is set against the backdrop of the Council declaring a Climate Emergency and the subsequent commitment to achieving net-zero carbon emissions by 2030. At a national level, the scrutiny around creating safer streets has also never been greater. Streetlighting and Traffic Signals are pivotal to the Council’s contribution to all three of these agendas and are essential if we’re to meet these stated aims.

In recent years, the Council’s streetlighting team have focussed on reducing energy usage whilst continuing to deliver our day-to-day functions such as keeping the public safe. The LED roll-out programme, along with the introduction of part-night lighting and a stepped dimming regime have achieved substantial reductions in our carbon footprint and revenue costs. In 2015/16 our streetlighting asset used circa 31million kWh of electricity per annum, last year this figure had been reduced to just 14million kWh. Given the current energy price this equates to an annual revenue saving of nearly £3m.

In a similar vein, a well-maintained traffic signals asset is particularly important to managing congestion and sustaining economic vitality. Traffic management systems are also a vital part of the Council meeting its statutory requirements under the Highways Act and the Traffic Management Act to ensure the safe and expeditious movement of traffic.

Fig. 12.1: Teignmouth seafront lighting replacement, Spring 2022

2. Inventory

The Council has an inventory of street lighting and traffic management assets this includes:

Street light lanterns,
Street lighting columns,
Lit signs and bollards,
Traffic Signal Junctions,
Signalised Traffic Pedestrian crossings,
Variable Message Signs (VMS),
Vehicle Activated Signs (VAS),
Real time passenger information system,
CCTV cameras and equipment,
Ice detection equipment,
Rising Bollards,
Real time traffic counter equipment, and
UTC/SCOOT computer systems.

To give an idea of scale, as of 2019 the Council are responsible for:

Street lights – 80,336,
Illuminated signs – 9,156,
Illuminated bollards – 3,188,
Beacons – 751,
Feeder pillars – 391, and
School patrol lights – 350.

The street lighting asset database includes a significant amount of detail on asset components including column and lantern types. The Street Lighting assets are managed within an asset management system.

2.1 Street Lighting Inventory

The Street lighting Database is managed in real time from activity relating to the day-to-day works carried out by our maintenance contractors. Updates to the database are also added by the Council’s Streetlighting team members. This system tracks work instruction progress and enables staff to monitor performance and running costs. It also produces a monthly energy report to calculate our electric usage.

Of this inventory, the breakdown of column types is:

Steel – circa 55,000,
Wood – circa 11,000,
Aluminium – circa 7,500,
Wall-Mounted – Circa 1,700,
Cast Iron – Circa 1,600,
Concrete – circa 200, and
Other infrequent types include plastic, composites, ground and flange.

2.2 Traffic Management Systems Inventory

All data for the Traffic Equipment asset is stored on Excel Spreadsheets with Traffic Signal equipment on an Access Database. They provide:

Access to inventory,
Contractor and customer records,
Mapping to pinpoint fault locations,
Fault management,
Electrical testing,
Inspections,
Financial control, and
Photographic record.

The traffic signal assets, VMS assets and Car park assets do not have an Asset Management system but are managed from spread sheets and an in-house database is updated by Devon team members.

The traffic signal equipment added to the inventory as a result of Section 38 and 278 works are recorded by Devon County Council staff who update the spreadsheets.

Routine inspections and faults will identify equipment / problems, and these will be reported to Devon County Council staff who updates the spreadsheets or database.

Asset Information Strategy

Details of new or modified sites will be added to the inventory as a result of Section 38 and 278 works. It is necessary to record these quantities to understand the annual growth of the asset and to determine if there are differences in deterioration rates. This will allow trend analysis of previous additions to the sign assembly stock and enable costs to be established for inclusion in service options.

Identify costs and locations of accident damaged and vandalised equipment. This data will allow accident and vandalism hot spots to be located to ascertain possible special treatments. Analysis of previous year’s costs due to accidents and vandalism will assist in the formation of service options i.e. these costs can be separated from general maintenance.

A signal-controlled junction or signal controlled crossing usually consist of the following elements:

Signal controller,
Traffic Signal Heads,
Ducted cables network,
Signal posts,
Ducting and access chambers,
Detection equipment (sensors in road or top of pole),
Electrical supply, and
BT or other communications system.

A VMS or VAS message sign can consist of the following elements:

Sign controller,
LED sign Heads,
Support poles,
Electrical supply,
Ducting and access chambers, and
BT or other communications system.

A RTPI site can consist of the following elements:

LED or TFT screens,
Support posts or brackets,
Electrical supply,
Ducting and access chambers, and
BT or other communications system.

A CCTV site can consist of the following elements:

CCTV camera,
Pan and tilt unit,
Support posts or brackets,
Electrical supply,
Ducting and access chambers, and
BT or other communications system.

An Ice Alert site can consist of the following elements:

Temperature monitor (Ice detection) unit,
Support posts or brackets,
Electrical supply,
Ducting and access chambers, and
BT or other communications system.

A rising bollard site can consist of the following elements:

Rising bollard unit,
Bollard control box,
Electrical supply,
Ducting and access chambers, and
BT or other communications system.

An ATC and Real time traffic count site can consist of the following elements:

ATC control box,
Detection equipment (sensors in road or top of pole),
Electrical supply,
Ducting and access chambers, and
BT or other communications system.

Inventory Type	Current % of inventory held	Proposed Inventory storage method	Data capture strategy	Comments
Existing Stock	100%	Spreadsheets	Data gathered from works orders and confirmed by site survey using paper copies	A visual inspection of all the Authorities Traffic equipment under maintenance is continually updated. Database requires continuous updating.
New equipment added to stock as part of Council’s Capital programme	Unknown	Spreadsheets	Data gathered from works orders and confirmed by site survey using paper copies	When notified a site inspection is carried out
New equipment added to stock through Section 38 and 278	Unknown	Spreadsheets	Data gathered from works orders and confirmed by site survey using paper copies	When notified a site inspection is carried out
New equipment added to stock through 3rd party agreements	Unknown	Spreadsheets	Data gathered from works orders and confirmed by site survey using paper copies	Contract requirement to inspect and test each site and complete site acceptance sheet
Site Condition	100%	Spreadsheets	Ongoing programme of site and equipment inspections to ensure that equipment is checked and tested annually and recorded PI sheets.	Contract requirement to inspect and test each site annually and complete PI sheet.
Electrical Testing	100%	Spreadsheets	Ongoing programme of electrical testing to ensure that equipment and poles are tested annually and recorded on ELI test sheets.	Contract requirement to test within a 2 year period
Structural testing	<5%	Spreadsheets	Specialist Testing House	Code of Practice recommended testing of all traffic signal steel Posts greater than 20 years of age.
Vandal damage	Unknown	Spreadsheets	Inspection regime using paper copies	Annual average cost to repair damaged sign installations
Accident damage	Unknown	Spreadsheets	Inspection regime using paper copies	Where a driver is identified costs are recharged

Fig. 12.2: Status of Inventory

3. Performance

3.1 Data Collection and Fault Management

The Council receive, log, manage and store all faults whilst also managing their repairs through term maintenance contracts.

With regards to streetlighting, this is achieved via:

Visual inspection by contractor (currently Enerveo) during every site visit,
Electrical test every 6 years,
Structural testing (KIWA) to categorise/monitor column integrity,
Scouting of all assets on a bi-monthly cycle,
The Council operate a ‘report a problem’ to enable the public to report issues (see screenshot to the right), and
Telensa cells identify lantern faults remotely.

With regards to traffic signals, this is achieved via:

Fig.12.3: Screenshots of the Councils ‘Report a Problem’ system and example tweet regarding traffic signals

Annual inspection of all assets by contractor (currently Swarco),
Remote fault monitoring in the Network Operations Control Centre (NOCC),
The Council operate a ‘report a problem’ to enable the public to report issues (see screenshot below), and
Communicating issues with the travelling public via the Council’s @DevonALert social media accounts (see screenshot to the right).

The NOCC also logs/manages/reports other faults with our contractors for VMS, CCTV, Car park signs, Bollards or computer equipment along with systems (UTC/SCOOT) RMS, and CMS.

Annual inspections

To ensure equipment is in working order each site with Traffic equipment is inspected annually. Any faults identified are manually recorded and reported to Devon County Council staff that inputs this information into spreadsheets and or generates a job ticket. Although inspections are currently undertaken in an effective manner a long-term improvement strategy is proposed to both increase efficiency and reduce duplication of manpower required to obtain and record the data by:

The introduction of mobile computers for the recording of inspection information, removing the need for data input by Devon County Council staff,
Introduction of remote transfer of information thus removing the need for maintenance engineers to provide paper copied to the office and the need for Devon County Council staff to input the information, and
Electronic updates will reduce waste paper.

Structural (Ultrasonic) Testing

Ultrasonic testing is undertaken on the behalf of the Council by an approved “structural testing house” and the initial structural test of signal poles is undertaken when it reaches 10 years of age or identified as required with an annual site inspection to ensure the integrity of the pole stock is maintained. Follow up inspection frequency of testing is determined from the recommendations of the specialist testing engineer as identified in the column “test report” and the potential outcomes of these tests:

Re-test in 5 years – 0-10 LSU Range – little relative loss of section,
Re-test in 3 years – post is sound and has 11-16 LSU range deterioration in posts material thickness,
Re-test in 2 years – post condition has LSU range 17-24 Re-test as soon as practicable year if posts condition has LSU range 25 to 49, and
Remove immediately if material deterioration has LSU range of greater than 50.

Electrical testing

The Council is required by statute to test Traffic Equipment stock at least once within a 6-year period. Our maintenance contractors are required to carry out an electrical test on all site equipment upon attendance to an asset requiring an electrical test. The equipment is tested for:

System earthing,
Circuit conductor size,
Circuit protection,
Insulator resistance,
Polarity status, and
Phase/earth fault loop impedance.

3.2 Asset Condition

The condition of the traffic signal asset is considered good, with all assets not over 15 years old. The general condition of the streetlighting asset is known but is considered to vary considerably due to the significant quantity of aged stock. Equipment deterioration is measured and recorded. Proactive inspections are undertaken annually and the condition of equipment is ascertained through a number of means:

Annual PI of traffic signal sites, and
Maintenance operatives will identify defective equipment during fault attendance and reported back to the office. Members of the public reporting poor performance or equipment failure.

Inspection type	Frequency
Electrical Inspection & testing to comply with BS7671 – IEE Wiring Regulations 17th edition.	100% of stock annually
Ultrasonic structural testing	Inspection is dependent on condition but to commence on columns >20 yrs old
Annual Inspection	100% of stock annually

Fig 12.4: Inspection Frequencies

Inspection type	Current method of data capture	Current data storage method	Proposed method of data capture	Proposed data storage method
Annual Inspection	Paper PI form	Spreadsheets	Directly into IMTRAC Database electronically	IMTRAC Computer Database
Structural testing	Paper based system	Spreadsheets	Directly into IMTRAC Database electronically	IMTRAC Computer Database
Electrical testing	Paper based system	Spreadsheets	Directly into IMTRAC Database electronically	IMTRAC Computer Database

Fig.12.5: Inspection Methods and Data Storage

Inventory component	Current method of inspection	Condition assessed Yes or No	Current data storage method	Proposed data storage method	Risk if not inspected
Traffic controller	During fault call and PI	Yes	Spreadsheets	Directly into IMTRAC Database electronically	High
Signal heads	During fault call and PI	Yes	Spreadsheets	Directly into IMTRAC Database electronically	High
Poles	During fault call and PI	Yes	Spreadsheets	Directly into IMTRAC Database electronically	High
Site Wiring	Electrically tested	Yes	Spreadsheets	Directly into IMTRAC Database electronically	High
Site performance	Devon staff check with TMA	Yes	Spreadsheets	Directly into IMTRAC Database electronically	Med

Fig 12.6: Condition Assessment

Fig. 12.7: Traffic Signal Asset Age Profile

blue = pedestrian crossings and red = signal-controlled junctions

4. Maintenance Strategy

Devon County Council has appointed specialist contractors to maintain the different types of Traffic Equipment

4.1 Creation of a new asset

The Council’s current Street Lighting Policy states:

‘requests for additional lighting will only be considered where there is a justified and pressing need and a funding stream is identified.’

With regards to wider traffic assets, new sites frequently come online as a result of significant development around the County and the asset is therefore growing.

4.2 Routine and reactive maintenance

Routine Maintenance

Reports of faults originate from three sources – the public, council night-time inspections or by the maintenance contractor as a result of routine inspections. Faults are recorded and works orders raised with the relevant contractor. Response times for such matters vary but contractual requirements exist for both Streetlighting and Traffic Signals. For example, an urgent traffic signal fault must be made safe within 4 hours.

Cyclical maintenance

Activities such as cleaning of lanterns, regular bulk replacement of lamps, condition inspections of columns, brackets and lanterns, painting of steel columns and electrical testing is carried out by Term Maintenance Contractors with works order being generated at the start of each financial year. The Council aim to provide works programmes as early as practicable to enable efficient programming and arrangement of works

Reactive maintenance

Lighting columns and traffic signals damaged by routine traffic accidents are replaced as soon as possible. Wherever possible, costs are recouped through insurance companies from those found responsible for the accident.

4.3 Renewal or replacement

Long term planned maintenance such as the planned replacement of street lighting columns, the upgrading of lanterns to LED, the replacement of traffic signals or traffic control systems is programmed in advance of the start of the financial year where possible. The programme was developed to focus on the highest power lanterns initially as this enabled greater savings. The team are currently bidding for additional funds to expand the Telensa/LED roll-out in Devon.

5. Levels of Service and Investment Strategy

5.1 Levels of Service

The following levels of service for highway lighting and traffic management systems has been developed to reflect the fundamental service aimed at helping to deliver a road network which is as safe, reliable and as fit for purpose as possible within the current funding and resource constraints.

Level of service		Safe	Connected	Healthy	Prosperous	Resilient	Sustainable
Highways Lighting	Respond within 2 hours to reported traffic accidents involving lighting columns or other lighting emergencies.	√	√	√	√		√
Highways Lighting	Develop and deliver a programme of column repair and replacement in order to maintain the street lighting asset and reduce the risk of column failure.	√	√	√	√		√
Traffic management systems	Respond within 4 hours to signal failures.	√	√		√		√
Traffic management systems	Operate an annual inspection, electrical testing and repair regime for all traffic signals and pedestrian crossings .	√	√		√		√

Fig. 12.8: Levels of Service

5.2 Investment Strategy

Given the current revenue funding pressures facing the Council, the rising cost of electricity and the aims of the County to reduce its carbon footprint, the Street Lighting and Traffic Signals Team have been developing a strategy focused on the use of new technologies including the use of LED lanterns, part-night lighting and dimming projects and upgrading of traffic control systems. The key objective being to reduce energy costs over the long term.

Currently the Council spends over £3m per annum on energy costs to power its street lights and traffic signals as well as lit signs and bollards. This cost is rising and is unsustainable given the budget pressures on the service.

Capital spending strategy

In the past capital spending had been targeted specifically at replacing the oldest street lighting columns in order to reduce the backlog of high-risk columns and at replacing failed traffic signal sites on a reactive basis. The strategy moving forward is to focus on:

Increase Telensa role-out to enable flexibility in dimming/part-night lighting and thus savings in energy consumption,
Use of “light emitting diodes” (LED) sources of light to minimise the energy consumption where practicable,
The use of more efficient equipment to reduce energy consumption,
Keep traffic signal assets under 15 years old to support the Council’s Statutory Network Management Duty and avoid expensive reactive repairs (and the subsequent reputational damage),
Replacement of lease lines with IP compatible lines to reduce line rental costs, and
More efficient and reliable site equipment will reduce the number of reported faults and reduce the number of fault attendances (reducing the carbon footprint along with energy consumption.

A key element of the Council’s traffic equipment is the Variable Message Signs (VMS). VMS is key to our ability to proactively fulfil our Network Management duties but our current VMS stock is unfortunately ageing and unreliable. Technology in this area is advancing rapidly and will change again as traffic changes (looking ahead to autonomous vehicles.). As a team, we therefore commissioned an independent external study to understand the options available to Devon County Council going forwards. Moving forwards, capital investment will be made to update and renew this asset.

Traffic Service Options

Do Nothing

The existing budget and level of service is maintained with a inflation index increase per annum, this strategy would result in the steady and rapid decline of service as the cost to maintain the Traffic Equipment increases annually due to the uplift in rates combined with an increasing number of assets exceeding their recommended life expectancy coupled with addition of additional Traffic Equipment resulting from growth.

Steady State Service Level

The asset is maintained at its current level, where the Traffic Equipment assets are maintained at their present condition, this strategy would require an increase in budgets over and above inflation.

Goals, Objectives and Aims

To continually improve the safe and efficient movement of traffic and people around the road network.
To expand the LED and Telensa expansion further
No Traffic Signal site to exceed its design life.
All Traffic Equipment to comply with the Traffic Signs Regulations & General Directions 2002 (TSR&GD), and the Traffic Signs Manual.
All Traffic Signal design and maintenance to comply with TR84/06 (2007 Revision) Code of Practice for Traffic Control and Information Systems for All – Purpose Roads.
Replacement programmes will enhance the Authority’s image.
To replace the existing BT Private Wire system with a modern Communications system that meet current and future needs.

Systems that use communication links are:

Traffic equipment,
CCTV,
ANPR,
VMS,
Count equipment,
Telephone networks,
Carpark equipment, and
Authority corporate software.

At present it remains an aspiration to carry out the following:

Provide an asset management system for all Traffic equipment assets.
Accelerated programmes to upgrade Communications system that meet current and future needs.

6. Programme Development

6.1 Identifying Schemes for an Initial Works Programme

The street lighting programme is developed based on the following principle(s):

Aim to proactively replace 1400 columns per year,
Complete the LED role-out, and
Expand the Telensa CMS.

The traffic equipment programme is developed based on the following principle(s):

Maintain all assets at under 15 years old,
Renew VMS as funding opportunities become available

6.2 Prioritising the Works Programme

The street lighting programme is prioritised based on the following principle(s):

A combination of column age and Kiwa testing to understand the asset’s remaining life span
The LED roll-out programme prioritised the highest energy locations (e.g. main roads) initially and is now being extended across the remainder of the County
The CMS roll-out (Telensa) has focussed on the highest density lighting areas as the cost per unit is minimised here. In future, it’s hoped that funding can be obtained to expand this further

The traffic equipment programme is prioritised based on the following principle(s):

Equipment age and fault reporting
With regards to VMS, the Council’s Transport and Engineering Professional Services provider (currently WSP) have prepared a forward strategy report identifying priorities if funding becomes available

7. Risks

There are a number of key challenges facing the Street Lighting and Traffic Signals Teams to maintain the asset.

7.1 Resource Availability

In recent years there has been immense pressure on resources. From a labour perspective, contractors have struggled to secure skilled operatives to deliver the works programme. From a materials perspective, prices have risen (e.g. steel, concrete etc.) and the demand for energy saving products (e.g. LED’s, Telensa cells etc.) has also increased. The Council regularly review and manage these risks with our Term Maintenance Contractors.

7.2 Asset Deterioration

The condition of both the Street Lighting and Traffic Signals equipment will deteriorate over time without intervention. The Council aim to profile this to compare site performance, manufacturers guaranteed life against actual life; the prediction of equipment failure and allow timely intervention and efficient budget allocation.

7.3 Revenue budget

Increasing energy prices,
Growth in number of traffic equipment assets places additional pressure on budgets, and
No growth in budget to meet new specifications for equipment.

7.4 Other

The Council’s Street Lighting contractor are currently implementing new asset management software. Whilst improving slowly, the initial setup phase has been challenging and the desired long-term efficiencies have not yet been realised.

8. Improvement Actions

Alongside the Highway Infrastructure Asset Management Plan, this Annex is a live document. It will be subject to continuous improvement and ongoing development with input from Council Officers and Stakeholder feedback. Areas for improvement are identified within the Annex which are summarised as Improvement Actions in this section. These Actions are aligned with Strategic Goals and are assessed as part of a wider cross-asset prioritisation process that prioritises their implementation taking account of the framework of funding and resource availability.

The actions that have been identified as being required to ensure the Traffic Signals and Street Lighting asset management objectives are achieved are:

Explore options to expand the Telensa CMS to rural areas,
Review the Council’s Street lighting policy including a trial of further dimming/part-night lighting,
Increase efficiency and reduce duplication of manpower required to obtain and record traffic equipment data by:

The introduction of mobile computers for the recording of inspection information, removing the need for data input by Devon County Council staff
Introduction of remote transfer of information thus removing the need for maintenance engineers to provide paper copies to the office and the need for Devon County Council staff to input the information, and
Electronic updates will reduce waste paper,

Move traffic signals data to IMTRAC Computer Database (or similar specific software),
Identify and prioritise a programme to replace the Council’s outdated VMS stock,
Contribute to the delivery of the Council’s wider aims through the Bus Service Improvement Plan, and
Maintain and advance the knowledge and skills of the Council’s in-house teams.

Version Control

Version	Date	Summary of Changes
1.0	12 April 2023

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