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2024
City of Peterborough
Asset Management Plan
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Table of Contents
I.
Overview
1
....................................................................................................
II.
Plan Purpose
2
..............................................................................................
III.
Regulatory Asset Management Requirements
2
...........................................
IV.
Elements of the Plan
4
..................................................................................
V.
Asset Management and Climate Change
5
...................................................
VI.
Levels of Service
5
........................................................................................
VII.
The State of the City's Infrastructure
6
..........................................................
VIII.
Future Demand and Emerging Challenges
12
..............................................
IX.
Financial Summary
13
...................................................................................
X.
Managing the Risks
15
..................................................................................
XI.
Next Steps
15
................................................................................................
1.0
Introduction
18
............................................................................................
1.1
City of Peterborough Goals
18
......................................................................
1.2
Relationship with Other Corporate Planning Documents
19
..........................
1.3
The Plan Scope
19
........................................................................................
1.4
Council Presentation and Approval
20
..........................................................
1.5
Developing the Plan
21
.................................................................................
1.6
Assumptions and Limitations of the Plan
24
..................................................
1.7
Continuing Evaluation and Improvement
27
..................................................
2.0
State of Infrastructure
28
............................................................................
2.1
Overview
28
..................................................................................................
2.2
Condition Ratings and Weighted Methodology
28
.........................................
2.3
Trend Scoring System
29
..............................................................................
2.4
Risk Analysis
30
............................................................................................
2.5
Asset Valuations
31
.......................................................................................
2.6
Age and Useful Life
31
..................................................................................
2.7
Overview of the Corporate SOI
33
................................................................
2.8
Condition Assessments
33
............................................................................
2.9
Limitations of the SOI
34
...............................................................................
3.0
Levels of Service (LoS)
34
..........................................................................
3.1
Overview
34
..................................................................................................
3.2
Current Levels of Service and Performance
34
.............................................
3.3
Trends in Service Delivery
35
........................................................................
4.0
Asset Management Strategy
40
.................................................................
4.1
Overview
40
..................................................................................................
4.2
Asset Lifecycle Strategies
40
........................................................................
3
4.3
Procurement Methodologies
40
.....................................................................
4.4
Asset Management Strategies and Climate Change
41
................................
4.5
Investment Priorities
50
.................................................................................
5.0
Financial Summary
51
.................................................................................
5.1
Overview
51
..................................................................................................
5.2
Operating Investment Needs
51
....................................................................
5.3
Growth Investment Needs
53
........................................................................
5.4
Review of Historical Revenues and Historical Capital & Operating
Expenditures
57
............................................................................................
5.5
Financial Strategy Methodology
61
...............................................................
5.6
Results
64
.....................................................................................................
5.7
Summary of the Financial Shortfall
70
...........................................................
6.0
Plan Improvement & Monitoring
75
...........................................................
6.1
Improvement Plan
75
....................................................................................
6.2
Asset Management Maturity
75
.....................................................................
7.0
Conclusion
78
..............................................................................................
8.0
Appendices
80
.............................................................................................
9.0
Service Area Attachments
81
.....................................................................
4
List of Tables & Figures
List of Tables
Table E1:
Total Asset Replacement Value by Service Area
Table 1-0:
Asset Management Related Documents and Updates
Table 1-1:
Assumptions and Limitations of the Plan
Table 2-0:
5 Point Scale for Rating Asset Condition
Table 2-1:
Trend Scoring System
Table 2-2:
Consequence of Failure Scoring System
Table 2-3:
SOI Overview
Table 2-4:
Service Area Condition and Replacement Value
Table 3-0:
Current Stakeholder Levels of Service Trends
Table 4-0:
FCM Climate Change Asset Management Risk Assessment Framework
Table 4-1:
FCM Climate Change Asset Management Level of Service Assessment
Framework
Table 5-0:
Operating Lifecycle Costs
Table 5-1
Growth-Related Lifecycle Costs
Table 5-2:
Operating Cost Impacts Associated with Growth-Related Demands
Table 5-3:
Three Year Historical Operating Revenues by Type
Table 5-4:
Historical Capital Expenditures for Existing Assets by Lifecycle Activity
Table 5-5:
Historical Operating Expenditures
Table 5-6:
Lifecycle Activities
Table 5-7:
Summary of Lifecycle Activity Costs - Anticipated Budget
Table 5-8:
Summary of Lifecycle Activity Costs - Costs to Maintain Current LoS
Table 5-9:
Summary of Lifecycle Activity Costs - Backlog Analysis
Table 5-10: Investment Needs and Anticipated Funding - Existing and Growth Related
List of Figures
Figure E1:
Ontario Regulation 588/17 Requirements and Timeline
Figure E2:
Asset Replacement Value by Service Area
Figure E3:
Overall Distributed Asset Condition and Replacement Value
Figure E4:
Distributed Condition and Replacement Value of High-Risk Assets
Figure E5:
2024 Financial Shortfall
Figure 1-0: Asset Management Lens and Decision-Making
Figure 1-1: Asset Management Workflow
Figure 1-2: Employee Involvement in Workflow Stages
Figure 4-0: Mitigation and Adaptation Strategies
Figure 5-0: Three Year Average Historical Operating Revenue by Type
Figure 5-1
Example Performance (Condition) Forecast Graph
Figure 5-2: Example Spending Graph
Figure 5-3: 10-Yr Performance Forecast - Maintain Current LoS, All Service Areas
Figure 5-4: 10-Yr Spending Forecast - Maintain Current LoS, All Service Areas
Figure 5-5: 10-Yr Performance Forecast - Achieve 100% LoS, All Service Areas
Figure 5-6: 10-Yr Spending Forecast - Achieve 100% LoS, All Service Areas
5
Figure 5-7: Current Financial Shortfall Analysis
Figure 6-0: City of Peterborough State of Asset Management Maturity
Service Area Attachment #1: Roads & Related Assets:
Table 1:
Roads & Related Asset Service Area Inventory
Table 2:
Roads & Related Assets - Replacement Costs by Asset
Table 3:
Roads & Related Assets - Asset Condition Ratings
Table 4:
Standard PCI Rating Scale
Table 5:
Roads & Related Assets Remaining Useful Life
Table 6:
Levels of Service - Roads & Related Assets
Table 7:
Roads & Related Assets - Asset Management Lifecycle Strategies
Table 8:
Road & Related Assets Lifecycle Associated Costs - Delivering Current
Levels of Service, existing assets
Figure 1:
Roads & Related Assets Service Area - Replacement Cost by Asset Class
Figure 2:
Roads & Related Assets - Distributed Condition and Replacement Cost
Figure 3:
Road Class Pavement Conditions
Figure 4:
City of Peterborough Road System
Figure 5:
Bridges & Culverts Condition Rating Descriptors
Figure 6:
City of Peterborough Pedestrian Network
Figure 7:
10-Year Forecasted Performance for Maintaining Levels of Service -
Roads & Related Assets
Service Area Attachment #2: Stormwater
Table 1:
Stormwater Service Area Asset Inventory
Table 2:
Stormwater - Replacement Costs by Asset Class
Table 3:
Stormwater - Asset Condition Ratings
Table 4:
Stormwater Remaining Useful Life
Table 5:
Levels of Service - Stormwater
Table 6:
Stormwater - Asset Management Lifecycle Strategies
Table 7:
Stormwater Services Lifecycle Associated Costs - Delivering Current
Levels of Service, existing assets
Figure 1:
Stormwater Service Area - Replacement Cost by Asset Sub-Class
Figure 2:
Stormwater - Distributed Condition and Replacement Cost
Figure 3:
Storm Sewer System
Figure 4:
10-Year Forecasted Performance for Maintaining Levels of Service -
Stormwater Services
Service Area Attachment #3: Wastewater
Table 1:
Wastewater Service Area Asset Inventory
6
Table 2:
Wastewater - Replacement Cost by Asset Sub-Class
Table 3:
Wastewater - Asset Condition Ratings
Table 4:
Wastewater Remaining Useful Life
Table 5:
Levels of Service - Wastewater
Table 6:
Wastewater - Asset Management Lifecycle Strategies
Table 7:
Wastewater Services Lifecycle Associated Costs - Delivering Current
Levels of Service, existing assets
Figure 1:
Wastewater Service Area - Replacement Cost by Asset Sub-Class
Figure 2:
Wastewater - Distributed Condition and Replacement Cost
Figure 3:
Wastewater System
Figure 4:
10-Year Forecasted Performance for Maintaining Levels of Service -
Wastewater Services
Service Area Attachment #4: Transit
Table 1:
Transit Service Area Asset Inventory
Table 2:
Transit - Replacement Costs by Asset Sub-Class
Table 3:
Transit - Asset Class Condition Ratings
Table 4:
Transit Remaining Useful Life
Table 5:
Levels of Service - Transit
Table 6:
Transit - Asset Management Lifecycle Strategies
Table 7:
Transit Services Lifecycle Associated Costs - Delivering Current Levels of
Service, existing assets
Figure 1:
Transit Service Area - Replacement Cost by Asset Class
Figure 2:
Transit - Distributed Condition and Replacement Cost
Figure 3:
Peterborough Transit Routes
Figure 4:
10-Year Forecasted Performance for Maintaining Levels of Service -
Transit Services
Service Area Attachment #5: Solid Waste Management
Table 1:
Solid Waste Management Asset Inventory
Table 2:
Solid Waste Management - Replacement Costs by Asset Class
Table 3:
Solid Waste Management - Asset Class Condition Ratings
Table 4:
Solid Waste Management Remaining Useful Life
Table 5:
Levels of Service - Solid Waste Management Service Area
Table 6:
Solid Waste Management - Asset Management Lifecycle Strategies
Table 7:
Solid Waste Lifecycle Associated Costs - Delivering Current Levels of
Service, existing assets
Figure 1:
Solid Waste Management- Replacement Cost by Asset Class
Figure 2:
Solid Waste Management- Distributed Condition and Replacement Cost
Figure 3:
10-Year Forecasted Performance for Maintaining Levels of Service - Solid
Waste Management
7
Service Area Attachment #6: Community Housing
Table 1:
Community Housing Service Area Asset Inventory
Table 2:
Community Housing - Replacement Costs by Asset Class
Table 3:
Community Housing - Asset Class Condition Ratings
Table 4:
Community Housing Remaining Useful Life
Table 5:
Levels of Service - Community Housing
Table 6:
Community Housing - Asset Management Lifecycle Strategies
Table 7:
Community Housing Lifecycle Associated Costs - Delivering Current
Levels of Service, existing assets
Figure 1:
Community Housing Service Area - Replacement Cost by Asset Class
Figure 2:
Community Housing- Distributed Condition and Replacement Cost
Figure 3:
10-Year Forecasted Performance for Maintaining Levels of Service -
Community Housing
Service Area Attachment #7: Recreation
Table 1:
Recreation Asset Inventory
Table 2:
Recreation - Replacement Cost by Asset Sub-Class
Table 3:
Recreation - Asset Class Condition Ratings
Table 4:
Recreation Remaining Useful Life
Table 5:
Levels of Service - Recreation
Table 6:
Recreation - Asset Management Lifecycle Strategies
Table 7:
Recreation Services Lifecycle Associated Costs - Delivering Current
Levels of Service, existing assets
Figure 1:
Recreation - Replacement Cost by Asset Class
Figure 2:
Recreation- Distributed Condition and Replacement Cost
Figure 3:
10-Year Forecasted Performance for Maintaining Levels of Service -
Recreation Services
Service Area Attachment #8: Airport
Table 1:
Airport Asset Inventory
Table 2:
Airport - Replacement Cost by Asset Class
Table 3:
Airport - Asset Class Condition Ratings
Table 4:
Airport Remaining Useful Life
Table 5:
Levels of Service - Airport
Table 6:
Airport - Asset Management Lifecycle Strategies
Table 7:
Airport Services Lifecycle Associated Costs - Delivering Current Levels of
Service, existing assets
Figure 1:
Airport - Replacement Cost by Asset Class
Figure 2:
Airport - Distributed Condition and Replacement Cost
8
Figure 3:
10-Year Forecasted Performance for Maintaining Levels of Service -
Recreation Services
Service Area Attachment #9: Urban Forest
Table 1:
Urban Forest Asset Inventory
Table 2:
Urban Forest - Replacement Cost by Asset Class
Table 3:
Urban Forest - Asset Class Condition Ratings
Table 4:
Urban Forest Remaining Useful Life
Table 5:
Levels of Service - Urban Forest
Table 6:
Urban Forest - Asset Management Lifecycle Strategies.
Table 7:
Urban Forest Lifecycle Associated Costs - Delivering Current Levels of
Service, existing assets
Figure 1:
Urban Forest - Replacement Cost by Asset Class
Figure 2:
Urban Forest- Distributed Condition and Replacement Cost
Figure 3:
10-Year Forecasted Performance for Maintaining Levels of Service - Urban
Forest
Service Area Attachment #10: Social Services - Childcare Service Area
Table 1:
Peterborough Daycare
Table 2:
Peterborough Daycare Centre - Replacement Costs by Building Element
Classification
Table 3:
Peterborough Daycare Centre - Asset Condition Ratings
Table 4:
Peterborough Daycare Remaining Useful Life
Table 5:
Levels of Service - Child Care
Table 6:
Daycare Facility - Asset Management Lifecycle Strategies
Table 7:
Daycare Lifecycle Associated Costs - Delivering Current Levels of Service,
existing assets
Figure 1:
Peterborough Daycare Centre - Replacement Cost by Element
Figure 2:
Peterborough Daycare Centre- Distributed Condition and Replacement
Cost
Figure 3:
10-Year Forecasted Performance for Maintaining Levels of Service -
Daycare Services
Service Area Attachment #11: Arts, Culture & Heritage Service Area
Table 1:
Arts, Culture & Heritage Service Area Inventory
Table 2:
Arts, Culture & Heritage - Replacement Costs by Asset
Table 3:
Arts, Culture & Heritage - Asset Condition Ratings
Table 4:
Arts, Culture & Heritage - Remaining Useful Life
Table 5:
Levels of Service - Arts, Culture & Heritage
Table 6:
Arts, Culture & Heritage - Asset Management Lifecycle Strategies
9
Table 7:
Arts, Culture & Heritage Lifecycle Associated Costs - Delivering Current
Levels of Service, existing assets
Figure 1:
Arts, Culture & Heritage Service Area - Replacement Cost by Asset Class
Figure 2:
Arts, Culture & Heritage- Distributed Condition
Figure 3:
10-Year Forecasted Performance for Maintaining Levels of Service - Arts,
Culture & Heritage Services
Service Area Attachment #12: Information Technology Services
Table 1:
ITS Service Area Inventory
Table 2:
ITS Assets - Replacement Costs by Asset Class
Table 3:
ITS - Asset Condition Ratings
Table 4:
ITS Assets Remaining Useful Life
Table 5:
Levels of Service - Information Technology Services
Table 6:
Information Technology Services - Asset Management Lifecycle Strategies
Table 7:
ITS Lifecycle Associated Costs - Delivering Current Levels of Service,
existing assets
Figure 1:
ITS Service Area - Replacement Cost by Asset Class
Figure 2:
ITS - Distributed Condition
Service Area Attachment #13: Emergency Services
Table 1:
Emergency Services Inventory
Table 2:
Emergency Services - Replacement Costs by Asset Class
Table 3:
Emergency Services - Asset Condition Ratings
Table 4:
Emergency Services Assets Remaining Useful Life
Table 5:
Levels of Service - Fire Services
Table 6:
Levels of Service - Police Services
Table 7:
Emergency Services - Asset Management Lifecycle Strategies
Table 8:
Emergency Services Lifecycle Associated Costs - Delivering Current
Levels of Service, existing assets
Figure 1:
Emergency Services - Replacement Cost by Asset Class
Figure 2:
Emergency Services - Distributed Condition and Replacement Cost
Figure 3a:
10-Year Forecasted Performance for Maintaining Levels of Service -Fire
Services
Figure 3b:
10-Year Forecasted Performance for Maintaining Levels of Service -Police
Services
Service Area Attachment #14: Public Works
Table 1:
Public Works Inventory
10
Table 2:
Public Works - Replacement Costs by Asset Sub-Class
Table 3:
Public Works Assets - Asset Condition Ratings
Table 4:
Public Works Assets Remaining Useful Life
Table 5:
Levels of Service - Public Works
Table 6:
Public Works - Asset Management Lifecycle Strategies
Table 7:
Public Works Lifecycle Associated Costs - Delivering Current Levels of
Service, existing assets
Figure 1:
Public Works - Replacement Cost by Asset Class
Figure 2:
Public Works - Distributed Condition and Replacement Cost
Figure 3:
10-Year Forecasted Performance for Maintaining Levels of Service - Public
Works
Service Area Attachment #15: Administration Facilities
Table 1:
Administration Facility Inventory
Table 2:
Administration Service Area - Replacement Costs by Asset Sub-Class
Table 3:
Administration Facilities - Asset Condition Ratings
Table 4:
Administration Facilities - Remaining Useful Life
Table 5:
Levels of Service - Administration Facilities
Table 6:
Administration Facilities - Asset Management Lifecycle Strategies
Table 7:
Administration Facilities Lifecycle Associated Costs - Delivering Current
Levels of Service, existing assets
Figure 1:
Administration Service Area - Replacement Cost by Asset Class
Figure 2:
Administration Facilities - Distributed Condition and Replacement Cost
Figure 3:
10-Year Forecasted Performance for Maintaining Levels of Service -
Administration Facilities
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I.
Overview
This asset management plan (the Plan) supports and promotes evidence-based decision
making and the development of strategies to extend the lifecycle of assets while maintaining
services and reducing risks. The Plan benefits the City of Peterborough (the City) by looking
to the future and identifying the best places to invest limited dollars to provide the greatest
benefit to residents, visitors, and businesses.
The Plan reviews the growth and demand that the City is expected to meet based on the
City's approved Official Plan. Peterborough currently acts as a gateway to the cottage
communities, a commuter area to and from the GTA and a young adult hub due to post
secondary institutions. These features are expected to draw more people to the City in the
next 20 years. The expected growth has real implications on how the City will develop and
maintain its asset base.
Asset management requires an understanding of what we own, what services we are going to
deliver and how we are going to deliver it. To do this the Plan will review the current state of
the infrastructure, the levels of service (LoS) delivered, the strategies used to manage assets,
an assessment of levels of risk, and the funding sources used to finance these strategies. This
Plan is a living document and is intended to be monitored annually with full updates every five
years. This Plan includes the following fifteen (15) service areas:
Roads & Related assets
Stormwater
Wastewater
Transit
Solid Waste Management
Community Housing
Community Recreation
Airport
Urban Forest
Social Services - Day Care
Arts, Culture & Heritage
Public Works
Emergency Services - incl. Police and Fire Services
Information Technology Services
Administration
Potable water assets are owned by the City, however management of water assets, including
asset management planning activities are currently the responsibility of a separate Municipal
Service Corporation, Peterborough Utilities Company.
Incorporating green infrastructure assets, including natural assets, into asset management
plans is relatively new for many municipalities. The City of Peterborough incorporates some
enhanced green infrastructure assets into the existing Plan (e.g., wet/dry stormwater ponds,
street trees, park trees, parks and open spaces), however the co-benefits and services
provided through an 'ecosystem' lens is not fully quantified and accounting practices for
addressing natural assets are evolving. Staff are currently working on updating the
1
green/natural asset inventory which will assist in defining processes and methodologies for
identification of assets, ownership boundaries, service(s) provided, condition, valuation
(replacement cost vs. restoration costs) and risk management.
II.
Plan Purpose
The asset management plan provides a means of guiding investment decisions to meet key
strategic and operational goals. It communicates how the City's assets will be managed to
achieve established service levels and targets. The Plan sets the foundation for making
informed decisions and prioritizing investments by using asset data and service level
objectives as evidence.
The Plan also:
Reports Council and stakeholder expectations related to asset management
Provides as a reference for Council, Commissioners, Directors, Managers, and other
City staff, the asset lifecycle activities currently in place to deliver services (operation,
maintenance, rehabilitation, replacement, disposal, etc.) and the levels of service with
current performance.
Provides the planned approach to maintain assets in accordance with service level
provisions, and the financial impacts to provide these services
Allows the City to meet legislative asset management reporting requirements
The City will continue to apply asset management principals and develop a comprehensive
asset management plan. This Plan will seek to prioritize investments over a 25-year period
with major updates every five years.
III.
Regulatory Asset Management Requirements
On December 27, 2017, under the Infrastructure for Jobs and Prosperity Act, 2015, the
Province enacted Ontario Regulation 588/17, Asset Management Planning for Municipal
Infrastructure. The regulation sets forth the following timelines:
2
3
Figure E1: Ontario Regulation 588/17 Requirements and Timeline
Strategic Asset
Management
Policy
(by July 1, 2019)
-Requires
municipalities to
outline commitments
to best practices and
continuous
improvements
Asset
Management
Plan: Phase 1
(by July 1, 2022)
-For CORE
ASSETS*
-Inventory of assets
-Current levels of
service measured by
standard metrics
-Costs to maintain
levels of service
Asset
Management
Plan: Phase 2
(by July 1, 2024)
-Builds out the Phase
1 plan to include
ALL ASSETS
Asset
Management
Plan: Phase 3
(by July 1, 2025)
-Builds on Phase 1
and 2 by adding
-Proposed levels of
service
-Lifecycle
management and
financial strategy
*Core assets are roads, bridges, stormwater and wastewater assets
The regulation also requires that every municipality's asset management plan be reviewed
and approved by the municipal council.
In 2016, the City's Asset Management Policy and Procedure was approved by Council
(Report USEC16-021) and complies with the regulation's requirements for the strategic asset
management policy, as shown in Figure E1 above.
The intention of the regulation is not only to implement best practice asset management
throughout the municipal sector but to also help municipalities better understand what
services need to be supported over the long term. It focuses on levels of service and
integrating lifecycle management, risk, and financial management to maximize the value on
investments and return on ratepayers' dollars.
IV.
Elements of the Plan
The 2024 Asset Management Plan provides details about the City's infrastructure (as of year-
end 2022), estimated at a total replacement value of $6.3 billion and contains the following
sections:
Executive Summary
Introduction
Levels of Service
State of Infrastructure
Asset Management Strategies
Financial Summary
Plan Improvement and Monitoring
Conclusion
Individual Service Area Attachments 1 though to 15 are included as part of this Plan in Section
9.0 - Service Area Attachments. The attachments contain detailed information specific to the
asset inventory, replacement costs, age, remaining useful life, condition ratings, current levels
of service, asset management lifecycle strategies and risk strategies.
Attachments 1 through to 15 contain specific service area details for the following types of
strategies:
Non-infrastructure solutions
Operations & Maintenance Activities
Renewal/Rehabilitation
Replacement
Disposals/Abandonment
Service Improvement Activities
Growth Activities
City staff will continue to refine asset management strategies and associated costs to meet
the new provincial asset management reporting requirements set forth in O. Reg 588/17.
The Plan's format aligns with the provincial "Building Together: Guide for Municipal Asset
Management Plans". The Plan is also consistent with:
Ontario Infrastructure for Jobs and Prosperity Act, 2015
Development Charges Act, 1997 (Consolidated 2023)
Requirements for the recording of Tangible Capital Assets (TCA)
The City's TCA Accounting Policy (Policy 009)
4
V.
Asset Management and Climate Change
The City applies several strategies to acquire, maintain, improve assets in a sustainable and
effective manner. This is important as municipalities face increasing challenges with managing
aging public assets in the face of increasing uncertainty from risks, including those related to
the impacts of climate change.
The City is committed to considering climate change when planning asset lifecycle activities
(e.g., design, maintenance, renewal, replacement, etc.). and is an important criterion in the
decision-making framework. Climate change is also taken into consideration when developing
proposed budgets and forecasts, when assigning useful lives and current replacement costs
of assets (for asset management planning purposes), and in the risk management plan.
VI.
Levels of Service
Overview
The City's core purpose is to provide services to stakeholders. Establishing levels of service
(LoS) and tracking over time is essential to measuring the success of service delivery and
asset management strategies.
When establishing levels of service, the following are taken into consideration:
Protecting and upholding public safety
Protecting the environment
Regulated/legislated requirements
Stakeholder expectations
Vulnerabilities and mitigation approaches to impacts of climate change
Level of service information provided in approved plans and studies
Levels of service reflect how the City delivers services from the perspective of the service user
(Stakeholder LoS) and from the perspective of service delivery (Technical LoS). This section
of the Plan includes information on current levels of service (both Stakeholder and Technical),
performance measures, and trends in service delivery.
In this iteration of the Plan, performance measures and targets are set to current levels of
service and will document performance trends against those measures. At a minimum,
legislated/regulatory levels of service will be reported and tracked as part of the levels of
service review.
Proposed levels of service (which may or may not differ from current levels of service), will be
discussed in future Plans and reported prior to the July 1, 2025 deadline as prescribed in the
asset management planning regulation O.Reg. 588/17.
5
Summary of Current Performance
The City currently meets all regulatory/legislated requirements relating to provision of
services. Performance compared to service areas previously reported in the 2021 Asset
Management Plan is mostly neutral but also indicates there were improvements made
towards achieving targets in some service areas.
Detailed information about service area levels of service and current performance can be
found in Section 9.0 - Service Area Attachments of the Asset Management Plan.
VII.
The State of the City's Infrastructure
The State of Infrastructure summarizes the quantity of assets in data inventories, provides a
replacement cost valuation of the assets, and summarizes the overall condition of each asset
or asset class.
This Plan seeks to answer the following questions of asset management pertaining to City
infrastructure:
What do we own?
What is it worth?
How old is it and what is the remaining useful life?
What is its condition?
What is the risk rating? (i.e., risk impact should the asset fail)
What do we own?
A consolidated list of assets included in the Plan can be found in Appendix A - Assets
Included in the Plan.
What is it worth?
The 2024 Plan currently includes fifteen (15) service areas with an estimated asset
replacement value of $6.3 billion. The highest valued service areas are Wastewater ($1.86
billion), Stormwater ($1.77 billion), and Roads & Related Assets ($1.45 billion). Of of the total
estimated current replacement value of City assets (estimated $6.3 billion), 80% (estimated
$5.1 billion) are classified as "core" assets (Wastewater, Stormwater and Roads & Related).
Figure E2 and Table E1 below summarizes the total asset replacement value by service area.
6
Figure E2: Asset Replacement Value by Service Area
Replacement Value by Service Area:
($Millions)
Total: $6,307M
Arts, Culture
& Heritage,
$65, 1%
Solid Waste
Management,
$57, 1%
Administration
, $56, 1%
Public Works,
$45, 1%
Information
Technology
Services (ITS),
$10, 0%
Social Services -
Daycare, $1, 0%
Wastewater,
$1,863, 29%
Stormwater,
$1,767, 28%
Roads & Related
Assets, $1,446,
23%
Community
Housing, $326,
5%
Community
Recreation,
$227, 4%
Urban Forest,
$169, 3%
Transit, $115, 2%
Airport,
$92, 1%
Emergency
Services, $66,
1%
7
Table E1: Total Asset Replacement Value by Service Area
Service Area
2023 Replacement Value
($Millions)
Wastewater (core asset class)
$1,863
Stormwater (core asset class)
$1,767
Roads & Related Assets (core asset class)
$1,447
Community Housing
$326
Community Recreation
$227
Urban Forest
$169
Transit
$115
Airport
$92
Emergency Services
$66
Arts, Culture & Heritage
$65
Solid Waste Management
$58
Administration
$56
Public Works
$45
Information Technology Services (ITS)
$10
Social Services - Daycare
$1
Total Asset Replacement Value*
$6,307
*May not add due to rounding
What is the Age and Remaining Useful Life?
A requirement of asset management planning is determining the remaining useful life of an
asset based on generally accepted life spans for a given asset. It is important to note, that the
age profiles are strictly based on the calculated age of the assets unless otherwise noted. The
original useful life span of a given asset can be extended through maintenance and
betterments. This process can extend the asset's ability to deliver a service beyond its original
life span.
Service area age and remaining useful life details can be found within the respective service
area attachments in Section 9.0 of this Plan.
What is the Condition?
The state of the City's assets is a snapshot in time and uses a blend of age-based data and
observed data. Based on the total asset replacement value, approximately 79% ($5.0 billion)
of the City's assets are considered to be in fair condition or better.
The City significantly invests in ongoing capital programs to maintain existing assets in
acceptable condition and to deliver services at sustainable levels. Some of the capital
programs planned over the 10-year forecast include a collector and local streets pavement
preservation program with a total project cost estimated at $50.6 million, an underground
storm and sanitary pipe CCTV inspection program with an estimated total project cost of $21.1
million, a fleet and equipment replacement program with a total cost estimated at $22.9 million
8
and a sidewalk reconstruction program with an estimated total project cost of $5.9 million.
Without these ongoing investments, it would be expected that levels of service would notably
start to decline over the long-term, exposure to risk would increase along with increased asset
treatment costs.
Figure E3 below shows the distributed condition ratings and total replacement values of City
owned assets included in this 2024 Plan.
Where assets may be rated poor or very poor (approximately $1.3 billion or 21% of the City's
total asset replacement value), the City ensures that these assets will not represent a hazard
or pose a health and safety risk. Generally, these are assets that may not be performing as
intended. For example, a road segment considered to be in very poor condition would
typically require significant resurfacing treatment or asphalt replacement. This does not mean
the road is 'unsafe' for use, it means the road is not providing the same level of service and
ride quality as a road rated in fair condition would provide.
9
Figure E3: Overall Distributed Asset Conditions and Replacement Value
ASSET CONDITION DISTRIBUTED BY
REPLACEMENT VALUE ($MILLIONS)
TOTAL $6,307M
Very Good,
$2,416, 38%
Good, $1,360,
22%
Fair, $1,185,
19%
Poor, $852, 13%
Very Poor, $493,
8%
As noted above, an estimated 21% of assets with a replacement value of $1.3 billion are in
poor to very poor condition. To maintain established service levels and achieve performance
targets, significant investments within the next decade will be needed to avoid further
deterioration and/or possible service disruptions.
It is also important to understand that without applying the right treatment at the right time,
options typically become more costly. Where lower cost treatments, such as road resurfacing,
would significantly improve road surface conditions, not applying this treatment soon enough
would result in requiring full asphalt replacement, and at a higher cost. Lifecycle activities,
including treatment options are further discussed within individual service area attachments.
What is the Risk Rating?
The City has used a risk rating methodology to assign a risk score to each asset included in
the asset management plan. The risk ratings are composed of two factors: asset condition
and consequence of failure. The asset condition informs the likelihood that an asset will fail,
and the consequence of failure informs the impact resulting from the failure. In addition to the
asset condition, other asset information, such as size and material, was considered when
assigning a risk score where possible. The consequence of failure of an asset is assessed on
a 5-point scale that evaluates the impacts on the environment, society, finances, and
reputation. It is important to understand that high-risk assets are those with high
10
consequence of failure and high likelihood of failure (where likelihood is based on asset
condition).
The value of high-risk assets in this Plan is an estimated $1.2 billion (19% of total City asset
replacement value).
Of the $1.2 billion, an estimated asset replacement value of $795 million are rated poor and
very poor, with $489 million (62% of total asset value in poor and very poor condition) being
Roads and Related, Stormwater, and Wastewater assets.
Figure E4 below shows the overall distribution of high-risk assets by condition and
replacement value.
Figure E4: Distributed Condition and Replacement Value of High-Risk Assets
OVERALL DISTRIBUTED CONDITION AND
REPLACEMENT VALUE OF HIGH RISK ASSETS
($MILLIONS)
TOTAL $1,208
Very Good, $14,
1%
Good, $184,
15%
Fair, $215, 18%
Poor, $371,
31%
Very Poor,
$423, 35%
High-risk assets that are most critical to service delivery should be prioritized. Where asset
conditions continue to deteriorate, the risks to service delivery increases. With adequate
investment levels, risk exposure is minimized, and the probability of service interruptions are
lowered.
Currently, the Roads & Related Assets, Wastewater, and Stormwater service areas comprise
of the largest portion (by replacement value) of high-risk assets in poor or worse condition.
The City seeks to prioritize high-risk asset investment needs whenever feasible.
11
VIII.
Future Demand and Emerging Challenges
There are several factors, challenges and trends that influence demand. Also known as
demand drivers, these can significantly impact the services delivered by the City of
Peterborough. Some examples of demand drivers include (but are not limited to):
Changing population
Changing demographics
Stakeholder service priorities
Aging assets
Climate Change
Legislation/Regulation
Changing technologies
Land use planning
Understanding the drivers and challenges that impact levels of service is a key step in
forecasting and managing demand. Demand drivers may change the City's requirements for
acquisition, operation, maintenance, renewal, or disposal of assets. Demand drivers impact
the type of services that are delivered, which directly impacts the type of assets needed to
deliver these services. The City reviews demand drivers through various strategic planning
studies, development charges studies, etc. and considers options on how demand drivers will
be affordably managed.
Some options (other than the acquisition/construction of new assets) that may be considered
to manage demand include (but are not limited to):
Sharing of services with other local boards, agencies and municipalities
User fees/pricing
Service hours of operation
Restrictions of use (e.g., seasonal use of bridges or roads)
Incentives for services (e.g., on/off peak times service charges for parking)
Awareness/education to efficiently and effectively use services the City provides (e.g.,
plans that inform on stormwater management, energy reduction strategies, GHG
reduction strategies)
Provision of alternative services (e.g., encouragement of using public transit or other
methods identified in transportation demand management studies)
It is also important to understand demand drivers and the potential risks they may pose, e.g.,
climate change. Effects of climate change poses significant risks to both assets and the
services they provide and will need to be managed and monitored by the City regularly. High
level risks and associated impacts to the City's ability to effectively deliver services are
discussed within the individual Service Area Attachments. The City is working towards
developing an Integrated Infrastructure Risk Management Plan in which the identification and
management strategies of demand drivers and associated risks are better understood and
documented.
12
IX.
Financial Summary
Asset funding is often a complex process drawing from several revenue sources. The funding
for the City's programs strives to maximize the use of external funding to limit the burden on
taxpayers and ratepayers. However, ageing assets and population demographic changes will
create a need to replace and expand the current asset base and requires adequate funding.
What is the Financial Shortfall?
The financial shortfall represents the unavailable renewal funding for lifecycle activities
required to deliver current levels of service. Where a shortfall is identified, management
strategies to balance service levels, costs and risks will be considered by staff and Council
and incorporated into future plans when possible.
In this Plan, investment needs are the estimated lifecycle activity costs for all service areas
reported in this Plan. These are based on a 10-year planning period and considers lifecycle
costs, investments required to meet growth demands and to achieve 100% established levels
of service.
The anticipated budget - is represented by the historical 3-year lifecycle costs funded in the
City's capital budget. With the assumption that there will not be any significant impacts to
revenue sources, this will be used as a baseline to calculate the financial shortfall.
The emphasis of the asset management plan is to communicate the
consequences and risks that the shortfall may have on the services
provided so that decision making is informed
For the service areas reported in this Plan, the annual lifecycle needs (averaged over 10-
years) for existing assets and needs related to growth demands is an estimated $252.4
million. The anticipated annual budget (estimate for forecasted expenditure) is $117.8 million,
leaving an average annual shortfall of $134.6 million (as shown in Figure E5 below). With the
City expected to experience increased demands such as growth, increased extreme weather
events and growing asset inventories etc., without intervention, levels of service are likely to
decrease over the long-term planning period.
13
Figure E5: 2024 Financial Shortfall
Renewal Needs and Funding Gap
Total Renewal Needs: $252M
Anticipated
Budget, $118,
47%
GAP, $135, 53%
The City is currently implementing a variety of strategies to effectively address the increasing
capital investment needs and the financial shortfall. Some of the key strategies include:
1. A Debt Management Policy and Capital Financing Plan to assist in financing capital
works as presented in report CPFS12-011 Debt Management and Capital Financing
Plan, (April 4, 2012) and amended through Report CLSFS23-033 (August 14, 2023)
2. Implementation of the City's approved Asset Management Policy and Procedure and
Asset Management Plan which together provide guidance for capital budget planning
through asset management principles
3. Review current levels of service for all service areas. Council approved metrics that
measure the expected performance of delivering levels of service will influence
prioritization of investments during the budget deliberation process.
4. Expand on the use of the existing multi-criteria analysis technique for prioritizing capital
projects for all service areas. The analysis technique is intended to consider a range of
qualitative and quantitative criteria and reflect the social, cultural, economic, and
environmental characteristics of a project's purpose. This process provides
transparency to critical/high priority investments and will support planning capital
investments with the greatest cost benefit while balancing an acceptable level of risk.
5. Analyze and weigh benefits of maximizing existing revenue sources vs. the provision of
current service levels. The City's ability to afford the current service levels will need to
be examined in more detail to ensure sustainability or, if necessary, a reduction in
14
service levels is the more achievable option to avoid increases to user fees or
increased property taxes.
X.
Managing the Risks
Some of the overarching service area risks associated with the City's ability to deliver
established service levels include:
Insufficient funding levels
Insufficient staffing and resources to implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe weather
instances, increased demands due to growth)
Acquisition of new assets
Impacts associated with above risks include:
Further/accelerated asset deterioration
Increased backlog of work
Service interruptions due to poor asset conditions
Increased treatment costs
Changes to the level/degree of required asset treatment, requiring increased
resources/costs (i.e., maintenance now needing replacement)
Planned budget/needs forecast not reflective of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Staff are working on developing a more detailed risk register in which risk identification, risk
impacts, risk treatment plan and costs, and residual risk ratings will be documented in the
asset management plan.
XI.
Next Steps
1.
The City is collaboratively working towards refining its asset management practices as
well as aligning them with the ISO 55000 series of standards. Additionally, the City will
work towards ensuring reporting requirements set forth in regulation O. Reg 588/17
Asset Management Planning for Municipal Infrastructure are satisfied by the stipulated
timelines.
2.
Staff will consult with the community to refine and evaluate Levels of Service and
associated costs.
3.
Complete standardized condition assessments of assets currently without inspected
condition and regularly update existing assessments.
4.
Develop comprehensive LoS Policy and Procedure.
5.
Develop Asset Risk Management Policy and Procedures, which will improve
probability assumptions used to determine risk ratings and implement consequence
rating system procedures that are data driven
15
6.
Enhance considerations of Climate Change and Sustainability risks
7.
Improve the Optimized Decision-Making process including a policy and procedure.
8.
Use the Plan to drive capital investment priorities.
9.
Monitor progress of strategies and recommendations from AMP.
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17
-
1.0
Introduction
The services the City of Peterborough delivers depends on effectively managed assets. The
effective management of these assets
has a significant impact on the ability for
the City to deliver services.
Incorporating an 'asset management
lens' into the decision-making process
involves the understanding of levels of
service, cost of service, and risk, as
depicted in Figure 1-0.
Managing the assets requires activities
such as planning, purchasing,
construction, maintenance, rehabilitation,
and disposal. In order to continue to
deliver the services stakeholders and
businesses depend on day-to-day. The
City must make the right investments at
the right time in the right assets.
Effective
Decision-
Making
Understanding
Costs and
Budget
Understanding
Levels of
Service
Understanding
Risk
Figure 1-0: Asset Management Lens and Decision-
Making
1.1 City of Peterborough Goals
The Official Plan states that 'Peterborough is a prosperous community, distinctive in its natural
beauty, cultural heritage and strong sense of community. As a leader in environmental
sustainability, growth in Peterborough uses infrastructure and land efficiently, promotes
healthy lifestyles and incorporates green initiatives. The City will continue to develop as a
complete, resilient and connected community that provides a high quality of life, supports a
strong and diverse economy and promotes a unique, vibrant sense of place. Peterborough is
equitable and accessible for all residents and visitors and celebrates its engaged, inclusive
and diverse community'.1 The City's Official Plan further details the City's goals for growth
and outlines the steps needed to meet them.
The Strategic Plan2 states that the Peterborough 2050 vision as 'build a future-ready City with
a forward-looking, contemporary community, thriving in creativity and a modern economy.
The Peterborough of tomorrow will be bold, innovative, progressive, caring, vibrant, inclusive,
prosperous, and sustainable, a place that respects its past, heritage, culture, and readily
embraces its future with excitement and renewed vigor. Leading today for tomorrow will
ensure our City's fair share of respect and economic growth, locally as well as globally.' The
Strategic Plan further details the four (4) strategic priority pillars:
Growth & Economic Development
1 City of Peterborough, City of Peterborough Official Plan, (Adopted April 2023),
2 City of Peterborough Strategic Plan 2023-2050, (Approved April 2023)
18
Infrastructure
Community & Wellbeing
Governance & Fiscal Sustainability
These pillars lay the foundation for the development of business and work plans for City
departments as well as act as guiding beacons to achieve the Peterborough 2050 vision.
This asset management plan is intended to support these visions, goals and objectives of both
the Official Plan and Strategic Plan.
1.2 Relationship with Other Corporate Planning Documents
The Plan considers the goals of several planning documents including the Official Plan and
the City of Peterborough Strategic Plan, as well as other various master plans. Information
gathered from these documents are included in the assessments and prioritization of asset
investments and when defining level of service measures and targets.
Additionally, the Plan contains information that integrates with the budgeting process. The City
presents the current year committed funding for both the operating and capital budget. A
projected four-year, nine-year, and 24-year forecast is proposed for capital and 'other' capital
projects only. The Plan is intended to influence budgets through various asset management
strategies and processes such as, but not limited to, evaluating against defined levels of
service measures and targets, risk assessment, alignment with climate change
adaptation/mitigation strategies, etc.
1.3 The Plan Scope
For a list of service areas and assets included in the 2024 asset management plan, see
Section 8.0 - Appendices, Appendix A - Assets Included in the Plan
Refer to Section 9.0 of this Plan for the complete service area analysis that discuss the
following:
Asset inventory
Replacement cost
Asset condition and remaining useful life
Risk analysis
Levels of service
Asset management strategies and associated risks
The asset management plan excludes assets owned by other organizations that are funded
by the City; however, all organizations are encouraged to align with the Plan's strategies
where feasible.
The Plan is based on data as of December 31, 2023 and uses a lifecycle model to forecast
renewal needs and other investment needs over a 10 and 25-year planning period. The long-
term planning period used is intended to align with master plans and Development Charge
Study forecasts and to inform the sustainability of the City's assets and services.
19
1.4 Council Presentation and Approval
To maintain visibility, transparency and accountability, the Plan including the state of
infrastructure report will be updated and reported to council for approval annually, following
the final phase implementation of O.Reg. 588/17 in 2025, and fully re-evaluated every five
years. If during this timeframe, significant changes occur that will impact the asset
management plan, an interim review may be undertaken. A proposed timeline for the Plan
and related documents is shown in the table below.
20
Table 1-0: Asset Management Related Documents and Updates
Document
Frequency of Update
Asset Management Policy and Procedure
Asset Management Plan
Reviewed every five years as required
Annual review with full re-evaluation
every 5 years
State of Infrastructure Report
Annual update with full re-evaluation
every 5 years
Capital and Operating Budget
Annually
1.5 Developing the Plan
The Council approved Asset Management Policy and Procedure outlines how a constant and
reliable asset management plan and effective budget will be delivered. The asset
management workflow (Figure 1-1), which includes the asset management plan, is delivered
with employee involvement as shown in (Figure 1-2) below.
21
Figure 1-1: Asset Management Workflow
22
Figure 1-2: Employee Involvement in Workflow Stages
This Plan is developed by utilizing best available information until full implementation of the
workflow shown above is applied. The City is working towards fully implementing the asset
management workflow to effectively deliver the asset management plan as well as deliver
services in a sustainable and transparent manner. Steps to achieve this are detailed in
Section 7.0 - Plan Improvement & Monitoring.
23
1.6 Assumptions and Limitations of the Plan
Key assumptions or limitations made in developing this Plan are documented below. Most
assumptions were noted as comments or footnotes throughout the document to show areas
where improvements are most required for future iterations of the Plan.
With further developments in the City's asset management program such as policies,
procedures, full integration of all asset and data collection templates many of these
assumptions will be minimized or eliminated in the future.
Table 1-1: Assumptions and Limitations of the Plan
Assumption
Level of
Confidence
Data Used
Comment
Assets 'useful
life/remaining useful
life' used as proxy
for condition when
actual condition
rating unavailable
Low
Useful life/remaining
useful life of assets
are based on Public
Sector Accounting
Board (PSAB) 3150
Asset Register or
based on
recommendations of
subject matter expert.
Misrepresents actual
condition and does not
account for
maintenance activities
that extend useful life
of the asset
Remaining service
life reflects actual
conditions
Intermediate
Expected useful life
from PSAB 3150
asset register is used
to calculate remaining
useful life. Current
age is based on
install date, not
'observed age' for
most assets.
Updated BCA's use
observed age for
facility assets.
Unless otherwise
stated in the Plan, or
when recommended
by City staff, the age
of the assets used are
calculated and not
based on 'observed
age', unless an
updated BCA is
completed for a
facility.
Consequence of
Failure scores are
accurate
Intermediate
Manually applied
consequence score
for many assets.
Provides a very
conservative
consequence estimate
Fleet condition is in
better condition than
useful life data
High
Useful Life from TCA
register
Fleet maintenance
program greater than
recommended
preventative
maintenance program
by Original Equipment
Manufacturer (OEM)
Information
technology
equipment/asset
condition ratings are
accurate
Low
Condition ratings
have been assigned
using age/service life
as proxy in funding
model. This is due to
not having a
Information
Technology Service
(ITS) Area reports
condition of assets
based on age which
resulted in significant
24
Assumption
Level of
Confidence
Data Used
Comment
formalized condition
assessment
methodology
implemented. IT
assets are in better
condition than
calculated age-
condition rating.
value of assets in
poor/very poor. ITS
staff provided high
level
recommendations on
actual condition of
assets for
consideration which
provide more accurate
condition (good).
Guardrail condition
data from 2009
remains accurate.
Visual assessments
only to update
replacements
Low
Visual images used
to update 2009
assessment.
Accurate for capturing
replacements since
2009 only.
Trails inspections
and roads
inspections are
similar in nature
High
Condition
assessment program
is managed through
the Paver pavement
management
software system.
Pavement
management software
system is robust and
captures defects that
apply for trails.
Treatment
equipment was not
inspected in
Wastewater
treatment building
inspections
Intermediate
Historical MP2
database and
Megamation
Databases.
If treatment equipment
is part of the database,
it is in large rolled up
groups that cannot be
broken down for
reporting in this report.
MP2 database has all
assets separated.
Wastewater
treatment asset
inventory updated to
year end 2023
Intermediate
SOI data from
previously approved
AM Plan (2021) has
been updated to
reflect actual
inventory and
condition.
Treatment data is in
the process of being
fully re-evaluated in
detail and will be
included in future
iterations of the Plan.
Assets with
unknown installation
dates built at same
time as nearby
assets
Intermediate
City age polygon from
GIS
Generally accurate for
engineered assets but
not very accurate for
'green' assets
Asset register is
complete and at
useful level of
granularity
Low
Data used to develop
asset register is
based on best
available information
Pooled assets are not
at the level of
granularity best for
lifecycle analysis and
25
Assumption
Level of
Confidence
Data Used
Comment
and may use pooled
assets to ensure the
scope of assets in
each service area are
captured
forecasting costs.
Pooled assets may
inflate annual renewal
needs as the whole
replacement cost is
reported in one given
year.
Risk analysis on a
5-point scale for
likelihood and
consequence
provides enough
granularity for
assessment
Intermediate
Matrix provided in
Section 2.0 State of
Infrastructure
May overestimate risk
due to a basic
consequence matrix
being used to assign
risk scores. Risk
bands in the matrix
provide broad
measures to compare
against.
Customer values
understood from
previous
engagement
activities
Intermediate
Workshops with
service area
management team
Not all service areas
have had recent public
engagement to
understand desired
service levels.
Renewal needs are
based on current
(performance)
condition of assets.
Intermediate
Most recent condition
assessment data
and/or age and useful
life as a proxy for
condition
Condition data may
not be up-to date or
accurate, particularly
for assets that used
age as a proxy for
condition.
Underestimates needs
for most service areas.
Camera and other
equipment for
CCTV inspection
fleet not included in
fleet cost
Low
PSAB 3150 Asset
Register
Investigation into
equipment for CCTV
required. Currently not
accounted for in the
Plan
Annual financial
shortfall includes
the complete cost of
implementing all
asset management
strategies
Low
Renewal activities
and associated costs
have had in-depth
review however other
lifecycle activities and
associated costs use
existing approved
capital budget as
baseline.
New
budgeting/accounting
hierarchy structure is
required to do
accurate 1:1
comparison of lifecycle
activities and related
costs. Hierarchy
structures are being
investigated to track
these costs.
26
Assumption
Investment needs
are aligned with
budget forecast
Level of
Confidence
Low
Data Used
Data to calculate
investment needs is
for existing assets
and only assumes
RUL and/or condition
rating
Comment
The investment needs
are based on the
inventory used to
calculate SOI, and not
necessarily what is
submitted by
department managers
for budget reviews.
Anticipated level of
funding in 10-year
forecast is accurate
Low
Three-year historical
average of previously
approved capital
budget used as
anticipated level of
funding for financial
strategy section
Currently, capital
budgets are only
approved for the
current year and does
not have committed
funds to proposed
projects beyond
current year.
1.7 Continuing Evaluation and Improvement
Asset management practices are constantly evolving and improving. An effective Plan will
note the areas that can be improved and the steps that will be taken to make improvements.
These areas may be where data used was not strong objective data or required assumptions.
Improvements will also include the identification of any data gaps and a plan to fill those gaps.
Beyond raw data improvements, LoS measures will be limited to the primary service provided
by the asset. A plan to identify more comprehensive service measures is in development.
While developing these service measures the current service level will be our current target.
There is the need to improve the alignment of financial planning and asset management
planning. A corporate asset management communication plan is proposed to be developed in
which asset management plans, policies and procedures that define how we will align such
activities can effectively be communicated to internal and external stakeholders.
27
2.0
State of Infrastructure
2.1
Overview
The development of the state of infrastructure (SOI) includes not only an assessment of
physical condition, but also the capacity where available. The SOI considers the risk of asset
failure by considering the likelihood an asset will fail and the consequence of that failure.
The SOI seeks to review services rather than assets. This means that the report often
assesses assets that are owned and managed by different departments to provide a single
service. This Plan contains the analysis of the following service areas:
1. Roads & Related Assets
2. Stormwater
3. Wastewater
4. Transit
5. Solid Waste Management
6. Community Housing
7. Community Recreation
8. Airport
9. Urban Forest
10. Social Services - Daycare
11. Arts, Culture & Heritage3
12. Information Technology Services (ITS)
13. Emergency Services (Police and Fire Services)
14. Public Works
15. Administration
2.2
Condition Ratings and Weighted Methodology
A standardized 5-point rating scale has been utilized to assign scores to assets. The following
table shows the rating scale range and letter grading system used for assigning condition
scores, including using an age-based rating methodology.
Table 2-0: 5 Point Scale for Rating Asset Condition
Condition Rating
(Likelihood)
Score
Percent Life
Consumed
Grade
Very Good
5
10%
A
Good
4
50%
B
Fair
3
80%
C
3 Heritage is currently within the City's Planning Department but included as part of the ACH Service Area
Attachment for grouping of assets with similar services.
28
Poor
Condition Rating
(Likelihood)
Score
2
Percent Life
Consumed
100%
Grade
D
Very Poor
1
>100%
F
Facility Condition Index
The Facility Condition Index (FCI) is a standard facility management benchmark that is used
to assess the current and/or projected needs of a facility. It is defined as the ratio of the
required renewal costs to current replacement value of the facility. The calculated ratio is
compared to an FCI scale as follows:
0%-5% = Good
5%-10% = Fair
10%-20% = Poor
Greater than 20% = Very Poor
The City calculates FCI's based on the three-year projected needs rather than using only the
current year needs. This ensures that the overall facility rating is not based on a single high
dollar capital project needed in the current year and takes into consideration mid-term needs
for a better reflection of the state the facility is in. For this AMP, FCI's are used as a
performance measure for Levels of Service for each relevant service area with facility assets.
Unless otherwise stated in the Plan, facilities with complete and up-to-date condition
assessments will use observed age of the inspected building element at the time of
assessment as a proxy for condition ratings.
Weighted Average Methodology
A weighted average methodology using replacement costs of assets has been used to
compare varying asset types more easily (e.g. a linear asset to a non-linear asset). By
applying this methodology, the overall service area condition rating is influenced more by
assets with the greater cost, as these represent a greater liability to the City should they not
be performing as intended or are nearing failure.
2.3
Trend Scoring System
Trends have been assessed where SOI have been previously documented. The following
table shows the system used for assessing trends.
Table 2-1: Trend Scoring System
Trend
Symbol Meaning
Improving
Condition grade improvement from previous grades.
Neutral
Condition grade remained the same from previous grades.
29
Declining
Condition grade degraded from previous grades.
N/A
N/A
Condition grade has not been assessed more than once.
The trend development compares the condition grade from previous assessments to the
current assessment. This process is a raw comparison. It does not consider changes to data
collection process or improvements of data quality. It does consider new assets, updated
inspections and expansion of a service.
2.4
Risk Analysis
Every asset has a risk of failure. To measure risk the likelihood of asset failure must be
considered against the consequence of failure. The table shown below (also in Appendix B)
provides a guideline by which the asset consequence of failure score was assigned:
Table 2-2: Consequence of Failure Scoring System
Consequence
Description
Score
Minimal
No noticeable damage to environment and/or
society, no injuries, not a nuisance, no time
delays, little to no known fines, no media
attention
5
Minor amount of damage to environment or
society, less than a few or very minor injuries,
easy work around, limited delays, small fines, no
media attention
4
Moderate
Some damage to environment or society, a few
injuries or minor injuries, work around available,
some delay, subject to fines or investigation,
possible media attention
3
Damage to environment or society, several
injuries (varying degrees), work arounds are not
easy to implement, large delays, large fines and
investigation, local media attention
2
Catastrophic
Major damage to environment/society, life
threatening injuries or death, work arounds are
not possible or time consuming and costly, major
delays, legal action, large fines, major
investigations, national media attention
1
Using the product of the likelihood of asset failure score and the consequence of failure score,
the asset is placed within a risk category using the ranges shown in the chart below:
30
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
By evaluating risk, the City of Peterborough can develop a deeper understanding of the state
of the infrastructure along with impacts of failures. The City continues to refine risk
management strategies and implement a more consistent risk-based approach. The City owns
an estimated $1.0 billion worth of high-risk assets.
2.5
Asset Valuations
As a part of Public Sector Accounting Board (PSAB) 3150, all departments were required to
develop an asset register. This register required basic asset information such as the historical
purchase or construction costs. Since historical record keeping varied on the level of details,
many assumptions were required.
The current replacement costs (where current construction costs are not available) are
evaluated by escalating the historical cost based on inflation. The actual replacement costs of
assets in this Plan include soft costs and assumes that the replacement considers current
technologies and enhancements available today.
2.6
Age and Useful Life
PSAB 3150 accounting requires the City to report the age of the assets and the expected
useful life of assets. The expected useful life for the PSAB 3150 relates to the period of time
that the City will apply depreciation to the assets. This also helps the City to build reserves for
asset replacement over the life of an asset.
In practice, assets often are well beyond their accounting useful life.
Improvements in maintenance and operational practices have also
contributed to extending the useful life of the City's assets
For older assets where acquisition (e.g. donation, constructed, purchased) data is not
available, the age of the asset was assumed to be at the time of the historical growth patterns
of the City. Sub-asset classes were assumed to be purchased at the time of initial construction
of the asset class.
31
The useful life of assets is assumed using engineering best practices and the current
institutional knowledge of the time. These values are not regularly updated and are applied to
all assets of a similar type.
Assuming condition using useful life often shows asset conditions in worse condition than the
formal condition assessments. Over time the City will improve condition inspection programs
to include additional service areas.
32
33
2.7
Overview of the Corporate SOI
The current SOI for the services covered in this plan is summarized in Table 2-3 and shown
by service area in Table 2-4. Detailed state of infrastructure information for each service area
can be found in Section 9.0- Service Area Attachments.
Table 2-3: SOI Overview
City of Peterborough State of Infrastructure Summary
Valuation
Average Condition
(by Replacement $)
Trend
$6.3 Billion
Good (B)
Table 2-4: Service Area Condition and Replacement Value4
Service Area
Overall
Condition
Replacement
Value
($M)
Wastewater
Good (B)
$1,863
Stormwater
Good (B)
$1,767
Roads & Related Assets
Fair (C )
$1,447
Community Housing
Poor (D)
$326
Community Recreation
Fair (C )
$227
Urban Forest
Fair (C )
$169
Transit
Fair (C )
$115
Airport
Good (B)
$92
Emergency Services
Fair (C)
$66
Arts, Culture & Heritage
Good (B)
$65
Solid Waste Management
Fair (C)
$58
Administration
Fair (C)
$56
Public Works
Good (B)
$45
Information Technology Services (ITS)
Good (B)
$10
Social Services - Daycare
Very Good (A)
$1.0
Total Replacement Value*
$6,307
*May not add due to rounding
2.8
Condition Assessments
Over the years, the City's condition inspection program has been growing to capture more of
the core assets such as facilities, pipes, manholes, etc. and continues to capture regulated or
legislated assets such as wastewater treatment assets and sidewalks. These inspection
programs have formal standards based on engineering best practices and regularly scheduled
updates. Where visual condition assessments have not been completed, the age of the asset
has been used to assume the physical condition of the asset.
4 Total replacement values may not add up due to rounding
2.7
Overview of the Corporate SOI
The current SOI for the services covered in this plan is summarized in Table 2-3 and shown
by service area in Table 2-4. Detailed state of infrastructure information for each service area
can be found in Section 9.0- Service Area Attachments.
Table 2-3: SOI Overview
Citv of
Valuation
Peterborough State of Infrastructure Summarv
$6.3 B illion
Average Condition
b Re lacement $
Good (B)
Table 2-4: Service Area Condition and Re ?@ABCDCEF GA@HCI
Service Area
Wastewater
Stormwater
Roads & Related Assets
Community Housing
Community Recreation
Urban Forest
Transit
Airport
Emergency Services
Arts, Culture & Heritage
Solid Waste Management
Administration
Public Works
Information Technology Services (ITS)
Social Services - Daycare
Total Re_placement Value*
*May not add due to rounding
2.8
Condition Assessments
Overall
Condition
Gooa (B)
Good (B)
Fair (C)
Poor (D)
Fair (C)
Fair (C)
Fair (C)
Good (B)
Fair (C)
Good (B)
Fair (C)
Fair (C)
Good (B)
Good (B)
Trend
y
Replacement
Value
($Ml
$1,863
$1,767
$1,447
$326
$227
$169
$115
$92
$66
$65
$58
$56
$45
$10
$1.0
$6,307
Over the years, the City's condition inspection program has been growing to capture more of
the core assets such as facilities, pipes, manholes, etc. and continues to capture regulated or
legislated assets such as wastewater treatment assets and sidewalks. These inspection
programs have formal standards based on engineering best practices and regularly scheduled
updates. Where visual condition assessments have not been completed, the age of the asset
has been used to assume the physical condition of the asset.
4 Total replacement values may not add up due to rounding
33
2.9
Limitations of the SOI
The City is currently working towards improving fixed asset reporting through the upgrade of
the Enterprise Resource Management software. The City is also pursuing the development of
a formal data governance policy and procedure to create clear lines of communication around
data ownership, collection and maintenance practices.
The asset management group has reviewed the current state of asset management and is
working through a plan to improve all asset management practices at the City. These
programs and projects will all contribute to the improvement of the development of the asset
management plan and state of infrastructure data.
3.0
Levels of Service (LoS)
3.1
Overview
The City's levels of service review depicts City services delivered from the perspective of the
service user (Stakeholder LoS) and from the perspective of service delivery (Technical LoS).
The measures included in this Plan are fluid and may be revised in future iterations of the Plan
where applicable. In 2019, the City acquired a community engagement platform where internal
and external stakeholders are able to provide input on municipal topics, such as performance
on level of service delivery. Determining sustainable levels of service is the key to successful
asset management as it allows the City to meet the needs of stakeholders in a low-risk and
cost-efficient manner.
For the purpose of this report, each service area will have a service objective statement that
describes the service offered by the City, a stakeholder value/service attribute and at least
one technical and one stakeholder level of service for each of the major service areas.
Technical measures relate to the City's delivery of a service while stakeholder level of service
measures show the service from the perspective of citizens and businesses.
3.2
Current Levels of Service and Performance
In this iteration of the Plan, the levels of service and targets will be set to current performance.
The Plan will also include required legislated/regulatory levels of service and measures in
addition to previously established levels of service. For core assets, current reported
qualitative descriptions and technical metrics are in accordance with those set forth in O. Reg
588/17 Asset Management Planning for Municipal Infrastructure. In the future, targets will be
set and measured using a formal procedure. Levels of service analysis for each service areas
can be found in detail in Section 9.0 of this Plan.
34
3.3
Trends in Service Delivery
Levels of service objectives are typically supported by one or more key performance
indicators or measures that help quantify the services being delivered. The table below
summarizes the overall trend in how the City is performing against defined targets and
provides a brief description of what performance measure is not being met when a level of
service has not met its objective. Full details are found in the service area attachments.
35
36
Table 3-0: Current Service Area Levels of Service Trends
Service Area
Asset Class
Target Achieved
Comments
Roads &
Related Assets
Roads-ROW
Currently, 21% of local roads are in poor or better condition (target of minimum 50%)
Currently 84% of streetlight inventory has had low energy retrofit (target of 100%)
Municipal
Structures
Stakeholder and Technical LoS performance measures are currently being met
Active
Transportation
Network -
Sidewalks
Stakeholder and Technical LoS performance measures are currently being met
Active
Transportation
Network - Trails
Currently only 84% of the population is 400m from a trail (target of 90%)
Stormwater
Management
Currently 17% of properties resilient to 100-yr storm, where buildings are not impacted by
flooding (target of 21%)
Currently 94% of conveyance assets are in poor or better condition (target of 100%) and 81% of
SWM assets are in poor or better condition (target of 100%)
Conveyance
Wastewater
Treatment
Currently 86% of treatement assets are in fair or better condition (target of 100%)
Effluent occurances were outside target parameters
Conveyance
Currently 97% of conveyance assets are in poor or better condition (target of 100%)
Quantities of serviced parcels is increasing however not all (target of 100%) parcels are
serviced.
Current ratio of 163 connection days: 26,082 serviced parcels (target of zero connection days:
current parcels serviced).
Table 3-0: Current Service Area Levels of Service Trends
Service Area
Roads &
Related Assets
Stormwater
Wastewater
Asset Class
Roads-ROW
Municipal
Structures
Active
Transportation
Network
Sidewalks
Active
Transportation
Network - Trails
Management
Conveyance
Treatment
Conveyance
Target Achieved
X
X
X
X
X
Comments
-
Currently, 21% of local roads are in poor or better condition (target of minimum 50%)
-
Currently 84% of streetlight inventory has had low energy retrofit (target of 100%)
-
Stakeholder and Technical LoS performance measures are currently being met
-
Stakeholder and Technical LoS performance measures are currently being met
-
Currently only 84% of the population is 400m from a trail (target of 90%)
-
Currently 17% of properties resilient to 100-yr storm, where buildings are not impacted by
flooding (target of 21 % )
-
Currently 94% of conveyance assets are in poor or better condition (target of 100%) and 81% of
SWM assets are in poor or better condition (target of 100%)
-
Currently 86% of treatement assets are in fair or better condition (target of 100%)
-
Effluent occurances were outside target parameters
-
Currently 97% of conveyance assets are in poor or better condition (target of 100%)
-
Quantities of serviced parcels is increasing however not all (target of 100%) parcels are
serviced.
-
Current ratio of 163 connection days: 26,082 serviced parcels (target of zero connection days:
current parcels serviced).
36
Service Area
Asset Class
Target Achieved
Comments
Transit
Fleet
Fleet: 14% of vehicles past their useful life (target of max. 10%)
Facilities: 2 out of 3 facilities with an overall condition rating of 'Fair' (target of 3 facilities)
Facilities
Solid Waste
Fleet
Fleet: Currently 50% of vehicles are past their useful life (target of 10%)
Facilities: Currently 1 facility with a Facility Condition Index of 10% (poor) or better (target of 2)
Facilities
Community
Housing
Facilities
Currently 1,848 households seeking placement (target of less than 1000)
Facilities: 84% of all community housing facilities with Facility Condition Index of 10% (poor) or
better (target 100%)
Recreation
Arenas and Rec.
Facilities
Facitliy: Current provision of 1 ice surface to 16,730 population (target of 1 ice surface to 11,000
population)
Facility: Current provision of 1 indoor pool to 83,651 population (target of 1 indoor pool to 25,000
population)
Fleet: 52% of fleet current replacement value in poor or better condition (target of 100%)
37
Service Area
Asset Class
Target Achieved
Comments
Parks
Average ratio of neighbourhood parts to current population is 0.76ha/1,000 (target of 1ha/1,000
population).
Average ratio of outdoor pool facilities to current population is 1:83,631 (target of 1:25:000
population)
Average ratio of splash pads/wading pools is 1:9,295 (target of 1:7,500 population)
43 neighbourhood parks not meeting minimum design standards (target of all parks meeting
min. design standards)
70% of parks amenity assets in poor or better condition (target of 100%)
Airport
Facilities
Annual energy use intensity is 1.23 GJ/m2 (target of 0.86 GJ/m2 or less)
Urban Forest
Trees
2207 service requests processed and reviewed (target of minimum 2,
700)
94% of tree inventory is in poor or better condition (targetof 100%)
Social Services
- Daycare
Facility
Stakeholder and Technical LoS performance measures are currently being met
Arts, Culture &
Heritage
Facilities
Libraries
Currently 0.3 gross square feet/capita (target of 0.8 - 1.25 gross square feet/capita)
Museum &
Heritage
Annual energy use intensity of 0.83 GJ/m2 (target of 0.41 GJ/m2 or less)
Art Gallery
Ratio of galleries to current population is 1 facitlity : 83,651 population (target of 1 facility :
45,000 population)
Annual energy use intensity is 1.34 GJ/m2 (target of 0.41 GJ/m2 or less).
38
Service Area
Asset Class
Target Achieved
Comments
Information
Technology
Services (TS)
Equipment
Stakeholder and Technical LoS performance measures are currently being met.
Emergency
Services
Fire Services
Facilities: Fire supression incidents are within NFPA response travel time - Target of 90%
Fire Station 1: 86%
Fire Station 2: 71%
Fire Station 3: 95%
Facilities: 3 facilities in overall condition of fair or
better (target of 4 facilities)
Facilities: Annual energy use intensity is 1.10 GJ/m2 (target of 0.66 GJ/m2 or less)
Fleet: 25% of fleet (apparatus and first response) vehicles past their useful life (target of less
than 5%)
Police Services
Facilities: Facility parking needs are not being met for staff and service vehicles
Facilities: Annual energy use intensity is 1.05GJ/m2 (target of 0.66 GJ/m2 or less)
Public Works
Fleet, Facilities
Fleet:
36% of vehicles past their useful life (target of max 10%)
20% of machinery and equipment past their useful life (target of max. 10%)
Facilities: Annual energy use intensity is 2.39GJ/m2 (target of 0.86 GJ/m2 or less)
Administration
Facilities
Parking needs of staff at City Hall and Provincial Court House are not being met
Annual energy use intensity of 210 Wolfe St is 1.23 GJ/m2 (target of 0.87 GJ/m2)
39
4.0
Asset M
anagement Strategy
4.1
Overview
The City of Peterborough has adopted several strategies to maintain and deliver LoS;
however, some of these strategies have been developed in an ad-hoc fashion based
on expert knowledge of the area and what works in the context of the City. These have
not been formally documented. The strategies involve a wide range of corporate
involvement across several departments to coordinate staff and funding.
An Optimized Decision-Making strategy has been initiated but will be developed as a
part of the City's Asset Management Road Map previously approved by council. This
strategy will formalize how investments are made to maintain services and optimize
spending while reducing risks across the corporation.
4.2
Asset Lifecycle Strategies
Asset lifecycle strategies seek to optimize the life cycle of assets to improve service
and minimize risk at an appropriate level of investment. The strategy includes several
processes that are dependent on life cycle stage, condition, ability to meet service
targets and available operational and capital budgets. Strategies seek to combine
projects where feasible to share resources and reduce the instances of negatively
impacting other assets or services and lower overall cost of ownership.
The strategy for each service area will consider:
Non-infrastructure Solutions
Maintenance Activities
Rehabilitation/Renewal Activities
Replacement Programs
Disposal/Abandoning Policies
Service Expansion Programs
Future Strategies in development/investigation
This section will also discuss the potential risks should the strategy fail to meet or
improve condition or service targets. Service area asset management strategy details
and associated risks can be found in Section 9.0 of this Plan.
4.3
Procurement Methodologies
The City's Procurement By-law outlines the different types of procurement processes,
including co-operative purchasing, that may be used for the acquisition and disposal of
goods and services such as request for proposals, request for tenders, request for
formal quotations, pre-qualifications, etc. The purpose of the By-law is to ensure the
following:
40
To ensure openness, accountability and transparency while protecting the
financial best interests of the City of Peterborough.
To maximize savings for taxpayers.
To ensure service and product delivery, quality, efficiency and effectiveness.
To encourage competitive bidding for the acquisition and disposal of goods and
services where practicable.
To ensure fairness among bidders.
To encourage the procurement of goods and services with due regard to the
preservation of the natural environment; to this end, a Supplier may be selected
to supply goods made by methods that are environmentally friendly and
sustainable and where practicable, incorporating recycled materials; and
To provide City staff, which have purchasing responsibilities, clear direction on
the policy to be followed.
4.4
Asset Management Strategies and Climate Change
Commitment to Climate Change
Climate change impacts all community and corporate sectors, with each containing
varying levels of unique vulnerabilities and exposure to climate risks. Developing asset
management strategies for high at-risk assets is necessary to reduce the risk of
incurring potential catastrophic losses to built and natural infrastructure. Introducing
mitigation and adaptation policies within corporate assets can significantly reduce
greenhouse gas (GHG) emissions and improve asset resiliency against climate risks.
Integrating mitigation and adaptation strategies simultaneously reduces the impact of
future risks from climate change and contributes to the efficient management of asset
lifecycles. This can be achieved by developing holistic plans targeting assets and asset
management approaches that are both adaptive and mitigative, which accelerates
achieving both interrelated climate change goals, as seen in Figure 4-1.
41
Figure 4-0: Mitigation and Adaptation Strategies
Mitigation
Cycling Network
Composting
Public Transit
Low Carbon Fleet
Landfill Methane Capture
Renewable Energy
Energy Efficienct Buildings
Low Carbon Energy Systems
Co-benefits
Urban Forests
Resilient
Buildings
Green
Development
Policies
Water &
Energy
Adaptation
Stormwater Management
Natural Heritage Protection
Emergency Prepardness
Infrastructure Upgrades
Splash Pads & Beaches
Cooling Centres
Green Infrastructure
Source Water Protection
The City officially embarked on taking action against climate change in December
2016, when City Council approved Report CSD16-031, thereby adopting a Climate
Change Action Plan (CCAP) for the community and corporate sectors. The CCAP
established an initial GHG emissions reduction target of 30% below the 2011 baseline
by 2031. Following the Federation of Canadian Municipalities' Partners for Climate
Protection framework, the CCAP sets a course to reduce local contributions to climate
change and prepare municipalities for present and expected changes due to our
shifting climate. The corporate CCAP identifies nine strategies with 45 specific actions
addressing how buildings, water and sewage infrastructure, solid waste, streetlighting,
and the fleet will achieve the 30% target.
In September 2019, the City of Peterborough declared a climate emergency and
upgraded the emission target to 45% GHG reduction by 2030 and net-zero by 2050.
To support the modified GHG emission goal, the declaration affirmed the adoption of
using a climate change lens to verify all corporate actions and policies to enable
reaching the revised target. Furthermore, additional climate actions are slated to be
developed to facilitate the accelerated timelines and emission goals.
42
4.4.1 Climate Change & Asset Management Integrated Policies
The City of Peterborough has striven to entrench climate change considerations into
corporate operations and asset planning. Adaptation approaches are being
incorporated concurrently within multiple bodies of work to address climate risk within
community and corporate assets and strategizing plans to lower additional risks, as
evident in the following documents:
Official Plan 2021-2051,
Community Climate Change Resiliency Strategy; and
Watershed Planning Study.
Moreover, to lessen the inherent vulnerabilities of community and corporate assets
from climate disruptions caused by unmitigated global GHG emissions are supported
through corporate mitigation policies and plans. These bodies of works advance GHG
emissions reductions from assets and contribute to lowering corporate assets being
sources of emissions. The following are key documents that target GHG reductions
from community and corporate assets:
Official Plan 2021-2051,
Corporate Energy Management Plan 2019-2023; and
Climate Change Action Plan.
Official Plan 2021-2051
The new Official Plan (OP) provides direction and guidelines for the community to
2051 and has been embedded with many adaptation and mitigation policies throughout
the plan. Multiple sections in the OP include direct and indirect adaptation and
mitigation objectives to support mainstreaming climate action. Furthermore, climate
change is addressed explicitly in section 5.7 of the OP with the vision to,
"In the face of a changing climate, the City recognizes the need to adopt climate change
mitigation and adaption measures to enhance the resiliency of its built and natural
environments. The intent of this Plan is to support energy efficiency, improved air quality,
reduced greenhouse gas emissions and climate change adaption through sustainable
land use patterns and the integration of green infrastructure." - 5.7.a, OP (2021)
The OP encourages a multisectoral approach to improving community and corporate
resiliency and mitigation outcomes through the following strategies:
Active travel and transit focused neighborhoods,
Promoting zero and low carbon built forms,
Expanding the utilization of renewable and alternative energy systems,
Sustainable land-use planning and implementing low-impact developments,
Increasing the role of green infrastructure for m
itigation and adaptation,
Protect and enhance natural heritage features, especially assets that have
hydrological or ecological functions,
Incorporating adaptation plans for all capital planning projects; and
43
Monitoring GHG emissions and strategizing reduction.
Community Climate Change Resiliency Strategy
In 2020, the Community Climate Change Resiliency Strategy (CCCRS) was finalized
that identified local vulnerabilities and risks associated with the changing local climate.
The CCCRS is intended to be a guiding document to be further refined and integrated
within corporate operations and capital programs. The strategy seeks to reduce
climate vulnerabilities by addressing the following adaptation themes:
Reducing flood risk and protecting water qualit
y and quantity from changing
climate and extreme weather,
Reducing damage and/or disruptions to infrastructure due to extreme weather
and improving the safety of travel on roads and sidewalks,
Protecting and enhancing natural heritage, tree canopy, natural vegetation,
and wildlife from extreme weather and climate-related risks; and
Integrating climate change into municipal decision-making processes that
inform t he way Peterborough is planned, developed, used, restored and
maintained.
The CCCRS dovetails with asset management planning by recognizing that asset
lifecycle activities can be directly impacted by extreme weather conditions fuelled by
the changing climate. Asset management planning can utilize the adaptation themes of
the CCCRS to inform how planning, acquisitions, maintenance schedules, asset
renewals, and monitoring schedules can be implemented to support new and existing
asset lifecycles.
Watershed Planning Study
The Watershed Planning Study is intended to characterize the urban watershed to
inform how the impacts of extreme weather will affect the built and natural
infrastructure in Peterborough. Modelling the watershed will reveal how varying climate
extremes will impact assets and levels of services. The study has five overarching
goals to protect, support, and enhance the watershed within the city boundaries are as
follows:
Minimize flood risks to infrastructure,
Support natural channel morphology and protect against erosion and
sedimentation,
Prevent eutrophication and algae growth,
Protect drinking water supply; and
Protect, restore, and enhance the integrity of the watershed ecosystem t hrough
an integrated approach of natural areas, habitats, and connected links.
The Watershed Planning Study will guide land-use and water management practices,
natural infrastructure restoration targets, and best practices for water quality and
quantity to inform asset management planning for at-risk assets in the city.
44
Corporate Energy Management Plan 2019-2023
In 2014, the City adopted the Corporate Energy Management Plan (CEMP) mandated
by the Province of Ontario through Ontario Regulation 507/18. The CEMP objectives
were to encourage energy efficiency and staff awareness combined with establishing a
target of 5% energy intensity (ekWh/ft2) reduction below the 2013 baseline by 2018 for
all non-wastewater treatment facilities. The original plan was superseded with a
revised CEMP containing new energy reduction goals and targeted a 10% energy
intensity reduction below 2018 levels. The objectives of the updated CEMP are as
follows:
Introduce climate lens reporting to review all new corporate project's impact on
GHG emissions,
Develop energy training for staff to support energy usage reduction goals,
Undertake a multi-division facility GHG reduction pathway study to understand
the budgetary and technological requirements needed to achieve significant
emission savings before 2050. This study is intended to explore some of the
following topics:
o Strategies to lower natural gas consumption for heating and domestic hot
water heaters to reduce GHG emissions,
o Solar photovoltaic and solar thermal opportunity mapping to support the
introduction of zero-carbon energy sources,
o Examine corporate phantom electricity loads and plan for decreasing
usage; and
o Investigate alternatives to traditional lighting to reduce electricity demand
during daytime operating hours at facilities.
The CEMP is a leading document to support facility management planning to improve
building energy efficiency and reduce associated energy GHG emissions. The CEMP
also seeks to protect the City against the rising fuel cost attributed to the federal
carbon tax that will increase throughout this decade. Asset management strategies can
further boost the CEMP goals by targeting equipment renewals for high efficiency and
by adopting low or no carbon energy systems during lifecycle activity updates instead
of replacing like-for-like equipment.
Climate Change Action Plan
In 2016, the corporate Climate Change Action Plan (CCAP) was adopted that targeted
a 30% reduction in GHG emissions by 2031. The CCAP developed a multiple sector
strategy to realize its mitigation goal with the following actions:
Institutionalize energy efficiency and low-carbon thinking into the corporation,
Enhance operational efficiency of existing buildings,
Build municipal facilities to ensure high environmental performance,
Improve the environmental performance of existing municipal facilities,
Utilize renewable energy sources,
45
Transition the municipal fleet to be more efficient and less carbon-emitting,
Enhance operation efficiency of the water services system,
Improve the energy efficiency of the streetlighting system; and
Reduce the amount of organic waste generated through municipal operations.
Incorporating asset management strategies within the CCAP actions can improve
many outcomes, such as implementing lifecycle equipment renewals that target energy
efficiency and low or no carbon energy systems.
The CCAP has subsequently produced results that have lowered the energy
consumption and GHG emissions from corporate assets. These achievements are as
follows:
o
Conversion of all streetlights to LEDs has reduced energy consumption
by 52% and GHG emissions by 49 tCO2e,
o
In 2016, a solar photovoltaic array was installed onto the rooftop of
Kinsmen Arena that generates 530,000 kWh of electricity per year and
supplies 45% of the building's power annually,
o
Added synchronized traffic lights and conversion to smart signal lights to
improve traffic flow to reduce vehicle emissions,
o
Increased tree planting to expand the urban canopy to support
adaptation and mitigation efforts,
o
Replaced ice resurfacers with electrically powered equipment,
o
Added biogas digestor at the landfill to capture anaerobic organic
methane leaking from the landfill to lower GHG emissions and generate
renewable energy,
o
Upgraded nine facilities interior lighting systems with LEDs,
o
Implemented lighting motion sensors to reduce electricity usage,
o
Replaced community centre pool pumps with variable frequency drive to
lower energy use; and
o
Expanded waste diversion efforts at the landfill to collect reclaimable
items and divert hazardous material away from the landfill.
The CCAP has also initiated the following corporate projects that are in the
development phase that will reduce energy and GHG emissions:
Planned conversion of decorative streetlights to LEDs,
Development of Source Separated Organics/curbside green bin collection,
Construction of a net-zero emission fire station,
Planned installation of electric vehicle charging stations at facilities; and
Planned purchase of light-duty electric vehicles.
4.4.2 Climate Risk Analysis
The Federation of Canadian Municipalities (FCM) four-step climate asset management
framework is utilized to support integrating strategic decision-making to understand
46
corporate risks and impacts to levels of service from climate change. The framework
enables a municipality to identify how climate change will impact its ability to provide
municipal services and whether plans are in place to ameliorate losses to services or
assets. The framework assesses a municipality's corporate climate readiness on the
spectrum of identification, assessment, prioritization, and management. The FCM
developed separate frameworks for risk management (Table 4-1) and level of service
(Table 4-2) to distinguish between corporate service groups' climate readiness. The
City will continue to utilize the frameworks below to assess its current state and seek to
improve in areas identified.
Climate Risk Management Assessment
The framework for climate risk management contributes to understanding the state of
vulnerability of City services and assets from climate change hazards and identifying
planned or implemented strategies to improve resiliency (Table 4-0). Determining the
level of risk to services and assets will support decision-makers to prioritize additional
investments to reduce climate at-risk corporate service areas.
Table 4-0. FCM Climate Change Asset Management Risk Management Assessment
Framework
Identification
Assessment
Prioritization
Management
Confirming the
existing services the
municipality provides,
gathering regional
and local climate
change data, and
identifying potential
climate change
hazards.
Determining the
areas where the
community is the
most vulnerable
due to climate
change, looking
specifically at how
this could
compromise a
municipality's
ability to provide
services.
Exploring
potential
strategies to
mitigate or adapt
to climate
change risks.
Incorporating
climate change
strategies in
infrastructure
plans, programs
and budgets, and
monitoring
progress over time.
Question
Identification
Have all assets been identified to deliver the service?
Have the latest local climate projections been utilized to
determine future impact?
Have the implication of climate risks to asset been understood?
Has the identification of most likely asset climate hazards been
recognized?
Assessment
Has an asset risk assessment (consequence vs likelihood) been
completed?
Are controls in place to reduce risks from climate hazards?
47
Question
Has the impact of climate change on standards that inform f uture
infrastructure design been understood?
Prioritization
Has a management plan limiting impacts of climate risks to
assets been developed?
Has a proactive strategy to overcome climate risk impacts been
created?
Has a preferred strategy for addressing the highest asset risks
been selected?
Management
Has an asset management climate strategy been completed and
activated?
Has an evaluation of asset strategies in relation to its climate risk
been completed?
Levels of Service Assessment
Evaluating the level of service impacts from climate change follows a similar stepwise
pathway as climate risk management. This assessment seeks to understand if service
groups' capacity and municipal asset conditions can withstand climate stressors, in
addition to describing if strategies and implementation plans are in place to lower
potential disruptions to service (Table 4-1).
48
Table 4-1. FCM Climate Change Asset Management Level of Service Assessment
Framework
Identification
Assessment
Prioritization
Management
Documenting
existing services
provided to your
community and
identify the built
or natural assets
that enable
service delivery.
Identifying the level
at which your
municipality
currently provide
services and
commitments that
are expected to
meet; exploring
current and future
gaps in your ability
to provide services;
and assessing how
the municipality's
ability to provide
services may be
compromised
because of climate
change.
Exploring
strategies to
address current
and potential
future gaps in
levels of service
as a result of
climate change.
Incorporating climate
change strategies in
infrastructure plans,
programs and budgets,
and monitoring
progress.
Question
Identification
Are existing levels of services provided to the community
understood?
Have built and natural assets required to deliver t he
service been identified?
Assessment
Has the impact of climate change affecting service been
determined?
Have the implications to maintaining the current
performance service level in relation to climate hazards
been undertaken?
Have the most climate vulnerable areas of service been
identified?
Prioritization
Have strategies to address current and future gaps in the
level of services from climate impacts been created?
Has a preferred strategy for tackling the largest gap in
service been completed?
Management
Have climate risk management strategies been completed
and activated?
Has an evaluation of strategies in relation to its climate
risk been completed?
49
4.4.3 Strategic Facilities Planning
The Corporate Facilities and Energy Manager uses a Long-Term Strategic Facilities
Planning Tool to assess the condition and the life expectancy of the Municipality's
current facilities. Supported by energy audits and asset management, the tool provides
for a comprehensive and detailed overview of all electrical, mechanical and facility
components by life expectancy. This tool helps to populate the annual budget and
work plan for energy management and facilities planning. Furthermore, the City is
seeking funding to develop a greenhouse gas emissions reductions study for municipal
facilities to include the impacts of climate change in future facility planning.
4.5
Investment Priorities
Capital forecasting and the prioritization thereof play a key role to the City's annual
budget process particularly with the financial shortfall challenge. Projects proposed in
the capital budget are subject to an internal prioritization process using a two-tiered
review. Individuals involved in the initial review process include Department
Commissioners and Financial Services staff. The second review is completed by the
CAO, Commissioner of Corporate and Legislative Services, Manager of Financial
Services, Budget Analyst and individual Department Commissioners. After this second
review process, the budget is finalized and presented to Council for approval.
It is important to note that the review process is extremely fluid, however investment
priorities follow the direction set in the approved annual budget guideline and are also
focused towards projects that:
Are legislated requirements for services and infrastructure,
Maintain service levels that are expected by Council, the community, and the
asset management plan,
Are identified as part of the service area's lifecycle management strategies,
and;
Preserve the long-term financial health of the City.
The City has recently implemented a project prioritization tool that is intended to
support the capital budget review process. The tool will allow the City to score each
project proposed in the capital budget against each other using various criteria that
considers legislation, risk management, strategic planning, community benefits,
climate change and finance.
50
5.0
Financial Summary
5.1
Overview
This section of the Plan reviews operating investment needs, growth investment
needs, historical revenues, historical capital and operating expenditures, and the
lifecycle costs required to provide a level of service over a 10-year period. Unless
otherwise noted, amounts shown are budgeted amounts, not actuals.
Financial projections will be improved as the discussion of proposed levels of service
and asset performance matures. Various assumptions were made to determine the
lifecycle costs sourced from the City's capital budget and 10-yr forecast due to
departmental hierarchy and project costs not fully aligning to the type of asset and
lifecycle activities reported in this Plan.
5.2
Operating Investment Needs
The following section outlines the current and forecasted operational lifecycle costs to
maintain levels of service for the service areas reported in this plan.
Operating costs include those associated with the day-to day activities required to
provide the service such as general maintenance costs, preventative maintenance
costs, energy and utility costs, etc.
Table 5-0 summarizes the estimated operating costs by service area required to
deliver current levels of service over the 10-yr forecast. Values shown are based on
the current year budgeted values and are indexed 3% over the 10-year horizon.
51
Table 5-0: Operating Lifecycle Costs
Operating Lifecycle Cost Forecast
($000)
Service Area
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
Roads & Related
$13,149
$13,543
$13,949
$14,368
$14,799
$15,243
$15,700
$16,171
$16,656
$17,156
$17,671
Stormwater
$773
$796
$820
$845
$870
$896
$923
$951
$979
$1,009
$1,039
Wastewater
$17,268
$17,786
$18,319
$18,869
$19,435
$20,018
$20,618
$21,237
$21,874
$22,530
$23,206
Transit
$19,282
$19,860
$20,456
$21,070
$21,702
$22,353
$23,023
$23,714
$24,425
$25,158
$25,913
Solid Waste Management
$15,575
$16,043
$16,524
$17,020
$17,530
$18,056
$18,598
$19,156
$19,730
$20,322
$20,932
Community Housing
$3,919
$4,037
$4,158
$4,282
$4,411
$4,543
$4,679
$4,820
$4,964
$5,113
$5,267
Community Recreation
$3,385
$3,487
$3,591
$3,699
$3,810
$3,924
$4,042
$4,163
$4,288
$4,417
$4,549
Airport
$933
$961
$990
$1,020
$1,051
$1,082
$1,115
$1,148
$1,182
$1,218
$1,254
Social Services - Daycare
$2,318
$2,387
$2,459
$2,533
$2,609
$2,687
$2,768
$2,851
$2,936
$3,024
$3,115
Arts, Culture & Heritage
$6,339
$6,529
$6,725
$6,927
$7,135
$7,349
$7,569
$7,796
$8,030
$8,271
$8,519
Emergency Services
$48,868
$50,334
$51,844
$53,399
$55,001
$56,651
$58,351
$60,101
$61,905
$63,762
$65,675
Public Works
$632
$651
$670
$690
$711
$732
$754
$777
$800
$824
$849
ITS
$3,793
$3,906
$4,024
$4,144
$4,269
$4,397
$4,529
$4,665
$4,804
$4,949
$5,097
Administration Facilities
$2,127
$2,190
$2,256
$2,324
$2,394
$2,465
$2,539
$2,616
$2,694
$2,775
$2,858
Engineering, Construction & Public Works
- Pooled Assets - Roads, Wastewater,
Storm)
$3,407
$3,509
$3,615
$3,723
$3,835
$3,950
$4,068
$4,190
$4,316
$4,445
$4,579
Fleet (all service areas)
$350
$361
$371
$382
$394
$406
$418
$430
$443
$457
$470
Underground Services (Pooled Assets -
Wastewater, Stormwater)
$467
$481
$495
$510
$525
$541
$557
$574
$591
$609
$627
Parks and Forestry (Pooled Assets - Park
Amenities, Urban Forest)
$4,317
$4,446
$4,580
$4,717
$4,859
$5,004
$5,155
$5,309
$5,468
$5,633
$5,802
Total
$146,901
$151,308
$155,847
$160,522
$165,338
$170,298
$175,407
$180,669
$186,089
$191,672
$197,422
52
5.3
Growth Investment Needs
Based on the City's adopted Official Plan (November 2021) and the Growth Plan for
the Greater Golden Horseshoe, the City of Peterborough's projected residential
population will grow from a population of 83,000 in 2016 to 125,000 by 2051. It is
anticipated that the employment sector will grow from 45,000 jobs in 2016 to 63,000
jobs by 2051.
Adding to service demands, the City of Peterborough also provides services to the
surrounding townships within the County of Peterborough, where many County
residents commute to the City of Peterborough for work. The City's population also
fluctuates with post secondary enrolment in Trent University and Fleming College for
eight months of the year, as well as servicing the cottage community during the
summer months. These factors combined all play a significant role to the service
requirements for the City.
To accommodate residential growth, the City has annexed large plots of land, mainly at
the north, east and south boundary limits. These annexations have placed further
strain on the City's servicing needs where annexed residents are expecting full City
service.
In order to recover costs for development-related capital works, the City of
Peterborough levies two types of development charges (DC): Planning Area
development charges and City-wide uniform development charges. The City needs to
continue to levy DCs to help fund capital projects throughout Peterborough so that
development continues to be serviced in a fiscally sustainable manner.
Many of the assets in this Plan are captured in the Development Charges (Citywide
and Area Specific) study and By-law5 6 for growth. The By-law is generally based on
the findings from Secondary Planning Area Studies, the Transportation Master Plan,
and previous Development Charge (DC) By-laws. Consideration shall be given to the
City's growth targets provided by the province and applied to the DC study versus
achieved growth rates. This alone could have drastic impacts on the overall 'needs' of
the Plan. If the City does not meet the proposed growth, the overall need can likely be
reduced.
Table 5-1 illustrates that by 2033 the City will need to fund an additional estimated
$30.6 million (benefit to existing only) per year to properly fund the full lifecycle costs of
assets supporting the increased demand caused by growth. The growth-related capital
expenditures shown in Table 5-1 are based on the 2024 to 2033 growth horizon and
development needs identified in the DC bylaws. Costs beyond the planning horizon
identified in the DC Study have been estimated using an average of the first three
years of the forecast.
5 City of Peterborough & Hemson Consulting Limited, Citywide Development Charges
Background Study, (November 2019 as amended May 26, 2022)
6 City of Peterborough & Hemson Consulting Limited, Planning Area-Specific Development
Charges Background Study, (June 2017 as amended May 26, 2022)
53
Table 5-2 below summarizes the estimated increase in net operating costs that the City
will experience due to increases related to growth demands. Table 5-1 shows that by
2033, the net operating costs are estimated to increase by $50.7 million.
54
-
Table 5-1: Growth-Related Lifecycle Costs
Lifecycle Costs for Growth Related Demands
(2024-2033)
($000)
Annual Lifecycle Cost for Growth
2024-2033
Total
(10-yr)
Annual 10-Yr
Average
(BTE only)
Service Area
New Assets
Benefit to Existing
Library Services
$5,652
$4,230
$9,882
$423
Fire Services
$375
$9,892
$10,267
$989
Police Services
$2,547
$63,111
$65,658
$6,311
Recreation*
$3,191
$31,001
$34,192
$3,100
Parks
$13,576
$16,545
$30,121
$1,655
Public Works
$4,166
$13,417
$17,583
$1,342
Parking
$8,065
$25,646
$33,711
$2,565
Transit
$8,065
$25,646
$12,467
$813
Affordable Housing
$4,340
$8,127
$6,040
$544
Waste Management
$604
$5,436
$2,002
$192
Roads & Related Assets, City-Wide
Engineered Assets**
$79
$1,924
$453,150
$11,237
Wastewater Treatment
$340,781
$112,369
$4,774
$0
Wastewater Pumping Stations
$4,774
$
$1,778
$178
Stormwater/Wastewater Conveyance
$
$1,778
$4,015
$402
Stormwater Facilities
$
$4,015
$8,371
$837
Total
$388,147
$305,862
$694,401
$30,586
*Recreation includes arena facilities, Morrow Park, Peterborough Marina Building and Peterborough Sport and Wellness Centre.
**Includes growth related demands for Airport Service Area and Parking
55
Table 5-2: Operating Cost Impacts Associated with Growth-Related Demands
Cumulative Net
Operating Impacts
2024
($000)
2025
($000)
2026
($000)
2027
($000)
2028
($000)
2029
($000)
2030
($000)
2031
($000)
2032
($000)
2033
($000)
Library
$8
$8
$8
$8
$8
$8
$8
$8
$8
$8
Fire
$5,780
$5,780
$5,780
$5,780
$5,780
$5,780
$5,780
$5,780
$5,780
$5,780
Police
$
$
$
$
$33,750
$33,750
$33,750
$33,750
$33,750
$33,750
Recreation
$798
$798
$798
$1,298
$1,298
$798
$798
$798
$798
$798
Parks
$533
$633
$2,678
$2,703
$2,728
$1,281
$1,281
$1,281
$1,281
$1,281
Public Works
$258
$208
$208
$208
$208
$208
$208
$208
$208
$208
Parking
$1,229
$1,229
$1,229
$1,229
$1,229
$1,229
$1,229
$1,229
$1,229
$1,229
Transit
$6,481
$6,540
$7,061
$7,120
$7,180
$6,694
$6,694
$6,694
$6,694
$6,694
Engineered Services
Roads & Other City-
Wide Engineering
$788
$907
$1,032
$1,159
$1,287
$909
$909
$909
$909
$909
Net Operating
Impacts
$15,874
$16,103
$18,794
$19,505
$53,468
$50,657
$50,657
$50,657
$50,657
$50,657
56
5.4
Review of Historical Revenues and Historical Capital & Operating
Expenditures
Figure 5-0 and Table 5-3 provides the average values for the historical three-year
operating revenues by type (2021-2023). Values shown are gross revenues as per the
approved annual Budget Highlights books.
Table 5-4 shows historical expenditures (2018-2020) for capital and 'other' capital and
Table 5-5 shows historical operating expenditures. Operating expenditures include the
costs for maintenance and operation activities for service areas covered in this Plan.
The year-over-year increase is primarily due to inflation and additional asset inventory.
57
Figure 5-0: Three Year Average - Historical Operating Revenue by Type
3-YR HISTORICAL OPERATING REVENUES
$320M
PUC - Electric
Utilities
2%
Unclassified
revenue
0%
Net R
evenue
0%
Other Capital
Purposes
0%
Contribution from
Reserve
4%
Contributions
Capital levy
Reserve
0%
Contributions
From Capital Fund
1%
Municipal Taxation
47%
BIA
0%
Waste Water
Reserve Fund
6%
Payments in Lieu
1%
Ontario grants
22%
Canada grants
0%
County and Other
Municipal grants &
fees
3%
Fees, Service
Charges,
Donations
11%
Licenses &
Permits
0%
Fines
1%
Penalities &
Interest on taxes
0%
Investment
Income
2%
Transfers from
Own funds
0%
58
-
Table 5-3: Three Year Historical Operating Revenues by Type
Revenues by Type
2021
Approved
($millions)
2022
Approved
($millions)
2023
Approved
($millions)
3-Yr
Historical
Average
($millions)
Municipal Taxation
$143.5
$149.0
$156.1
$149.5
BIA
$0.3
$0.4
$0.4
$0.4
Wastewater Reserve
Fund
$19.1
$19.5
$20.4
$19.7
Payments in Lieu
$4.0
$4.2
$4.2
$4.1
Ontario grants
$66.3
$62.4
$79.9
$69.5
Canada grants
$0.1
$0.2
$0.2
$0.2
County and Other
Municipal grants &
fees
$9.7
$10.3
$10.5
$10.2
Fees, Service
Charges, Donations
$33.1
$34.6
$37.0
$34.9
Licenses & Permits
$0.4
$0.4
$0.4
$0.4
Fines
$2.2
$1.9
$1.9
$2.0
Penalties & Interest on
taxes
$0.7
$0.7
$0.8
$0.7
Investment Income
$4.9
$5.9
$7.2
$6.0
Transfers from Own
funds
$0.1
$0.1
$0.0
$0.1
PUC - Electric Utilities
$5.2
$5.2
$5.2
$5.2
Unclassified revenue
$0.2
$0.2
$0.2
$0.2
Net Revenue
$0.0
$0.1
$0.1
$0.1
Other Capital
Purposes
$0.1
$0.1
$0.4
$0.2
Contribution from
Reserve
$10.4
$12.2
$12.8
$11.8
Contributions Capital
levy Reserve
$0.0
$0.0
$1.0
$0.3
Contributions From
Capital Fund
$4.6
$4.1
$4.2
$4.3
TOTAL with Grants
$289.6
$294.6
$324.2
$319.7
The following Table 5-4 and Table 5-5 provide a breakdown of historical annual
expenditures for capital and 'other' capital projects and historical operating expenditures for
service areas that are reported in this iteration of the Plan. Values shown in Table 5-4 and
Table 5-5 are approved budgeted capital and operating expenditures. The City's Capital
Budget is categorized and reported by Department and Division.
59
Table 5-4: Historical Capital Expenditures for Existing Assets by Lifecycle Activity
Combined Tangible and Other
Capital Program Summary
2021
($millions)
2022
($millions)
2023
($millions)
3 Year
Average
($millions)
Non-Infrastructure Solutions
$13.1
$10.9
$15.1
$13.0
Operation and Maintenance Type
Activities
$4.4
$4.8
$2.4
$3.9
Renewal Activities
$48.3
$54.4
$60.0
$54.2
Disposal/Abandonment Policies
$0.1
$0.0
$0.2
$0.1
Service Improvement Activities
$14.7
$19.5
$38.3
$24.2
Total
$80.6
$89.6
$116.1
$95.5
Table 5-5: Historical Operating Expenditures
Expenditures
2021
Approved
($millions)
2022
Approved
($millions)
2023
Approved
($millions)
Personnel
$110.7
$115.6
$121.8
Contractual
$93.3
$93.4
$112.1
Materials, Supplies
$11.2
$11.1
$11.6
Repairs, Maintenance
$3.1
$3.6
$3.8
Debt Charges
$19.5
$20.5
$22.6
Fees
$9.9
$10.6
$10.6
Tax Write-offs
$1.7
$1.6
$1.5
Other Transfers
$20.0
$19.7
$21.2
Inter-departmental Charges
$21.7
$22.4
$26.0
New Equipment
$0.2
$0.2
$0.2
Rentals
$1.4
$1.5
$1.3
Travelling, Training
$1.6
$1.6
$1.7
Contributions to Reserves
$20.4
$21.8
$24.0
Transfer to FRMP from Capital Levy
$1.3
$0.8
$1.0
Transfer to FRMP WWRF
$2.5
$2.5
$2.5
Transfer to Capital Fund
$8.8
$9.3
$9.2
Recoveries
-$22.6
-$24.7
-$28.5
County Share
$0.2
$0.0
$0.1
Total
$304.8
$311.3
$342.8
60
5.5
Financial Strategy Methodology
The financial strategy was developed by completing an analysis on the City's current capital
budget forecast (2023-2033), and combining that with the City's lifecycle, risk and LoS
strategies to develop a 10-year investment forecast. The following sections detail the
methodology used to complete this analysis for the financial strategy.
The City's lifecycle models have been developed to account for asset condition-based
lifecycle strategies (rehabilitation and replacement), which is the driver for most capital
works that the City undertakes. Additional activities to meet Levels of Service (LOS) related
non-condition-based aspects of asset performance, including growth, performance and/or
climate change impacts can also be modelled. The City may seek to include non-condition-
based models into its overall lifecycle modelling strategy in the future.
5.5.1 Budget Analysis
The purpose of the budget analysis was to identify the different lifecycle costs for each of
the Service and Subservice areas. The projects in the City's approved capital budget were
used and categorized by lifecycle activity and asset hierarchy (where information was
available). Table 5-6 below shows the definitions of Lifecycle Activities used for the
analysis in this Plan.
Table 5-6: Lifecycle Activities
Lifecycle Activity
Definition
Non-Infrastructure Solutions
Actions or policies that can lower costs or
extend useful lives. Activities include
strategic plans, modelling, demand
analysis, etc.
Operations and Maintenance Activities
Costs to deliver the service. Including
regularly scheduled inspection and
maintenance or more significant repair and
activities associated with unexpected
events. For this AMP, the Capital Budget
was used as the source for operations and
maintenance type activity costs.
Renewal Activities (Rehabilitation and
Replacement)
Significant repairs designated to extend the
life of the asset.
Activities that are expected to occur once
an asset has reached the end of its useful
life and renewal/rehab is no longer an
option.
Disposals/Abandonment Policies
Activities associated with disposing of an
asset once it has reached the end of its
useful life or is otherwise no longer needed
by the City.
Service Improvement Activities
Planned activities to improve the asset's
capacity, quality, and system reliability.
61
Lifecycle Activity
Definition
New assets not related to growth would be
considered a service improvement.
Growth Activities
Planned activities required to extend
services to previously unserved areas or
expand services to meet growth demands.
Projects in the capital budget forecast that had multiple lifecycle activities were separated to
isolate the costs for each year. For example, if a $1 million project was split 70% growth
and 30% renewal then the first row would be categorized as growth and the remaining cost
of the project changed to $700K. An additional row would be added and categorized to
renewal with the cost at $300K. The same process was done for projects with multiple
Service, Subservice, or Asset Categories.
5.5.2 Asset Needs Forecasting
Asset needs forecasting combines the lifecycle models, levels of service (LoS) measures,
and risk management strategy in a decision support (DSS) model. The model has the
ability to forecast either asset performance (condition) or spending needs over a given time
horizon. This relationship between performance and spending needs is important to
understanding the costs associated to achieving various service level requirements. The
model allows the City to assess the resulting forecasted performance and related spending
over time to support decision making. The following figure illustrates an example of a
performance forecast graph.
Figure 5-1: Example Performance (Condition) Forecast Graph
0
50
100
Replacement Cost (%)
Very Good
Good
Fair
Poor
Very Poor
62
The graph can be interpreted as follows. Each of the bars in the figure represent the
condition distribution of a group of assets in a given year. The condition is distributed over
five (5) condition states: Very Good, Good, Fair, Poor and Very Poor. The City's LoS
measures are tied to asset condition through a condition-based measure. As the proportion
of assets in Very Poor condition decreases, the City's LoS improves. If this proportion of
assets is maintained, then so is the City's LoS.
Each performance forecast figure is paired with a spending graph. The following figure
provides an example spending graph.
Figure 5-2: Example Spending Graph
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
$-
$5
$10
$15
$20
$25
$30
$35
$40
$45
% of Assets Meeting LOS
Intervention Cost ($M)
The spending graph illustrates the amount of spending required over time to achieve the
given performance state. Each bar on the graph is the amount of spending required in a
given year to match that same year's performance (condition) distribution. Also on the
graph, represented by the right axis, is a line that indicates the percentage of assets
meeting LoS under this given scenario.
The City reviewed scenarios for the cost to maintain current levels of service, and the cost
to achieve 100% current established levels of service (Backlog Analysis).
The following subsection describes each scenario:
5.5.3 Forecast Scenarios
Scenario 1: Cost to Maintain Current Levels of Service
This scenario derives the cost that would be required to maintain current levels of service
over a 10-year f orecast period. This is performed by calculating the condition based LoS
for each asset group, which is represented as the percentage of assets meeting objectives
(i.e. not in very poor condition/past its service life). This percentage is maintained over the
63
forecast period, and the associated spending needs are calculated by the model.
Understanding the cost to maintain current LoS is a requirement of the July 1, 2024
milestone of O.Reg. 588/17.
For this iteration of the Plan, Service Area Attachments will report the renewal costs to
maintain current levels of service.
Scenario 2: Achieve 100% LoS Targets - Backlog Analysis
A second scenario that was completed as part of the asset needs forecasting is the backlog
analysis. This scenario derives the cost that would be required for the City to meet 100% of
its condition-based LOS measure. It represents the cost to complete all necessary lifecycle
activities on each asset at the appropriate time. It is referred to as a backlog analysis, due
to the fact that it often identifies a significant financial need in the first year of the analysis
(otherwise known as the backlog). This need represents the amount of outstanding asset
capital works that is currently required.
Note that this scenario is not necessarily intended to represent a practical plan that can be
enacted, but rather, it illustrates the theoretical upper limit of asset performance that can be
achieved, given an unlimited amount of funding. It may or may not be practical, given
available funding and LOS targets that the City may propose to achieve.
5.6
Results
5.6.1 Anticipated Funding Analysis
The summary of the Capital Budget Analysis by lifecycle activity is provided in Tabe 5-6
below. Costs shown are the historical three-year annual average from the City's capital
budget forecast.
Total costs shown in Table 5-7 below will be assumed as the baseline level of funding
available for financial analysis purposes. Operating and maintenance costs shown are
based on activities/projects from the capital budget forecast only.
64
-
Table 5-7: Summary of Lifecycle Activity Costs - Anticipated Budget
Lifecycle Activity
Scenario 1: Anticipated Budget
Non-Infrastructure Solutions
$13,048,774
Operations and Maintenance Activities7
$3,881,667
Renewal Activities
$53,798,263
Disposals/Abandonment Policies
$113,333
Growth Activities
$7,723,656
Service Improvement Activities
$24,170,590
Total
$102,736,284
5.6.2 Costs to Maintain Current Levels of Service
The compiled investment needs under this scenario are presented in Table 5-7 below. The
analysis focused on identifying the renewal and rehabilitation investments, with renewal
activity investments for this scenario reporting condition based LoS needs over the 10-yr
forecast.
The City may also be experiencing operational and maintenance investment gaps and is
working towards quantifying the true cost to maintain LoS from the operational side. The
City is working towards refining processes to capture the full lifecycle investment needs for
inclusion in future iterations of the Plan.
Table 5-8 shows the lifecycle costs to maintain current LoS. Growth activity costs are based
on the most recent Development Charge Study (and amendments).
Table 5-8: Summary of Lifecycle Activity Costs to Maintain Current LoS
Lifecycle Activity
Scenario 2: Maintain LOS
(10-yr annual average)
Non-Infrastructure Solutions
$19,571,731
Operations and Maintenance Activities
$5,990,200
Renewal Activities
$56,376,000
Disposals/Abandonment Policies
$100,000
Growth Activities
$30,546,386
7 Costs classified as operations and maintenance type activities from the Capital Budget only (for a
ll scenarios)
65
-
Lifecycle Activity
Scenario 2: Maintain LOS
(10-yr annual average)
Service Improvement Activities
$50,098,386
Total
$162,722,538
The following Figures 5-3 and 5-4 illustrate the forecasted performance (condition) and
spending required to maintain levels of service for renewals for all service areas reported in
this plan.
Figure 5-3: 10-Yr Performance Forecast - Maintain Current LoS, All Service Areas
66
Figure 5-4: 10-Yr Spending Forecast - Maintain Current LoS, All Service Areas
As shown above in Table 5-8, the average equivalent annual spending for renewals to
maintain the current conditions shown in Figure 5-3 is estimated at $56.38 million per year
over the next 10 years. The spending graph indicates that 88% of assets will be achieving
current levels of service.
Refinements to lifecycle activity investments will be required as condition assessments are
updated, and data accuracy improves. This Plan is a fluid document and will require
continual updating to make the best-informed decisions possible.
5.6.3 Backlog Analysis
The compiled investment needs under this scenario are presented in Table 5-9 below.
The backlog analysis considers all necessary lifecycle activities and costs on each asset at
the appropriate time. While this may present a significant up-front investment which the
City realistically will not be able to fund in a single year, it represents the cost that would be
needed to achieve 100% of the established level of service targets as discussed in Section
3.0 - Levels of Service.
67
-
Table 5-9: Summary of Lifecycle Activity Costs - Backlog Analysis
Lifecycle Activity
Scenario 3: Backlog Analysis
(10-yr annual average)
Non-Infrastructure Solutions
$19,571,731
Operations and Maintenance Activities
$5,990,200
Renewal Activities
$113,780,000
Disposals/Abandonment Policies
$100,000
Growth Activities
$30,586,386
Service Improvement Activities
$50,098,386
Total
$220,126,538
The following Figures 5-5 and 5-6 illustrate the forecasted performance (condition) and
spending required to achieve 100% LoS for renewals for all service areas reported in this
plan.
Figure 5-5: 10-Yr Performance Forecast - Achieve 100% LoS, All Service Areas
68
Figure 5-6: 10-Yr Spending Forecast - Achieve 100% LoS, All Service Areas
As shown above in Table 5-9, the average equivalent annual spending for renewals to
maintain the current conditions shown in Figure 5-3 is estimated at $113.78 million per year
over the next 10 years. The spending graph indicates that 100% of assets will be achieving
current levels of service with the related level of spending.
69
5.7
Summary of the Financial Shortfall
Public infrastructure is often looked at as the backbone of our economy and quality of
life. Unfortunately, years of under investment throughout the country has resulted in
years of deferred repairs. Canada is beginning to confront its "infrastructure deficit" but it
is not without challenges. Peterborough and most other municipalities struggle with the
same infrastructure challenges.
The financial shortfall represents the amount of funding that is unavailable to achieve
100% current levels of service for existing assets and growth-related demands. The
financial shortfall analysis is determined over a 10-year planning period by comparing
the 'investment needs' to the 'anticipated budget'.
Many assumptions are made when determining the financial shortfall. Currently, the
cost of fully implementing the lifecycle strategies identified in this Plan and the cost for
delivering current levels of service are not fully understood and do not align with the City
of Peterborough's budget planning processes. As a result, not all lifecycle strategy costs
are accurately presented in the needs analysis. This also creates a somewhat
misleading financial shortfall that will be improved as the City's asset management
planning matures. Until levels of service are fully understood, it can be assumed that
the needs identified in this Plan ensure that assets are (at a minimum) maintained in
acceptable condition, funding is available to meet growth demands and regulatory
requirements are met. Also incorporated into the analysis are other assumptions such
as provincial targets for growth in Peterborough, user rates remaining constant and
Community Housing support continuing with reduced provincial involvement.
For the purpose of the financial shortfall analysis, investment needs and anticipated
budget are defined as follows:
Investment Needs - This is the average annual lifecycle investment needs for all
service areas reported in this Plan. These are based on a 10-year planning period and
considers all lifecycle costs for existing assets, investments required to meet growth
demands and to achieve 100% established levels of service. The 2024 investment
needs used for this part of the analysis is based on the backlog analysis and is an
estimated $220.1 million.
Anticipated Budget - This is the averaged three year historical expenditures for
lifecycle activities from the City's approved Capital Budget and forecasted out over the
10-year planning period. With the assumption that there will not be any significant
impacts to revenue sources, the average of the City's current funding levels allocated
for lifecycle costs will be used as the anticipated budget and used to calculate the
annual shortfall/surplus. The 2024 anticipated budget is an estimated $102.7 million.
Service area investment dollars and projected budget dollars shown in Table 5-10
below have been indexed by 3% per year to reflect inflationary costs.
70
-
-
-
-
-
-
-
-
-
Table 5-10: Investment Needs and Anticipated Funding - Existing and Growth Related
Lifecycle Investment Needs
($millions)
Lifecycle Activity
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
Non-Infrastructure
Solutions
$19.6
$20.2
$20.8
$21.4
$22.0
$22.7
$23.4
$24.1
$24.8
$25.5
Operations and
Maintenance Activities
$6.0
$6.2
$6.4
$6.5
$6.7
$6.9
$7.2
$7.4
$7.6
$7.8
Renewal Activities
$113.8
$117.2
$120.7
$124.3
$128.1
$131.9
$135.9
$139.9
$144.1
$148.5
Disposals/Abandonment
Policies
$0.1
$0.1
$0.1
$0.1
$0.1
$0.1
$0.1
$0.1
$0.1
$0.1
Growth Activities
$30.6
$31.5
$32.4
$33.4
$34.4
$35.5
$36.5
$37.6
$38.7
$39.9
Service Improvement
Activities
$50.1
$51.6
$53.1
$54.7
$56.4
$58.1
$59.8
$61.6
$63.5
$65.4
Total
$220.1
$226.7
$233.5
$240.5
$247.8
$255.2
$262.8
$270.7
$278.8
$287.2
Anticipated Budget
$102.7
$105.8
$109.0
$112.3
$115.6
$119.1
$122.7
$126.4
$130.1
$134.0
Shortfall/Surplus
-$117.4
-$120.9
-$124.5
-$128.3
-$132.1
-$136.1
-$140.2
-$144.4
-$148.7
-$153.2
Average Total Lifecycle
Needs
$252.4
Average Anticipated
Budget
$117.8
Average Shortfall
-$134.6
71
5.7.1 Current Financial Shortfall
As shown in Figure 5-7 below, the projected average budget over the 10-yr forecast is
estimated at $118 million per year giving an average financial shortfall of $135 million.
This indicates that 47% of the forecasted lifecycle costs needed to provide the services
reported in this Plan at the lowest lifecycle cost are accommodated in the proposed
budget.
Figure 5-7 provides a high-level summary the current financial shortfall for existing and
growth-related infrastructure.
Figure 5-7: Current Financial Shortfall Analysis
Average Annual Needs for
Existing & Growth Related*
2024-2033
Average Anticipated
Budget
Average Financial
Shortfall
$252 million
$118 million
($135 million)
*Value represents annual needs averaged over the projected 10-year planning period
Anticipated
Budget, $118,
47%
GAP, $135,
53%
Renewal Needs and Funding Gap
Total Renewal Needs: $252M
Assets that are not able to maintain current LoS are likely to experience a reduction in
service levels over the 10-year period. They may potentially experience more frequent
asset failures or disruption to services, as well as increased levels of maintenance to
keep assets in service.
72
Several possibilities exist to begin minimizing the gap between needs versus anticipated
budget. To overcome this financial challenge, the City must review asset needs
comprehensively in view of the services they deliver. As unplanned revenues become
available, the City will seek to apply them towards mitigating the shortfall whenever
possible. The assets included in this Plan have a large impact on delivering the
services that Stakeholders expect, and at reasonable costs (taxes, fees etc.). As further
information becomes available and is refined, these financial projections will be
improved.
5.7.2 Options for the Financial Shortfall
Finding the right balance between service delivery and funding can be a complicated
process with pros and cons. For example, strategically prioritizing the City's land
development growth areas allows for responsible delivery of services in a fiscally
responsible manner but may have an impact on economic growth.
A plan to increase the City financing available for capital works was recommended to
council in 2012 and amended in 20218 , in which a Debt Management Policy and other
changes to assist in capital works was outlined. The report is a result of a full analysis
Finance staff undertook to review the City's financial situation, existing debt policy, the
options available and consequences of those options.
Of significant importance to capital planning, the following was adopted by Council;
That the Debt Management Policy will increase the maximum amount of debt the
City of Peterborough can issue.
That the annual draft operating budget include a 5% increase in the capital levy
provision as a means of providing more capital levy to support the capital
investment needs.
A phase-in of the new maximum debt limit, the total annual amount of new tax-
supported debt charges and any increase in the base capital levy provision be
limited so that the impact on the all-inclusive tax increase does not exceed 1%
per year.
In reference to the information in this Plan and as previously reported to council in the
Debt Management and Capital Financing Plan, the City will consider a blend of the Debt
Management Policy and the approaches outlined below in order to manage the shortfall
and achieve service delivery goals:
Alignment of the City's budget process with the asset management plan.
Review and prioritize assets in poor to very poor condition.
Give priority to asset renewal expenditure vs. new build.
Maximize available Federal and Provincial Funding.
8 City of Peterborough, Report CPFS12-011 Debt Management and Capital Financing Plan, (April
4, 2012) and amended through Report CLSFS21-024 (July 2, 2021)
73
Growth area strategies and funding.
Lifecycle costing prior to new development or renew
als to understand future
expenditure needs and commitments.
Expanded partnerships or external funding.
Revisit disposal strategies.
Dedicated funding programs.
Community review of and input on service levels; and
Procurement methodologies as per t he Procurement By-law.
In addition to the approaches listed above, the City recently developed a Capital Project
Prioritization Questionnaire in which the discussion on prioritization is initiated by
aligning the criteria in which projects are scored against with asset management
program initiatives, objectives, and overarching City goals and targets. Factors such as
legislative requirements, achieving levels of service, risk, cost benefits and climate
change, etc. play a significant role in developing investment plans across the
organization. The capital project prioritization process helps position investments with
the greatest benefit (considering impact and benefit from a financial aspect and the
consequences of not completing it), while balancing an acceptable level of risk.
74
75
6.0
Plan Improvement & Monitoring
6.1
Improvement Plan
Asset management is a continuously improving practice that is rapidly being applied
across all Municipalities. As the City's asset management practices evolve and matures
this Plan will also mature. The City completed a State of Asset Management (SOAM)
assessment and an Asset Management Road Map to improve the City's asset
management practices for decision making.
6.2
Asset Management Maturity
The SOAM identifies that the City has implemented a continual improvement process
for the City's asset management practices based on ISO 55000 for Asset Management.
The most recent internal audit completed in 2023 has determined that the City is
currently considered to be asset management "Developing" and moving towards
"Competent" with an average score of 2.4, with the goal of achieving a minimum
average score of 3.0 or 'Competent' (bold circle).
Figure 6.0 below shows where the City scores relative to the AM Maturity 'wheel' and
the criteria in which the City was scored against. Asset management maturity audits are
anticipated to be completed on a regular cycle where each section shown in the figure
below is evaluated and scored for compliance.
Figure 6-0: City of Peterborough State of Asset Management Maturity
0
1
2
3
4
4.1
4.2
4.3
4.4
5.1
5.2
5.3
6.1
6....
6....
7.1
7.2
7.3
7.4
7.5
7....
7....
7....
8.1
8.2
8.3
9.1
9.2
9.3
10.1
10.2
10.3
Maturity Scale:
0 = Innocent
1 = Aware
2 = Developing
3 = Competent
4 = Advanced
2020
2023
Goal
Clause
No.
Subsection
4.1
Understanding the organization and its context
4.2
Understanding the needs and expectations of stakeholders
4.3
Determining the scope of the asset management system
4.4
Asset Management system
5.1
Leadership and commitment
76
Clause
No.
Subsection
5.2
Policy
5.3
Organizational roles, responsibilities, and authorities
6.1
Actions to address risks and opportunities for the asset management
system
6.2.1
Asset management objectives
6.2.2
Planning to achieve asset management objectives
7.1
Resources
7.2
Competence
7.3
Awareness
7.4
Communication
7.5
Information requirements
7.6.1
Documented information general
7.6.2
Creating and updating documented information
7.6.3
Control of documented information
8.1
Operational planning and control
8.2
Management of change
8.3
Outsourcing
9.1
Monitoring, measurement, analysis, and evaluation
9.2
Internal audit
9.3
Management review
10.1
Nonconformity and corrective action
10.2
Preventive action
10.3
Continual improvement
77
7.0
Conclusion
The City strives to effectively deliver services to the expectations of the public while
meeting legal obligations. To meet the service expectations the City has developed
several strategies in which some are successful to reduce the costs to the City while
improving the overall asset condition. Other strategies are either recently approved or
have not been documented well enough to fully understand their impact to the overall
condition or service delivery.
Beyond the current asset base, the City needs to plan for new assets to meet growth
needs. Growth needs are based on planning areas in the Official Plan and are
influenced by the Province's Places to Grow Act and the Greater Golden Horseshoe
Growth Plan.
Options are available for the City to manage the financial shortfall. The City can
continue to deliver services at the current levels and maintain the commitment to fund
required investments whenever possible. As additional revenue sources become
available, these can be put towards reducing the shortfall (a.k.a. paying for the gap).
However, the capital program needs continue to exceed the available funding on an
ongoing basis, leaving the City with no other option but to defer asset renewals to future
years, This often results in higher costs over the long-term planning period. The second
option is reducing service levels to align with the available budget (with the
understanding that there are legislated/regulated/essential services that can't be
reduced or eliminated). This may be received with hesitation since Stakeholders are
often unwilling to give up services being enjoyed and do not fully understand the true
cost of delivering them (and the willingness to pay). Finally, the City can seek to
implement more efficient strategies to deliver services such as the sharing of services
with other local boards, agencies and municipalities, offering incentives for services, or
the provision of alternate services.
The options outlined above is not an exhaustive list and have yet to be discussed as
part of proposed levels of service. This will play an integral part in meeting O.Reg
588/17 Asset Management Planning for Municipal Infrastructure reporting requirements
prior to the 2025 deadline.
The asset management plan will play a significant role in understanding current and
proposed services being delivered, the costs to deliver them and associated risks. The
Plan also seeks to help prioritize capital projects and serve as an overarching guiding
document for decision making processes.
This Plan has had to make several assumptions to come to the conclusions drawn. In
making these assumptions, actions are being reviewed to help improve future iterations
and reduce the number of assumptions.
Council approved Plans, Policies and Procedures are available on the City's corporate
website. Asset specific details relating to the asset management plan can be found in
78
the Service Area Attachments which are also available on the City's website at
www.peterborough.ca.
79
8.0
Appendices
Separately attached
80
9.0
Service Area Attachments
The service area attachments in this section contain details relating to the topics below
and are further analyzed:
Inventory Details
Replacement Costs
Asset Condition and Remaining Useful Life
Risk Assessment
Levels of Service
Asset Management Strategies
81
Appendix A
Assets Included in the Plan - 2024
Service
Subservice
Asset Category
Administration &
Operations/General
Government
Administration
Facilities
PTS
Hardware
Software
Public Works
Equipment
Facilities
Fleet
Arts, Culture & Heritage
Heritage Services
Facilities
Library Services
Collections
Equipment
Facilities
Museums and Arts
Collections
Facilities
Community Recreation
Aquatics and Equipment
Public Beaches
Splash Pads and Wading
Pools
Arenas & Recreation
Facilities
Equipment
Facilities
Fleet
Parks
Facilities
Land
Parks Amenities
Parks Siteworks
Urban Forest
Equipment
Fleet
Trees
Emergency Services
Fire Services
Equipment
Facilities
Fleet
Police Services
Equipment
Facilities
Fleet
Environmental Services &
Water Resource Systems
Solid Waste Management
Facilities
Fleet
Land
Storm Water
Conveyance
Stormwater Management
Wastewater Collection
Conveyance
Fleet
Appendix A
Service
Subservice
Asset Category
Wastewater Treatment
Facilities
Fleet
Social Services
Daycare
Facilities
Housing
Facilities
Transportation
Airport
Airport Support Assets
Facilities
Land
Roads & Related Assets
Active Transportation
Network
Equipment
Facilities
Fleet
Municipal Structures
Right of Way
Traffic Management
Transit
Facilities
Fleet
Miscellaneous
Appendix B - Standardized Chart for Consequence Scores
Consequence
Description
Score
Minimal
No noticeable damage to environment
society, no injuries, not a nuisance, no
time delays, little to know fines, no media
5
Minor amount of damage to environment
or society, less than a few or very minor
injuries, easy work around, limited delays,
small fines, no media
4
Moderate
Some damage to environment or society,
a few injuries or minor injuries, work
around available, some delay, subject to
fines or investigation, possibly media
attention
3
Damage to environment or society, a
number of injuries (varying degrees),
work around are not easy to implement,
large delays, large fines and investigation,
local media attention
2
Catastrophic
Major damage to environment/society, life
threatening injuries or death, work around
are not possible or time consuming and
costly, major delays, legal action, large
fines, major investigations, national media
attention
1
-
Attachment #1: Roads & Related Assets
Service Area
Infrastructure
Value
$1,447M
Annual Renewal
Needs
$26M
Overall
Condition
3.0
Fair
High Risk Asset
Value
$470M
32%
Trend
1.0
Summary of Roads & Related Assets
Asset classes that fall under the roads & related assets service area include road right
of ways, municipal structures, active transportation network (sidewalks, trails), facilities,
equipment, and traffic management (traffic lights, streetlights, poles, etc.). Annual
renewal needs shown are based on lifecycle management strategies and represent the
estimated amount of capital (renewal) the City needs to reinvest in its existing asset
inventory on an annual basis over the next 10 years to sustain the current levels of
service (based on 25-yr investment forecast). Condition rating trends show a slight
decline from the previous reported Plan due to changes in asset valuation and data
improvements.
Table 1 details the City's inventory for the roads & related asset service area.
1.1
Inventory Details
Table 1: Roads and Related Assets Service Area Inventory
Asset
Class & Sub-class
Asset
2023
Quantity
Unit of Measure
Right of Way - Roads
Arterial
Rural & Urban
100
km
Collector
Rural & Urban
76
km
Local
Rural & Urban
225
km
Lane
Rural
0.2
km
Unclassified
-
1
km
Asset
Class & Sub-class
Asset
2023
Quantity
Unit of Measure
Municipal Structures
Road Bridges
-
26
Each
Pedestrian Bridges
-
21
Each
Culvert Bridges
-
16
Each
Culvert
-
3
Each
Active Transportation
Sidewalks
Sidewalks &
Sidewalk Walkways
404
km
Trails
Trails, Bicycle and
Footpaths, Trail
Roadside
35
km
Equipment
Parking Equipment
Meters
Parking Equipment
Pooled
Fleet
Light Duty Vehicles
-
5
Each
Traffic Management
Guardrails
-
5.4
km
Street Signs
Signs
18,196
Each
Supports
8,836
Each
Traffic Signals
Intersections
142
Each
Controllers/Detectors
Controllers/Detectors
953
Each
Street Lights
Lamps
7,574
Each
Poles
2,030
Each
Facilities
Parking Garage - King
St. Parkade
1
Each
Parking Lots
7
Each
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the roads & related assets service
area totalled $1.4 billion. Replacement costs were determined using different valuation
methods, such as unit cost multipliers based on recent construction projects or
replacements, condition assessments or historical costs inflated to 2023 where recent
assessments or costing information was not available.
-
Figure 1: Roads & Related Assets Service Area -Replacement Cost by Asset Class
REPLACEMENT COST BY ASSET CATEGORY
ROADS & RELATED ASSETS
($MILLIONS)
Active
Transportation,
$193 , 13%
Equipment, $0
, 0%
Facilities, $26 ,
2%
Fleet, $0 , 0%
Municipal
Structures,
$116 , 8%
Right of W
ay,
$1,094 , 76%
Traffic
Management,
$18 , 1%
Table 2: Roads & Related Assets - Replacement Costs by Asset Class
Asset
Category & Class
Asset Type
2023
Replacement Cost
Roads - Right of Way
$1,094,189,539
Arterial
Rural & Urban
$274,249,440
Collector
Rural & Urban
$207,191,853
Local
Rural & Urban
$609,972,577
Lane
Rural
$531,340
Unclassified
-
$2,244,337
Municipal Structures
$115,801,869
Road Bridges
-
$66,574,782
Pedestrian Bridges
-
$14,313,859
Culvert Bridges
-
$30,365,096
Culvert
-
$4,548,132
Active Transportation
$193,192,356
Sidewalks
Sidewalks
$172,057,406
Asset
Category & Class
Asset Type
2023
Replacement Cost
Sidewalk Walkways
Trail Neighbourhood
Trails
Bicycle and Footpaths
$21,134,942
Trails
Trail Roadside
Equipment
$41,761,151
Parking Equipment
Metres and Parking
Equipment
$37,423
Fleet
$132,684
Light Duty Vehicles
$132,684
Facilities
$25,665,607
Parking Garage - King St.
Parkade
-
$23,505,351
Parking Lots
-
$2,160,256
Traffic Management
$17,860,467
Guardrails
-
$123,014
Street Signs
Signs
$1,838,995
Supports
Traffic Signals
-
$8,503,248
Street Lights
Lamps
$5,821,599
Poles
$1,572,578
Roads & Related Assets
Total
$1,446,878,910
1.3
Asset Condition and Remaining Useful Life
The City's roads & related service area is currently rated in overall fair condition.
Condition assessments have been completed for road right of way, municipal
structures, sidewalks, signs, facilities and most traffic management assets except for
guardrails and traffic assets. Where condition inspections have not been completed,
age-based ratings were used. Based on replacement cost, 26% or $373 million are
rated very good, 17% or $252 million rated good, 29% or $422 million rated fair and
28% or $399 million rated poor and very poor. Figure 2 and Table 3 provide condition
details of the roads & related assets service area.
-
Figure 2: Roads & Related Assets - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT
COST
ROADS & RELATED ASSES
($MILLIONS)
Very Poor,
$142 , 10%
Poor, $257 ,
18%
Fair, $422 ,
29%
Good, $252 ,
17%
Very Good,
$373 , 26%
Table 3: Roads & Related Assets - Asset Condition Ratings
Asset
Category & Class
Asset Type
2023
Condition Rating
Roads - Right of Way
Arterial
Rural & Urban
Fair
Collector
Rural & Urban
Fair
Local
Rural & Urban
Fair
Lane
Rural
Very Good
Unclassified
-
Poor
Municipal Structures
Road Bridges
-
Good
Pedestrian Bridges
-
Fair
Culvert Bridges
-
Fair
Culvert
-
Fair
Active Transportation
Asset
Category & Class
Asset Type
2023
Condition Rating
Sidewalks
Sidewalks
Very Good
Sidewalk Walkways
Trail Neighbourhood
Trails
Bicycle and Footpaths
Very Good
Trails
Trail Roadside
Equipment
Parking Equipment
Metres and Parking
Equipment
Poor
Fleet
Light Duty Vehicles
Poor
Facilities
Parking Garage - King St.
Parkade
-
Good
Parking Lots
-
Poor
Traffic Management
Guardrails
-
Good
Street Signs
Signs
Very Good
Supports
Intersections
-
Fair1
Street Lights
Lamps
Very Good
Poles
Fair
Roads & Related Overall
Condition
Fair
Roads
The City conducts road right-of-way pavement condition assessments based on
frequency cycles recommended in the 2014 Road Needs Study2. The frequency for
each asset class is as follows:
Arterial roads - every two years
Collector roads - every three years
Local roads - every four years
The City's Public Works department also operates a weekly pavement inspection
program which focuses on routine maintenance repairs (i.e. pothole filling, small
patching, etc.).
1 Revised to 'fair' from 'very poor'. Alternate rating is based on professional judgement/expertise by
subject matter experts.
2 City of Peterborough & DM Wills Associates Limited, Road Needs Study Report, (2014)
The City is currently using Paver to perform road analysis. Paver calculates a PCI for
each individual road section based on the data collected. Values range from zero
(Failed) to 100 (Perfect) and relies on three data types; distress type, distress severity
and distress quantity. Using this data, a PCI is assigned using the scale shown in Table
4 Standard PCI Rating Scale. The City of Peterborough currently aims for a target
condition rating of Fair or minimum PCI of 55.
Table 4: Standard PCI Rating Scale
Standard PCI Rating Scale (Paver)
PCI Scale
Pavement Management Strategy
Good
85-100
Preventative Maintenance - crack
route & seal, micro-surfacing,
inspection program
Satisfactory
70-85
Fair
56-70
Micro-surfacing and/or road
resurfacing
Poor
41-55
Road Resurfacing
Very Poor
26-40
Road surface repairs only - 'Do
nothing strategy'
Serious
11-25
Full Reconstruction
Failed
0-10
Municipal Structures
Municipal structures (bridges and culverts) that are 3 metres or greater are inspected
every two years and must follow specific inspection procedures as provided in the
Ontario Structure Inspection Manual3. Each structure is assigned a Bridge Condition
Index (BCI) which is used to determine an overall condition rating. The City currently
aims to maintain municipal structures in fair or better range (minimum BCI of 60). The
overall 2022 BCI rating for all structures is 71.564 or good. Figure 3 in Section 2 Levels
of Service shows the BCI rating scale along with recommended capital works timelines.
Active Transportation
The active transportation network's overall condition is rated very good. Except for
sidewalks, condition ratings for trails are age based and do not reflect actual conditions.
Future plans will be to include trails and hardscaping in an on-going inspection program
which will provide for more accurate and up-to-date condition ratings. Currently,
sidewalks are inspected annually5 in the spring with remediation work commencing in
the fall of the same year.
3 Ontario, Ministry of Transportation, Ontario Structure Inspection Manual (OSIM) 2008, (St. Catherines,
ON: Ministry of Transportation, 2008)
4 Non weighted average.
5 Ontario, Municipal Act 2001, O. Reg 239/02, Minimum Maintenance Standards for Municipal Highways,
(Consolidated 2018)
Fleet, Equipment, Traffic Management & Facilities
The overall condition rating for fleet is poor, fair for parking equipment, fair for traffic
management and good for facility assets.
Traffic controllers and detectors are currently inspected and tested twice a year as per
the Minimum Maintenance Standards for Municipal Highways, O. Reg 239/02.
Replacement activities for traffic signal controllers are currently underway with a total
estimated project cost of $2.7 million and is anticipated to be completed in the spring of
2024. The traffic signal controller upgrades are required to implement Smart Signal
systems across the city. Traffic signal asset condition ratings are primarily based on
high level recommendations provided by expert City staff until refinements to the asset
hierarchy can be completed which better reflects actual condition and ages.
Guardrail condition ratings are currently age based. Future plans include adding
guardrails in an annual inspection program which will provide more accurate and up-to
date condition ratings.
Street signs overall condition rating is very good. Condition ratings are based on a
combination of visual condition assessments which include annual retro reflectivity
testing for regulatory and warning signs and age-based ratings. Regulatory and
warning signs are required to meet minimum retro reflectivity standards set forth in the
Manual of Uniform Traffic Control Devices for Canada [MUTCD(C )] and are replaced
as required.
Parking equipment assets overall condition rating is poor. Assets include parking
equipment and parking meters.
Facilities overall condition rating is good. Facilities include parking lots and parking
garages. The King St. Parking Garage (rated good) reflect actual conditions as per the
most recent building condition assessment completed in 2020/2021.
Based on previously completed condition assessments, streetlights are in overall very
good condition. Streetlight condition assessments are planned to be completed every
five years, pending budget approvals.
Remaining Useful Life
The following summarizes the roads & related assets service area remaining useful life.
The useful life of an asset is the estimated period over which the City expects to use the
asset. Estimates are based on the calculated age or observed age (where condition
assessments have been completed) and do not take into consideration any betterments
that extend the useful life of the asset(s). Ideally, as condition assessments are
completed the 'observed' age will be used in calculating remaining useful life. The ages
of the assets are variable and with efforts to extend the life by application of lifecycle
treatments, there isn't necessarily a linear relationship between age and condition.
Table 5 shows the roads & related assets remaining useful life details.
Table 5: Roads & Related Assets Remaining Useful Life6
Asset
Category & Class
Average
Expected Useful
Life
(Yrs)
Average
Remaining Useful
Life
(Yrs)
Percent Useful
Life Remaining
Roads - Right of
Way
21
0
0%
Municipal Structures
69
7
10%
Active
Transportation
30
0
0%
Equipment
5
0
0%
Fleet
6
0
0%
Facilities
64
36
56%
Traffic Management
26
0
0%
Roads & Related
Assets Total
27
0
0%
1.4
Asset Risk Assessment
Currently, the consequences of failure for road & related assets have been determined
manually by City staff based on a standardized chart for consequence (found in
Appendix B). The risk evaluation considers environmental, economical, social, life
safety, legislation and corporate reputation as factors when scoring consequence.
Service area specific factors include the road classification, the land use and the zoning
surrounding the asset, where possible.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
6 ESL, RUL, and percent of useful life remaining are based on calculated weighted average of asset
classes
The estimated replacement value of Roads & Related Assets high risk assets is $338
million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies and policies such as the 2022 Transportation Plan and the Official Plan.
Stakeholder and technical levels of service, performance measures and current targets
for the roads & related assets service area are outlined in Table 6 below. Further
development of the City's levels of service is underway in which the proposed levels of
service and the affordability of the service will be analyzed and presented. Future
versions of the Asset Management Plan will also include other proposed levels of
service reporting requirements set forth in the Asset Management Planning for
Municipal Infrastructure Regulation (O.Reg. 588/17).
Table 6: Levels of Service - Roads & Related Assets
Asset Class: Roads - ROW
Service Objective Statement: The City strives to provide a safe mode of transportation maintained to an acceptable quality that allows for drainage and
movement of goods
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Stakeholder Performance
Technical Measure
Technical Performance
Measures
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Scope/
Availability
The road
network is
safe, efficient,
and accessible
for all
residents,
businesses
and visitors.
Level of
connectivity of
road network
throughout the
city
Peterborough's
road network
consists of
Arterial,
Collector, Local
and Lane roads,
connecting
people, goods
and places. See
Figure 4: City of
Peterborough
Road System
Peterborough's
road network
consists of
Arterial,
Collector, Local
and Lane roads,
connecting
people, goods
and places. See
Figure 4: City of
Peterborough
Road System
Number of lane-
kilometres of
each arterial
roads, collector
roads and local
roads as a
proportion of
square
kilometres of
land area of the
municipality
Maintain or
increase for
accessibility
City Area:
67.35 km2
City Area:
67.35 km2
Arterial: 1.12
km2/ 67.35
sq.km
Arterial: 265
km/ 67.35
sq.km
Collector:
0.80
km2/67.35
sq.km
Collector:
152 km/67.35
sq.km
Local: 2.08
km2/67.35
sq.km
Local: 450
km/67.35
sq.km
Lane road:
0.002
km2/67.35
sq.km
Lane road:
0.39 km/67.35
sq.km
Reliability/
Quality
Providing
reliable mode
of
transportation
at an
Road pavement
is maintained in
a state of good
repair
See Figure 3:
Road Class
Pavement
Conditions
See Figure 3:
Road Class
Pavement
Conditions
Average PCI for
Paved Roads
Greater than
55
Average PCI
for Paved
Roads = 63
Average PCI
for Paved
Roads = 63
Percentage of
arterial roads in
100%
n/a
100%
-
Asset Class: Roads - ROW
Service Objective Statement: The City strives to provide a safe mode of transportation maintained to an acceptable quality that allows for drainage and
movement of goods
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Stakeholder Performance
Technical Measure
Technical Performance
Measures
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
acceptable
quality that
meets the
needs of the
community.
poor or better
condition
Percentage of
collector roads
in poor or better
condition
Min. 75%
n/a
91% of total
surface area
Percentage of
local roads in
poor or better
condition
Min. 50%
n/a
21% of total
surface area
Average
Surface
Condition for
unpaved roads
(e.g. Good, fair,
poor)
Fair
Fair
Fair
-
Asset Class: Roads - ROW
Service Objective Statement: The City strives to provide a safe mode of transportation maintained to an acceptable quality that allows for drainage and
movement of goods
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Stakeholder Performance
Technical Measure
Technical Performance
Stakeholder
LoS
Year of Measure
Technical PM
Target
2021
2023
Stakeholder
Performance
Measure
Climate
Leadership
Providing
streetlights
that are
energy
efficient
Streetlights are
meet our
environmental
objectives
Streetlights are
replaced with
energy efficient
or LED fixtures
where possible
Streetlights are
replaced with
energy efficient
or LED fixtures
where possible
Percentage of
streetlights that
are LED or low
energy fixtures
100%
n/a
84% of
streetlight
inventory is
LED
Asset Class: Municipal Structures
Service Objective Statement: The City strives to provide safe structures efficiently and connecting roads, sidewalks and trails
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Stakeholder Performance
Technical Measure
Technical Performance
Measures
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Scope/Availability
The road and
crossings
network is
adequate for
all modes of
transportation
.
Types of
traffic that are
supported by
municipal
bridges
Bridges and
crossings within the
City support the
movement of motor
vehicles, heavy
transport vehicles,
emergency vehicles,
pedestrians and
cyclists
Bridges and
crossings within
the City support
the movement
of motor
vehicles, heavy
transport
vehicles,
emergency
vehicles,
% of bridges
with
loading/dimensi
onal restrictions
Maintain or
decrease
restrictions
4.5% of
bridges with
loading/dimen
sional
restrictions (3
out of 66
structures)
No City owned
bridges have
loading/dimen
sional
restrictions
however 2
bridges within
City limits
have loading
restrictions but
Measures
Year of Measure
Stakeholder
LoS
Statement
2021
2023
Asset Class:
Municipal Structures
Service Objective Statement:
The City strives to provide safe structures efficiently and connecting roads, sidewalks and trails
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Stakeholder Performance
Technical Measure
Technical Performance
Measures
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
pedestrians and
cyclists
owned by
Parks
Canada.
Reliability/Quality
Providing
reliable and
high-quality
bridges that
meet the
needs of the
community
and
stakeholders
Bridges and
culverts are
maintained in
a state of
good repair.
See Figure 5:
Bridges and Culverts
Condition Rating
Descriptors
See Figure 5:
Bridges and
Culverts
Condition
Rating
Descriptors
Average Bridge
Condition Index
BCI = >60
(Fair or
better)
Average BCI:
69.98 (Fair)
Average BCI:
71.93 (Good)
Percentage of
bridges in fair or
better condition
Maintain
current LoS
as minimum
n/a
87%
For Structural
Culverts:
Average Bridge
Condition Index
BCI = >60
(Fair or
better)
Average BCI
of structural
culverts: 68.33
(Fair)
Average BCI
of structural
culverts:
68.86 (Fair)
Percentage of
structural
culverts in fair or
better condition
Maintain
current LoS
as minimum
n/a
88%
Asset Class: Active Transportation Network - Sidewalks
Service Objective Statement: The City strives to provide a safe and connected health promoting network of alternate transportation
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Stakeholder Performance
Technical Measure
Technical Performance
Measures
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Scope/Availability
A connected
network that is
safe, efficient
and
accessible
with sidewalks
installed on
both sides of
the road, as
per Provision
of Sidewalk
Policy
Description,
which may
include maps,
of the sidewalk
network in the
municipality
and its level of
connectivity.
n/a
The City is
working to
advance
sidewalk
installation, as
per the Sidewalk
Strategic Plan.
See Figure 6:
City of
Peterborough
Pedestrian
Network.
Km an
d % of
missing sidewalk
installed
Maintain or
increase for
accessibility
4.8 Km an
d
0.013% of
missing
sidewalk
installed
1km, 0.003% of
missing
sidewalk
installed
Reliability/Quality
Providing
reliable
sidewalks that
meet the
needs of the
community
Sidewalks are
maintained in a
state of good
repair
Sidewalks are
proactively
maintained and
reliable for
intended use
Sidewalks are
proactively
maintained and
reliable for
intended use
Percentage of
sidewalks in poor
or better condition
(using condition
parameters to
meet minimum
maintenance
standards)
Maintain
current LoS
as
minimum
n/a
99%
Safety
New
subdivisions
are built with
sidewalks on
Kilometers of
sidewalks built
compared to
new
No new streets
built in 2019
Subdivisions are
planned to have
sidewalks on
both sides
All trip hazards
greater than 2 cm
are marked
100% of trip
hazards
greater
100% of trip
hazards
greater than 2
cm were
100% of trip
hazards greater
than 2 cm were
marked. 146
-
Asset Class: Active Transportation Network - Sidewalks
Service Objective Statement: The City strives to provide a safe and connected health promoting network of alternate transportation
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Stakeholder Performance
Technical Measure
Technical Performance
Measures
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
both sides of
the road.
subdivision
streets
except on back
lanes. New
subdivisions that
are not assumed
by the City may
not have all
sidewalks
installed yet.
than 2 cm
are marked
marked. 759
defects
marked in
2019, 468
repairs
completed in
2019
defects marked
and 2 repairs
completed in
2022.
Sidewalks
inspected
annually as per
Minimum
Maintenance
Standards from
Ministry of
Transportation
Annually
Completed
June 2019
Completed
June 2023
Asset Class: Active Transportation Network - Trails
Service Objective Statement: The City strives to provide a network of trails for recreation and transportation connecting people to places.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Stakeholder Performance
Technical Measure
Technical Performance
Measures
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Scope/Availability
The
pedestrian
network is well
connected
and
accessible for
users
90% of
population is
within 400m of
a trail
80% of pop. is
within 400m of a
trail
84 % of pop. is
within 400m of a
trail. - note that
this is all trails
This also
included non-city
owned trails such
as portions of the
Trans Canada
trail owned by
ORCA)
Trails are
maintained in the
winter
Greater
than 75%
of trails
are
maintained
78.3% of trails
maintained in
the winter
78.6% of trails
maintained in
the winter
Availability of bike
only lanes
Increase
to 83km by
year 2031
34 km of bike
specific lanes
35 km of bike
specific lanes
Reliability/Quality
Providing
reliable trails
that meet the
needs of the
community
Trails are
maintained in a
state of good
repair
Trails are
proactively
maintained and
reliable for
intended use
Trails are
proactively
maintained and
reliable for
intended use
Percentage of
trails in poor or
better condition
Maintain
current
LoS as
minimum
n/a
96%
Figure 3: Road Class Pavement Conditions
Condition
PCI Score
Description
Sample
Good
86 - 100
Functional, new or like new,
little deterioration;
preventative maintenance
work required (crack route
and seal), renewal work is not
usually required within short
term planning.
Satisfactory
71 - 85
Fair
56 - 70
Functional, little deterioration;
preventative maintenacne
ongoing, renewal work usually
required (micro-surfacing)
reconstruction not usually
required within short term
planning.
Poor
41 - 55
Functional,some deterioration;
preventative maintenacne
ongoing, still required,
renewal work usually required
(road resurfacing)
reconstruction not usually
required within short term
planning.
Very Poor
26 - 40
Not functioning as intended.
Significant to major
deterioriation, surface repairs
on an as needed basis,
replacement considered within
short term planning.
Serious
11 - 25
Failed
1 - 10
Not functional Major
deterioriation, major
rehabilitation/replacement
considered within one (1)
year.
Figure 4: City of Peterborough Road System
Figure 5: Bridges & Culverts Condition Rating Descriptors
Condition Rating
Condition
Description
Good
BCI Score: 70-100
Refers to an element or part of an element
which is new or like new, minor defects are
visible, remedial action not usually required,
performing as intended.
Fair
BCI Score: 60-70
Refers to an element or part of an element
where medium defects are visible,
preventative maintenance work usually
required, performing as intended.
Poor
BCI Score: <60
Refers to an element or part of an element
where severe defects are visible,
rehabilitation or replacement is usually
required, performance of element is affected
and/or not performing as intended.
Figure 6: City of Peterborough Pedestrian Network
3.0
Asset M
anagement Strategies - Roads & Related Assets
Roads & related assets include all major infrastructure for the movement of people and goods excluding public transit.
The following table below documents the set of planned actions or 'activities' that the City undertakes to sustain current
levels of service, while managing risk at the lowest lifecycle cost. The City plans the necessary lifecycle activities at the
required time and does not necessarily need to alter the type of activity undertaken. However, with limited funding
available, the interval and timing of the necessary lifecycle activities are affected, which can have an overall impact on the
performance of the asset(s) over its useful life.
Table 7: Roads & Related Assets - Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or p
olicies that can lower costs or
extend asset life (e.g. better integrated
infrastructure planning and land use
planning, demand management, insurance,
process optimization, managed failures,
etc.).
Development of Comprehensive Transportation Plan, 2012 to understand
demand, needs and develop direction
Ontario Structures Inspection Manual (OSIM) inspections for a
ll bridges with
maintenance management reports every 2 years.
Linking the asset management plan to other studies, master plans and strategies
Public consultation on levels of service
Transportation Demand Management program which promotes encouraging
alternate use of transportation assets to reduce strain on system
Tool kits for external organizations to promote alternate transportation
Promote carpooling, car sh
aring
Inspection program for roads, and sidewalks to understand future needs and
reduce ad hoc spending
Trails are multi-purpose for access for City vehicles and bicycles, pedestrians and
other recreational users
Load restrictions on bridges posted
Signaling program to effectively move all forms of traffic through the city
Implementation of Road Needs Study to assist in priority decision making
Maintenance Activities
Activities include regularly scheduled
inspection and maintenance, or m
ore
Implementation of minimum main
tenance standards legislated by the Province of
Ontario for Roads and Sidewalks
Winter maintenance program for sidewalks, paved trails and roads
Strategy Type
Current Practice
significant repair and activities associated
with unexpected events.
Ontario Structure Inspection Manual (OSIM) recommended maintenance program
implementation for bridges with BCI rating of 70 or better
Less severe trip hazards are grinded
Crack route and seal for ro
ads with PCI of 70 or better
Severe trip hazards are asphalt repaired to eliminate safety hazards
Renewals/Rehabilitation:
Includes significant repairs designed to
extend the life of the asset (e.g. the lining of
iron watermains can defer t he need for
replacement).
Pavement Preservation Program (previously various road resurfacing project):
Micro-surfacing only for arterial and collector r oads with PCI between 56-70
Resurfacing of roads with PCI between 40-55
Bridges: Minor rehabilitation at BCI between 70 and 65, major rehabilitation at
BCI between 60 and 50.
Road Culverts (Corrugated Steel): No rehabilitations, only replacement at end of
life.
Road Culverts (Concrete, Steel/Conc, Other): Minor Rehabilitation at BCI
between 67 and 62, major rehabilitation at BCI between 60 and 50.
Replacement
Activities that are expected to occur once
an asset has reached the end of its useful
life and renewal/rehabilitation is no longer
an option.
Full replacement of roads with PCI less than 50
Streetlight replacement program (curre
nt initiative is to convert to LED lights)
Replacement of surface asphalt/cement mix with less recycled material to extend
road surface life
Bridges: Replace at a BCI of 60, but after a second rehabilitation occurs.
Road Culverts (Corrugated Steel): Replace at BCI of 50.
Road Culverts (Concrete, Steel/Conc, Other): Replace at BCI of 60, but after a
second rehabilitation occurs.
Coordinate replacements of roads, sidewalks etc. with buried infrastructure needs
Replacement of traffic controllers and detectors at end of useful life and
coordinate implementation of improved/new technologies at time of replacement
Roads sold for private ownership (very rare)
Strategy Type
Current Practice
Disposals/Abandonment Policies
Activities associated with disposing of an
asset once it has reached the end of its
useful life or is otherwise no longer needed
by the municipality.
Decommissioning and repurposing of pedestrian bridges (rare)
Expansion Programs
Planned activities required to extend the
services to previously un-serviced areas -
or expand services to meet growth
demands.
Complete design standards to develop streets for all abilities and traffic types
Cyclist designated lanes
On road marked cycle routes
Sidewalks provided
Subdivision assumptions of roads, trails, sidewalks
Purchasing of old rail lines for t rail development
Implementation of sidewalk policy and procedure to create sidewalks on priority 1
and 2 streets and new streets
Future Strategies
Road Degradation Program fees according to road cuts for r estoration
recuperation fund recommended in Failed Roads Report
Materials investigations to extend the life of paved surfaces
Investigations into different maintenance equipment to reduce damage to assets
during regular maintenance
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Recreation Services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Risk Trade Offs
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are
not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Public health and safety - assets not adequate/available for emergency
response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance
now needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Risks relating to road & related asset infrastructure failure are mitigated though
condition assessment programs and maintenance programs (legislated and best
practices) which provide the data necessary to plan the actions at the right time to
achieve the determined levels of services. Risks related to fleet asset failures are
addressed through proactive fleet maintenance and adequate vehicle storage to ensure
adequate service readiness.
All City services, including Roads & Related services are reviewed and identified in the
City's Business Continuity Plan (BCP) and prioritization process. The BCP identifies the
key interruption impacts, recovery time objectives, dependencies, qualified resources
available and a resource back-up strategy should services be interrupted. The BCP is
reviewed and updated regularly to ensure that critical services are not interrupted,
minimizing risks.
The choice of strategy for maintaining roads & related assets considers the risk of
failure of the assets, the risk to service delivery and the risk to other services dependant
on this service area. Roads & related assets projects seek to work with external
stakeholders to align projects to minimize disruption to the transportation network and
reduce costs. Strategies implemented are at the lowest cost in order to reduce the
burden on the tax base and user fees where possible and to maintain the current levels
of service.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk
treatment plan for non-acceptable risks is planned and will be included in future
versions of the asset management plan when completed.
3.2
Lifecycle Models, Interventions, and Cost of Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed7 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement)
are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of S
ervice
The options analysis of the lifecycle activities that could be undertaken were reviewed
with the Roads & Related services subject matter experts. Lifecycle activity options
were discussed and determined that the current planned activities are appropriate and
the most cost-effective option(s). Details related to the Roads & Related Assets
services available funding, investments and shortfalls can be found in Section 5.0 -
Financial Summary.
Table 8 and Figure 7 below shows the Roads & Related Assets services area projected
10-year lifecycle costs (asset renewal and replacement activities required for existing
assets) and performance to maintain current levels of service. For details on current
7 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
levels of service descriptions, measures and targets and current performance, refer to
Table 5 in Section 2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for
that asset/asset class. Where asset condition data was not available, age-based
condition ratings were applied.
-
-
Table 8: Roads & Related Assets Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle Activity Costs -
Roads & Related Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
Roads-ROW
$0
$24,016,824
$24,016,824
$24,016,824
$24,016,824
$24,016,824
$24,016,824
$24,016,824
$24,016,824
$24,016,824
$24,016,824
$240,168,241
Municipal Structures
$0
$1,331,637
$1,331,637
$1,331,637
$1,331,637
$1,331,637
$1,331,637
$1,331,637
$1,331,637
$1,331,637
$1,331,637
$13,316,375
Active Transportation
$0
$282,637
$282,637
$282,637
$282,637
$282,637
$282,637
$282,637
$282,637
$282,637
$282,637
$2,826,367
Equipment & Facilities
$0
$249,365
$249,365
$249,365
$249,365
$249,365
$249,365
$249,365
$249,365
$249,365
$249,365
$2,493,653
Fleet
$0
$8,533
$8,533
$8,533
$8,533
$8,533
$8,533
$8,533
$8,533
$8,533
$8,533
$85,328
Traffic Management
$0
$349,741
$349,741
$349,741
$349,741
$349,741
$349,741
$349,741
$349,741
$349,741
$349,741
$3,497,412
Annual Total
$0
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$262,387,376
Average Annual Lifecycle
Cost
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
$26,238,738
Based on the lifecycle assessment of Roads & Related Assets (for renewal and replacement activities only), it is estimated that the City would need to spend an average of $26
million per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 7: 10-Year Forecasted Performance for Maintaining Levels of Service - Roads
& Related Assets
Figure 7 above illustrates the performance (condition) of Roads & Related assets over
the 10-year forecast. The estimated average combined annual expenditures to
maintain these conditions is approximately $26 million.
Attachment #2: Stormwater Service Area
Infrastructure
Value
$1.8B
Annual Renewal
Needs
$5.2M
Overall
Condition
4.0
Good
High Risk Asset
Value
$142M
8%
Trend
1.0
Summary of Stormwater Assets
Asset classes that fall under the Stormwater service area include stormwater
management ponds, conveyance assets and ancillary assets such as catch basins,
headwalls, manholes, outfalls, etc. which capture storm water flows from roads. The
annual renewal needs are based on lifecycle management strategies and represent the
estimated amount of capital the City needs to reinvest in its existing asset inventory on
an annual basis over the next 10 years to sustain the current levels of service (based on
the 25-yr investment forecast). Condition rating trends remain neutral for with an overall
service area rating of good.
1.1
Inventory Details
Table 1 details the City of Peterborough's inventory for the stormwater service area
Table 1: Stormwater Service Area Asset Inventory
Asset
Category and Class
Asset
2023
Quantity
Unit of Measure
Stormwater Management
Ponds
Wet Pond
19
Each
Dry Pond
13
Each
Conveyance
Pipes
Lead
48
km
Main
168
km
Trunk
119
km
Unclassified
0.4
km
Ancillaries
Catch basin
4,883
Each
Catch basin
Manhole
4,991
Each
Asset
Category and Class
Asset
2023
Quantity
Unit of Measure
Headwall
2
Each
Storm Manhole
1,666
Each
Oil/Grit
Separator
23
Each
Clean Out
6
Each
Double Catch
basin
554
Each
Ditch Inlet
Catch basin
146
Each
Inlet Headwall
21
Each
Double Ditch
Catch basin
6
Each
Double Catch
basin Manhole
275
Each
Ditch Catch
basin Manhole
22
Each
Rainwater
Manhole
88
Each
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the Stormwater service area
totalled $1.8 billion. Replacement costs were determined using unit cost multipliers
based on recent construction projects1, condition assessments or historical costs
inflated to 2023 where recent assessments or costing information was not available.
1 Stormwater pipes and ancillaries' replacement costs are based on recent construction projects which
include hard costs, soft costs and the cost of replacing materials above the pipes at the time of install (i.e.
granular fill, asphalt, sod, concrete, etc.).
Figure 1: Stormwater Service Area -Replacement Cost by Asset Sub-Class
REPLACEMENT COST BY ASSET CATEGORY
STORMWATER ASSETS
($MILLIONS)
Stormwater
Management,
$23 , 1%
Conveyance,
$1,745 , 99%
Table 2: Stormwater - Replacement Cost by Asset Class
Asset
Class & Sub-Class
Asset
2023
Replacement
Cost
Stormwater
Management
$22,525,169
Ponds
Wet Pond
$15,307,537
Dry Pond
$7,217,632
Conveyance
$1,744,855,801
Pipes
Lead
$152,906,354
Main
$607,789,079
Trunk
$586,695,881
Sub-drain
$395,503
Unclassified
$169,795
Ancillaries
Catchbasin
$150,087,387
Catchbasin Manhole
$157,152,692
Headwall
$61,524
Storm Manhole
$53,795,946
Oil/Grit Separator
$745,634
Clean Out
$177,684
Double Catchbasin
$17,181,937
Ditch Inlet Catchbasin
$4,569,556
Inlet Headwall
$719,593
Double Ditch Catchbasin
$184,571
Double Catchbasin Manhole
$8,711,088
Ditch Catchbasin manhole
$781,903
Rainwater Manhole
$2,730,275
Stormwater Total
$1,767,383,493
1.3
Asset Condition and Remaining Useful Life
The City's Stormwater service area is currently rated in overall good condition. Where
condition assessments have not been completed, age-based ratings were used. Based
on replacement cost, 32% or $566 million are rated very good, 34% or $600 million are
rated good, 18% or $319 million are fair and 17% or $300 million are poor to very poor
condition. Figure 2 and Table 3 provide condition details of the stormwater service area.
Figure 2: Stormwater - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT
COST
STORMWATER ASSETS
($MILLIONS)
Very Good,
$566 , 32%
Good, $600 ,
33%
Fair, $319 ,
18%
Poor, $164 , 9%
Very Poor,
$136 , 8%
Table 3: Stormwater - Asset Condition Ratings
Asset
Class & Sub-Class
Asset
2023
Condition Rating
Stormwater Management
Ponds
Wet Pond
Good
Dry Pond
Fair
Conveyance
Pipes
Lead
Good
Main
Good
Trunk
Very Good
Sub Drain
Very Good
Unclassified
Very Good
Ancillaries
Catchbasin
Fair
Catchbasin Manhole
Fair
Headwall
Fair
Storm Manhole
Fair
Oil/Grit Separator
Very Good
Clean Out
Good
Double Catchbasin
Good
Ditch Inlet Catchbasin
Good
Inlet Headwall
Good
Double Ditch Catchbasin
Very Good
Double Catchbasin Manhole
Good
Ditch Catchbasin manhole
Good
Rainwater Manhole
Good
Overall Stormwater
Condition
Good
Stormwater Management Ponds
City staff perform detailed surveys of storm ponds every three years to provide water
quality and quantity performance monitoring of the stormwater management ponds
(facilities) within the City of Peterborough. Stormwater management facilities work as
temporary storage for runoff to avoid flooding in the city, as well as quality control to trap
pollutant laden sediment before the stormwater is released to receiving water bodies.
Surveys of these facilities are necessary to monitor asset functionality to maintain
required standards. To determine total pond clean-out requirements, the Ministry of the
Environment's (MOE) 2003 Stormwater Management Planning and Design Manual
governs required capacity for desired pond efficiency. Also inspected is the forebay
diminished capacity requirements as set-out in the subdivision agreement.
Conveyance Assets
The City currently conducts sanitary sewer condition inspections (CCTV) in conjunction
with the storm sewers, on a six-year cycle as part of the Flood Reduction Master Plan
project. CCTV inspections of storm and sanitary sewers are in accordance with
NASSCO2 inspection standards and use a PACP3 defect rating approach. As a result,
structural and service deficiencies are evaluated in which performance ratings for pipe
segments are established. Based on the findings of the condition inspections, a
remedial plan to address the deficiencies is developed and implemented.
Remaining Useful Life
The useful life of an asset is the estimated period over which the City expects to use the
asset. Estimates are based on the calculated age or observed age where available,
and do not take into consideration any betterments that extend the useful life of the
asset(s). Ideally, as condition assessments are completed the 'observed' age would be
used in calculating remaining useful life. The age of the stormwater service area is
variable and with efforts to extend the life by application of lifecycle treatments, there
isn't necessarily a linear relationship between age and condition. Table 4 shows the
stormwater remaining useful life details.
2 National Association of Sewer Service Companies
3 Pipeline Assessment Certification Program
Table 4: Stormwater Remaining Useful Life
Asset
Class & Sub-Class
Expected
Useful Life
(Yrs)
Ave.
Remaining
Useful Life
(Yrs)
Percent of Useful
Life Remaining
Stormwater Management
Ponds
30
9
31%
Conveyance
Pipes
75
27
35%
Ancillaries
75
26
56%
Stormwater Remaining
Useful Life4
74
30
40%
1.4
Asset Risk Assessment
Currently, the consequences of failure for Stormwater assets have been determined
manually by City staff based on a standardized chart for consequence (found in
Appendix B) which also took into consideration the pipe size, land use and the zoning
surrounding the asset, where possible. Where condition assessment data isn't
available, likelihood of failure was calculated using age of the asset.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Stormwater high risk assets is $142 million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
4 Overall RUL and Percent Useful Life remaining are weighted by replacement cost
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies and policies such as the City of Peterborough's Flood Reduction Master
Plan (2005).
Stakeholder and technical levels of service, performance measures and current targets
for the stormwater service area are outlined in Table 5 below. Further development of
the City's levels of service is underway in which the proposed levels of service and the
affordability of the service will be analyzed and presented. Future versions of the Asset
Management Plan will also include other proposed levels of service reporting
requirements set forth in the Asset Management Planning for Municipal Infrastructure
Regulation (O.Reg. 588/17).
Table 5: Levels of Service - Stormwater
Asset Class: Stormwater
Service Objective Statement: The City strives to protect property, infrastructure and the environment.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Stakeholder Performance
Technical Measure
Technical Performance
Measures
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Scope
Protect
property,
infrastructure
and
environment
Area of the
City that is
protected from
flooding,
including the
extent of the
protection
provided by
the municipal
stormwater
management
system
Peterborough's
storm sewer
and storm
management
system
consists of
foundation
drain
collectors,
storm gravit
y
main pipes and
stormwater
detention
ponds.
See Figure 3:
Storm Sewer
System
Peterborough's
storm sewer
and storm
management
system consists
of foundation
drain collectors,
storm gravit
y
main pipes and
stormwater
detention
ponds.
See Figure 3:
Storm Sewer
System
Percentage of
properties in
municipality that
are resilient to a
100-year storm
21% of properties
are resilient to
100-year storm
n/a - not
reported
a) % of
properties
resilient to 100-
yr storm
(buildings not
impacted by
flooding =
17%)
b) % of
properties
resilient to 100-
yr storm
(overland
flooding only) -
89%
Asset Class:
Stormwater
Service Objective Statement:
The City strives to protect property, infrastructure and the environment.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Stakeholder Performance
Technical Measure
Technical Performance
Measures
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Percentage of
municipal
stormwater
management
system resilient to
a 5-year storm
21% of municipal
stormwater
management
system to be
resilient to 5-yr
storm
n/a - not
reported
a) % of
municipal SWM
system (pipes)
resilient to 5-
year storm -
21%
b) % of
municipal SWM
system
(maintenance
holes) resilient
to 5-year storm
= 66%
Reliability/Quality
Providing
reliable
stormwater
assets that
meet the
needs of the
community
Stormwater
assets are
maintained in
a state of
good repair
Stormwater
assets are
proactively
maintained
and reliable for
intended use
Stormwater
assets are
proactively
maintained and
reliable for
intended use
Percentage of
Conveyance
assets in poor or
better condition
Maintain 100% of
conveyance
assets in poor or
better.
n/a - not
reported
94%
Percentage of
Storm
Management
assets in fair or
better condition
100% of SWM
assets in fair or
better condition
n/a - not
reported
81%
Asset Class: Stormwater
Service Objective Statement: The City strives to protect property, infrastructure and the environment.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Stakeholder Performance
Technical Measure
Technical Performance
Measures
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Length of pipe
inspected and
flushed per year
All pipes
inspected on a 5-
year cycle
n/a - new
measure
description
2021:
1000km of
pipe
inspected
and flushed
per year
Target
achieved
Maintain catch
basin cleanout
program
20% of existing
inventory to be
cleaned out
annually
30% of
existing catch
basin
inventory
cleaned
2022: 1412
cleaned or 26%
To provide updated level of service measures for properties resilient to a 100-yr storm and systems resilient to 5-yr storms, the City developed a comprehensive
storm sewer model for the entire sewer network. The model assesses sewer conveyance capacity (minor system) using current conditions and future land-use and
climate scenarios, as well as the risks associated with urban surface flooding (major system). The model will provide the City with a detailed assessment of our
resilience now, and in the future, to a range of design storms, including a 5-year (or greater) return period event.
Figure 3: Storm Sewer System
3.0
Asset M
anagement Strategies - Stormwater
The stormwater management strategy incorporates all major stormwater management
assets. Options for which lifecycle activities that could potentially be undertaken are
explored and analyzed in various studies and reports such as the Flood Reduction
Master Plan (2005), Stormwater Quality Management Master Plan (2015) and CCTV
inspection reports. The following table below documents the set of planned actions or
'activities' that the City undertakes to sustain current levels of service, while managing
risk at the lowest lifecycle cost. The City plans the necessary lifecycle activities at the
required time and does not necessarily need to alter the type of activity undertaken.
However, with limited funding available, the interval and timing of the necessary
lifecycle activities are affected, which can have an overall impact on the performance of
the asset(s) over its useful life.
Table 6: Stormwater - Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs
or extend asset life (e.g. better
integrated infrastructure planning and
land use planning, demand
management, insurance, process
optimization, managed failures, etc.).
Public notices to remind residents to clean
catch basin covers during fall before large
storms
Storm water management design standards in
place
Official Plan provides high level guidance to
development and the inclusion of storm water
management in development
Linking the asset management plan to other
studies, master plans and strategies
Public consultation on levels of service
Inspection programs to understand the
condition of pipes, manholes and catch basins
Annual inspection program for SWM facilities.
Standard operating procedures in place for the
survey, inspection and monitoring of all
stormwater management facilities to ensure
storm water m
anagement wet and dry ponds
are operating properly and adhere to the City's
Consolidated Linear Infrastructure
Environmental Compliance Approval
Assumption process for subdivisions to
minimize City risks and ensure development to
City design standards
Strategy Type
Current Practice
New Provincial guidelines and legislation that
require Municipalities to ensure stormwater
management practices minimize stormwater
volume and contaminate loads and maintain or
increase the extent of vegetative and pervious
cover.
Maintenance Activities
Activities include regularly scheduled
inspection and maintenance, or more
significant repair and activities
associated with unexpected events.
Street Sweeping
Catchbasin clean out program
Pipe flushing and cleaning during condition
inspection programs
Roots and heavy debris removal
Spot repairs and other trenchless maintenance
based on inspection programs findings
Vegetation management and removal, debris
removal, and minor structural repairs at
stormwater ponds
Renewals/Rehabilitation:
Includes significant repairs designed to
extend the life of the asset (e.g. the
lining of iron watermains can defer the
need for replacement).
Relining program for pipes based on inspection
programs findings and pipe rehabilitation
matrix. After relining of pipes, replace at end of
service life.
Pond structures and grading renewals,
including major sediment removals to maintain
compliance with CLI-ECA. Ponds are dredged
based on sediment accumulation, as
determined by surveys
Replacement
Activities that are expected to occur
once an asset has reached the end of
its useful life and renewal/rehabilitation
is no longer an option.
Replacement of collapsed pipes
After a single reline, replace pipes in poor
condition based on a matrix of inspection
findings and risk.
Structures replaced with pipe when warranted
After a single reline, stormwater pipes are
replaced at end of service life. Replacement of
stormwater pipes and ancillaries are combined
with other projects or utilities to reduce the cost
and impact to other infrastructure
Storm asset replacement is prioritized when in
combination of road rehab/replacement
activities
Availability of grants for funding storm water
management programs
Strategy Type
Current Practice
For every capital project with regards to road
reconstruction the storm sewers are looked at
in detail for possible replacement and in many
cases upgrade in diameter to suit larger storms
due to climate change
Disposals/Abandonment Policies
Activities associated with disposing of
an asset once it has reached the end of
its useful life or is otherwise no longer
needed by the municipality.
Project coordination in combination with the age
and condition to remove old infrastructure
Plug pipes on a case-by-case basis (rare)
Expansion Programs
Planned activities required to extend
the services to previously un-serviced
areas - or expand services to meet
growth demands.
System expanded when city grows through
subdivision developments
Legislative changes in minimum design
standards
Capacity of the system no longer meets needs
Intensification programs
Most replacement of pipes are actually an
expansion of the system
new design standards requiring increase design
from 2-5-year storms to 5-100 year storms
Climate change related improvement
requirements
Rural road upgrades to urban roads requires
ditch replacements with storm infrastructure
Addition of storm separators for environmental
protection
Future Strategies
Implementation of Water Resource Funding
Strategy recommendations
Continued implementation of the
recommendations from the Storm Water Quality
Management Master Plan
Improve existing programs to encourage private
stormwater management features including rain
gardens
A source control program t o reward customers
that reduce and disburse storm water on their
property in the form of credits
Strategy Type
Current Practice
Update engineering standards to include
climate change adaptation and promote the use
of LID
Improve the storm pond
design standards to
minimize the need for upgrades and redesigns
before useful life
Public education program
Implement the vision, goals, objectives, targets,
policies and guidelines from t he Watershed
Plan and use the watershed as the ecologically
meaningful scale for integrated and long-term
planning of stormwater infrastructure
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Stormwater services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Risk Trade Offs
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are
not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Public health and safety - assets not adequate/available for emergency
response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance
now needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
The City has recently invested a great deal of resources into improving the gaps in
knowledge for the storm water system and developing programs to maintain and
improve the system. The Storm W
ater Quality Master Plan5 provides options for
programs to reduce the City's risks. Additionally, the recent Water Resource Funding
Study has developed creative financing options to implement the recommendations
of the Storm W
ater Quality Master Plan. As the City moves towards implementing
these programs the current risks surrounding our storm water management will be
greatly reduced.
The City is also undertaking a Watershed Plan for our region's various sub-watersheds.
The Watershed Plan will create a number of risk-based targets, policies and guidelines
5 Stormwater Quality Master Plan, October 2015
for the watershed in relation to surface water quality and quantity, groundwater, natural
hazards, natural heritage and infrastructure.
All City services, including Stormwater services are reviewed and identified in the City's
Business Continuity Plan (BCP) and prioritization process. The BCP identifies the key
interruption impacts, recovery time objectives, dependencies, qualified resources
available and a resource back-up strategy should services be interrupted. The BCP is
reviewed and updated regularly to ensure that critical services are not interrupted,
minimizing risks.
The choice of strategy for maintaining Stormwater assets considers the risk of failure of
the assets, the risk to service delivery and the risk to other services dependant on this
service area. Strategies implemented are at the lowest cost in order to reduce the
burden on the tax base and user fees where possible and to maintain the current levels
of service.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk
treatment plan for non-acceptable risks is planned and will be included in future
versions of the asset management plan when completed.
Strategies implemented are primarily at the lowest cost in order to reduce the burden on
the tax base and user fees in order to maintain the current levels of service at the lowest
risk.
3.2
Lifecycle Models, Interventions, and Cost of Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed6 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement)
are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
6 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of S
ervice
The options analysis of the lifecycle activities that could be undertaken were reviewed
with Stormwater subject matter experts. Lifecycle activity options were discussed and
determined that the current planned activities are appropriate and the most cost-
effective option(s). Details related to the Stormwater services available funding,
investments and shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 4 below shows the Stormwater service area projected 10-year
lifecycle costs (asset renewal and replacement activities required for existing assets)
and performance to maintain current levels of service. For details on current levels of
service descriptions, measures and targets and current performance, refer to Table 5 in
Section 2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for
that asset/asset class. Where asset condition data was not available, age-based
condition ratings were applied.
-
-
Table 7: Stormwater Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle Activity Costs
-
Stormwater Services
Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
Stormwater Conveyance
and Management
$0
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$51,921,238
Annual Total
$0
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$51,921,238
Average Annual
Lifecycle Cost
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
$5,192,124
Based on the lifecycle assessment for Stormwater services assets (for renewal and replacement), it is estimated that the City would need to spend an average of
$5.2 million per year to carry out the required lifecycle activities to maintain current levels of service
Figure 4: 10-Year Forecasted Performance for Maintaining Levels of Service -
Stormwater Services
Figure 4 above illustrates the performance (condition) of Stormwater treatment and
collection assets over the 10-year forecast. The estimated average combined annual
expenditures to maintain these conditions is approximately $5.2 million.
Attachment #3: Wastewater Service Area
Infrastructure
Value
$1,863M
Annual Renewal
Needs
$9.7M
Overall
Condition
4.0
Good
High Risk Asset
Value
$105M
6%
Trend
1.0
Summary of Wastewater
Asset classes that fall under the Wastewater service area include treatment and
conveyance assets. Treatment assets include wastewater treatment plants and
pumping stations, fleet, equipment (process mechanical, electrical, safety, structural
and the Centennial fountain). Conveyance assets include linear infrastructure such as
gravity pipes (forcemains, trunk, main, siphon pipes) and ancillaries (manholes, flushing
manholes, valve chambers and unclassified). The annual renewal needs are based on
lifecycle management strategies and represent the estimated amount of capital the City
needs to reinvest in its existing asset inventory on an annual basis over the next 10
years to sustain the current levels of service (based on 25-year investment forecast).
Condition rating trends remain neutral with an overall rating of good.
1.1
Inventory Details
The following table details the City of Peterborough's inventory for the wastewater
service area.
Table 1: Wastewater Service Area Asset Inventory
Asset
Category & Class
Asset
2023
Quantity
Unit of
Measure
Treatment
Facilities
Treatment Plant
1 plant
(20
structures)
Structures
Pumping Stations
10
Buildings
Bypass Station
1
Buildings
Asset
Category & Class
Asset
2023
Quantity
Unit of
Measure
Administration/Laboratory
1
Buildings
Fleet
Light duty trucks/van, heavy
duty trucks, trailers, boat/carts
7
each
Equipment
Various pumping station and
treatment plant process
equipment and Centennial
fountain.
1,625
each
Conveyance
Pressure Pipe
Forcemains
12
km
Gravity Pipe
Mains
284
km
Trunk
78
km
Siphon
0.4
km
Ancillaries
Flushing Manholes
Sanitary Manhole
Valve Chamber
Unclassified
5,130
each
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the wastewater service area
totalled $1.9 billion. Replacement costs were determined using different valuation
methods, such as unit cost multipliers based on recent construction projects1, condition
assessments or historical costs inflated to 2023 where recent assessments or costing
information was not available.
1 Wastewater gravity pipes and ancillaries' replacement costs are based on recent construction projects
which include hard costs, soft costs and the cost of replacing materials above the pipes at the time of
install (i.e. granular fill, asphalt, sod, concrete, etc.).
Figure 1: Wastewater Service Area -Replacement Cost by Category2
REPLACEMENT COST BY ASSET CATEGORY
WASTEWATER ASSETS
($MILLIONS)
Conveyance,
$1,689 , 91%
Facilities, $170
, 9%
Fleet, $4 , 0%
Table 2: Wastewater - Replacement Cost by Asset
Asset
Category &
Class
Asset
2023
Replacement Cost
Treatment
$174,313,444
Facilities
Treatment Plant
$143,366,677
Pumping Stations
$26,878,544
Fleet
Light duty trucks/van, heavy
duty trucks, trailers, boat/carts
$4,068,222
Conveyance
$1,689,164,383
Pressure Pipe
Forcemains
$32,759,068
Gravity Pipe
Mains
Trunk
Siphon
$1,497,386,758
Ancillaries
Flushing Manholes
Sanitary Manholes
$159,018,558
2 Based on replacement cost of assets which have had condition assessments completed.
Asset
Category &
Class
Asset
2023
Replacement Cost
Valve Chambers
Unclassified
Wastewater Total
$1,863,477,827
1.3
Asset Condition and Remaining Useful Life
The City's wastewater service area is currently rated in overall good condition. Where
condition inspections have not been completed, age-based ratings were used. Based
on replacement cost, 74% or $1.4 billion are rated very good, 10% or $187 million are
good, 2% or $32 million are fair and 14% or $271 million are rated poor to very poor.
Figure 2 and Table 3 provide condition details of the wastewater service area.
Figure 2: Wastewater - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT
COST
WASTEWATER ASSETS
($MILLIONS)
Very Poor, $29
, 1%
Very Good,
$1,373 , 74%
Good, $187 ,
10%
Fair, $32 , 2%
Poor, $242 ,
13%
Table 3: Wastewater - Asset Condition Ratings
Asset
Category &
Class
Asset
2023
Condition Rating
Treatment
Facilities
Treatment Plant
Good
Pumping Stations
Fleet
Light duty trucks/van, heavy
duty trucks, trailers, boat/carts
Poor
Conveyance
Pressure Pipe
Forcemains
Good
Gravity Pipe
Mains
Trunk
Siphon
Very Good
Ancillaries
Flushing Manholes
Sanitary Manholes
Poor
Valve Chambers
Unclassified
Wastewater
Overall
Condition3
Good
Treatment
Facilities
Condition ratings for the wastewater treatment facilities are based on the most recent
building condition assessments completed in 2021-2022 and use observed age of
facility elements at the time of assessment. Other assets use an age-based rating
methodology and have been reviewed by staff to ensure that it reflects the current
conditions until detailed assessments are completed. The City plans to complete BCA's
on a seven year cycle with the next round of assessments anticipated to be completed
in 2028
Fleet
Condition ratings for fleet are based on both inspected conditions and age-based
ratings. The City's fleet maintenance plan incorporates ministry requirements and
industry best practices which aims to maintain a high level of vehicle health. Predictive
processes are utilized when scheduling major repairs such as engine, transmission and
3 Weighted by replacement cost
axle repairs. This ensures that the right maintenance activities are being carried out at
the correct time throughout the vehicle's life cycle.
Remaining Useful Life
The useful life of an asset is the estimated period over which the City expects to use the
asset. Estimates are based on the calculated age or observed age where available,
and do not take into consideration any betterments that extend the useful life of the
asset(s). Ideally, as condition assessments are completed the 'observed' age would be
used in calculating remaining useful life. The age of the Wastewater Service Area is
variable and with efforts to extend the life by application of lifecycle treatments. Table 4
shows the Wastewater remaining useful life details.
Table 4: Wastewater Remaining Useful Life
Asset
Inventory
Expected
Useful Life
(Yrs)4
Ave.
Remaining
Useful Life
(Yrs)
Percent of Useful
Life Remaining
Conveyance
75
21
28%
Facilities
28
9
34%
Fleet
10
0
0%
Wastewater Remaining Useful
Life5
64
18
28%
1.4
Asset Risk Assessment
Currently, the consequences of failure for wastewater assets have been determined
manually by City staff based on a standardized chart for consequence (found in
Appendix B) which also took into consideration the pipe size, land use and the zoning
surrounding the asset, where possible. Where condition assessment data isn't
available, likelihood of failure was calculated using age of the asset.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Wastewater high risk assets is $105 million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
4 Uses average of asset classes/assets
5 Overall RUL and Percent Useful Life remaining are weighted by replacement cost
plans, studies and policies such as the Flood Reduction Master Plan and the Official
Plan.
Stakeholder and technical levels of service, performance measures and current targets
for the Wastewater service area are outlined in Table 5 below. Further development of
the City's levels of service is underway in which the proposed levels of service and the
affordability of the service will be analyzed and presented. Future versions of the Asset
Management Plan will also include other proposed levels of service reporting
requirements set forth in the Asset Management Planning for Municipal Infrastructure
Regulation (O.Reg. 588/17).
-
Table 5: Levels of Service - Wastewater Assets
Asset Class: Wastewater - Conveyance, Treatment
Service Objective Statement: The City will meet legislative requirements, while promoting safe and reliable infrastructure that protects the environment,
public and property.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Scope
A wastewater
collection and
treatment system
that will protect
the environment,
public and
property
Description/ma
ps of areas that
are connected
to the
wastewater
system
See Figure 3:
Waste-water
System
See Figure 3:
Waste-water
System
% of
properties
connected to
the municipal
wastewater
system
100% of
properties
connected to
wastewater
system
All parcels in
the City =
27,090
All parcels in the
City = 27,620
Serviced
Parcels in the
City = 25,481
Serviced Parcels
in the City =
26,082
% of parcels
serviced =
94.1%
% of parcels
serviced = 94.4%
Safety
Wastewater
system does not
pose a health
and safety risk
onto
stakeholders
Number of
sewer backups
into private
property
222 reported
backups into
private
property
159 Services,
4 Main
Pipes are
inspected and
flushed per
year
All pipes are
flushed on a
5-yr cycle
n/a - new
measure
description
2021: 1000km
of pipe
inspected and
flushed per year
Target achieved
Reliability/Quality
Reliable
wastewater
service is
provided with
>2 odour
complaints per
year
0 complaints
2 complaints
Number of by-
passes at the
WWTP into
the river
Zero by-
passes
Zero by-passes
Zero by-passes
Service Objective Statement: The City will meet legislative requirements, while promoting safe and reliable infrastructure that protects the environment,
public and property.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Asset Class: Wastewater - Conveyance, Treatment
minimal public
impact
Percentage of
Conveyance
assets in poor
or better
condition
100% n/a - not
reported
97% (average of
conveyance asset
sub-classes)
Percentage of
Treatment
assets in fair
or better
condition
100% n/a - not
reported
86%
Reliability/Quality
A wastewater
collection and
treatment system
that will protect
the environment,
public and
property
Description of
how
stormwater can
get into
sanitary
sewers,
causing
sewage
overflow into
streets or
See PM
Statement 1)
below
See PM
Statement 1)
below
# of effluent
violations per
year due to
wastewater
discharge
compared to
the total # of
properties
connected to
the system
Zero effluent
violations
Zero effluent
violations
4 occurrences:
26,082 properties
connected to
wastewater
system
-
Asset Class: Wastewater Conveyance, Treatment
Service Objective Statement: The City will meet legislative requirements, while promoting safe and reliable infrastructure that protects the environment,
public and property.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
backup into
homes
PM Statement 1)
Inflow and Infiltration refers to rainwater and groundwater that enters the sanitary sewer through a variety of defects. Inflow sources allow
rainwater to enter the sanitary sewer directly from the surface through improper plumbing and cross connections. Some examples include
downspouts and roof drain connections and catch basin cross connections as well as former construction practices. Infiltration sources
allows the groundwater to seep into the sanitary sewer through cracks or bad joints in sewer pipes and manholes as well as through the
foundation drains of older buildings. A certain amount of inflow and infiltration is unavoidable and is accounted for in routine sewer design.
However, when inflow and infiltration exceed design allowances, sewer capacity is consumed and may result in overflows, risks to health,
damage to the property and the environment, and increased treatment and disposal costs.
Reliability/
Quality
A wastewater
collection and
treatment system
that will protect
the environment,
Description of
how sanitary
sewers are
designed to be
resilient to
n/a - not
reported
See PM
Statement 2)
below
# of
connection-
days per year
due to
backups
0 connection
days per
year: total
number of
properties
222:25,481
properties
Or
163:26,082 or
0.006
-
-
Asset Class: Wastewater Conveyance, Treatment
Service Objective Statement: The City will meet legislative requirements, while promoting safe and reliable infrastructure that protects the environment,
public and property.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
public and
property
avoid events
described in 1)
above
compared to
total # of
properties
connected to
the City
0.009
PM Statement 2)
Calculations demonstrating that there is sufficient capacity in the proposed new system and the existing system downstream of the
development must be presented where new flows will be introduced to the sanitary sewer system. For small developments with known
downstream capacity issues and medium sized developments, capacity assessment is to be extended to the first trunk sewer (375mm in
diameter and greater). Larger developments typically must continue the capacity assessment downstream into the trunk sanitary sewer
system to a location as determined by the City's Water Resource Systems Division, typically on a case-by-case basis upon review of the
additional flows versus known existing capacity constraints of the trunk sanitary sewer system. Calculations must be provided on an
appropriate design chart and should be accompanied by legible sanitary sewer area plan showing catchment areas and land uses. In
addition to design land use sewage loading, extraneous flows (inflow and in infiltration) at the maximum MECP standard are also required
to be included in the sanitary sewer capacity assessment. Calculated peak flows should not exceed 80% of the 'just full' pipe capacity of
new sewers.
Reliability/
Quality
A wastewater
collection and
treatment system
that will protect
the environment,
public and
property
Description of
the effluent that
is discharged
from the
sewage
treatment plant
See PM
Statement 3)
below
-
See PM
Statement 3)
below
-
Asset Class: Wastewater Conveyance, Treatment
Service Objective Statement: The City will meet legislative requirements, while promoting safe and reliable infrastructure that protects the environment,
public and property.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
PM Statement 3)
Described in terms of average annual daily flow, average annual concentration and annual geometric mean for E. coli;
2019:
Average Annual Daily Flow: 40,971 m3/d.
Average Annual Concentration: cBOD 3.24mg/L, TSS 6.02mg/L
Total Phosphorus 0.25mg/L
Annual Geometric Mean for E.coli: 62cfu/100mL
pH (Min/Max): 6.68/7.99
-
2022:
Average Annual Daily Flow: 39,246 m3/d.
Average Annual Concentration: cBOD 3.71mg/L, TSS 10.59mg/L
Total Phosphorus 0.35mg/L
Annual Geometric Mean for E.coli: 108cfu/100mL
pH (Min/Max): 7.00/7.84
Figure 3: Wastewater System
3.0
Asset M
anagement Strategies - Wastewater Assets
The Wastewater services strategy incorporates all wastewater assets. Options for which lifecycle activities that could
potentially be undertaken are explored and analyzed in various studies and reports such as the Flood Reduction Master
Plan (2005) and CCTV inspection reports. The following table below documents the set of planned actions or 'activities'
that the City undertakes to sustain current levels of service, while managing risk at the lowest lifecycle cost. The City
plans the necessary lifecycle activities at the required time and does not need to alter the type of activity undertaken.
However, with limited funding available, the interval and timing of the necessary lifecycle activities are affected, which can
have an overall impact on the performance of the asset(s) over its useful life.
Table 6: Wastewater - Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs or
extend asset life (e.g. better integrated
infrastructure planning and land use
planning, demand management,
insurance, process optimization, managed
failures, etc.).
Updates of assumed data from CCTV program to improve data
sets for management and modelling capacity
Sanitary system design standards in place
Linking the asset management plan to other studies, master plans
and strategies
Public consultation on levels of service
Official Plan provides high level guidance to development and the
inclusion of sanitary systems in development
CCTV program to understand the condition of pipes and manholes
Assumption process for subdivisions to minimize City risks and
ensure development to City design standards
Change the purpose of retired building structures to be used for
new purposes
Process changes to treatment to maximize equipment efficiency
and performance
Inflow and Infiltration (I&I) pr
ogram[1] to increase capacity in
conveyance network and at plant.
Flow monitoring and rain gauges
Strategy Type
Current Practice
Alarm system in place to notify of large storms
Smoke testing to locate cross connections and downspout
connections
CCTV program to locate sites of I&I
Manhole inspection started; to be finished in 2020
Advanced operator program for treatment plant operators
Support of PUC's wastewater conservation program
Water meters for all users
CCTV inspector training
Flood reduction subsidy program to remove cross connections
To assist with downspout disconnection
Addition of downspout splash pads to reduce impact of water
Public education program on website and media releases
Modelling of system to understand effects of storms and hydraulic
capacity of network
Calibrated with flow monitor data and rain gauges
Dedicated funding from Sanitary Sewer Reserve Fund using rates
collected from Sanitary Sewer Service to improve and maintain
sanitary system as a part of the Flood Reduction Program
Maintenance Activities
Activities include regularly scheduled
inspection and maintenance, or more
significant repair and activities associated
with unexpected events.
Pipe flushing during CCTV condition inspection program on a 6-
year cycle
Pipe grouting and reaming to remove roots and fix small cracks and
joints
Spot repair, sleeves and other trenchless maintenance based on
CCTV program findings
Preventative maintenance program based on manufactures
specification for plant equipment
Redundancy of key plant equipment
Strategy Type
Current Practice
Emergency maintenance triggered by customer service line at
public works primarily related to laterals
Renewals/Rehabilitation:
Includes significant repairs designed to
extend the life of the asset (e.g. the lining
of iron watermains can defer the need for
replacement).
Relining program for pipes based on CCTV program findings and
pipe rehabilitation matrix
Tank refurbishments at plant
Reuse of retired building
Pump rebuilds
Motor rebuilds
Purchase used equipment when possible
Replacement
Activities that are expected to occur once
an asset has reached the end of its useful
life and renewal/rehabilitation is no longer
an option.
Replacement of Collapsed pipes
After a reline, pipes are replaced at end of life based on a matrix of
CCTV inspection findings and risk
Manholes replaced with pipes when warranted
Replacement of sanitary pipes and ancillaries combined with other
projects or utilities to reduce the cost and impact to other
infrastructure
Replace equipment for more efficient equipment to give better
power savings and process efficiency
Replace similar assets at the same time to save on bulk equipment
purchases
Combine replacements to happen during "Shutdown" periods
Most equipment is run until failure with redundancy on hand to
handle failed assets
If repair is greater than 50% of the replacement cost the equipment
is replaced
Customer complaints may drive replacement of laterals
Disposals/Abandonment Policies
Activities associated with disposing of an
Project coordination in combination with the age and condition to
remove old infrastructure
Strategy Type
Current Practice
asset once it has reached the end of its
useful life or is otherwise no longer needed
by the municipality.
Forcemains abandoned in place
Tanks are abandoned, filled and built over
Equipment generally decommissioned at the end of their useful
service life
Process updates leads process equipment abandon strategy which
is based on best practices
Equipment decommissioned based on new legislation
Some items sold for scrap
Some older equipment is saved as backup for emergency use
Dispose of equipment that no longer meets capacity
Expansion Programs
Planned activities required to extend the
services to previously un-serviced areas -
or expand services to meet growth
demands.
System expanded when city grows through subdivision
developments
Legislative changes in minimum design standards
Capacity of the system no longer meets needs
System modelled in MikeUrban software to understand capacity
Ministry requirements updated
Response to climate change
Adapting to changes in industry and their waste
Increased process efficiency
Intensification programs
Addition of backup generators at pump stations
Expansion of redundancy for emergency management
Future Strategies
Tertiary Treatment Program (Effluent polishing)
Digester replacement
Improved manhole covers to reduce infiltration
Raise low lying manholes to grade
Trenchless pipe bursting for replacements
Transformer replacement program for increased efficiency
Strategy Type
Current Practice
Incorporating ground water levels and soil type information into
pipe replacement matrix
Predictive lateral and pipe maintenance
Investigate forcemains for condition and capacity
Provide redundancy for forcemains
Manhole relining program
Condition assessment of plant equipment
Manhole grouting program
Increase subsidy program to include backflow preventers, sump pit
and pumps, and fixing clean-out covers to prevent basement
flooding and reduce surcharges
Locating pipes and manholes not inspected due to locate issues
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Wastewater services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Risk Trade Offs
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are
not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Public health and safety - assets not adequate/available for emergency
response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance
now needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Due to the 2004 flood event a great deal of attention has been applied to minimizing
service risks within the sanitary system. The ability to use dedicated funding has also
allowed the City to apply funding continuously into the program and fully utilize best
practises. Risks relating to asset failure are mitigated though condition assessment
programs, maintenance programs (legislated and best practices) and scheduled
renewal programs which ensure assets are in acceptable condition and are available to
achieve the determined levels of services. Risks related to fleet asset failures are
addressed through proactive fleet maintenance and adequate vehicle storage to ensure
adequate service readiness.
All City services, including Wastewater services are reviewed and identified in the City's
Business Continuity Plan (BCP) and prioritization process. The BCP identifies the key
interruption impacts, recovery time objectives, dependencies, qualified resources
available and a resource back-up strategy should services be interrupted. The BCP is
reviewed and updated regularly to ensure that critical services are not interrupted,
minimizing risks.
The choice of strategy for maintaining Wastewater assets considers the risk of failure of
the assets, the risk to service delivery and the risk to other services dependant on this
service area. Strategies implemented are at the lowest cost in order to reduce the
burden on the tax base and user fees where possible and to maintain the current levels
of service.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk
treatment plan for non-acceptable risks is planned and will be included in future
versions of the asset management plan when completed.
Strategies implemented are primarily at the lowest cost in order to reduce the burden on
the tax base and user fees in order to maintain the current levels of service at the lowest
risk.
3.2
Lifecycle Models, Interventions, and Cost of Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed6 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement)
are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
6 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of S
ervice
The options analysis of the lifecycle activities that could be undertaken were reviewed
with Wastewater subject matter experts. Lifecycle activity options were discussed and
determined that the current planned activities are appropriate and the most cost-
effective option(s). Details related to the Wastewater services available funding,
investments and shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 4 below shows the Wastewater service area projected 10-year
lifecycle costs (asset renewal and replacement activities required for existing assets)
and performance to maintain current levels of service. For details on current levels of
service descriptions, measures and targets and current performance, refer to Table 5 in
Section 2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 25-yr period using the recommended deterioration model for
that asset/asset class. Where asset condition data was not available, age-based
condition ratings were applied.
-
Table 7: Wastewater Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle Activity
Costs -
Wastewater Services
Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
Wastewater Treatment
$0
$3,358,174
$3,358,174
$3,358,174
$3,358,174
$3,358,174
$3,358,174
$3,358,174
$3,358,174
$3,358,174
$3,358,174
$33,581,745
Wastewater Collection
$0
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$63,576,003
Annual Total
$0
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$6,357,600
$97,157,748
Average Annual
Lifecycle Cost
$9,715,775
$9,715,775
$9,715,775
$9,715,775
$9,715,775
$9,715,775
$9,715,775
$9,715,775
$9,715,775
$9,715,775
$9,715,775
Based on the lifecycle assessment for Wastewater services assets (for renewal and replacement), it is estimated that the City would need to spend an average of
$9.7 million per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 4: 10-Year Forecasted Performance for Maintaining Levels of Service -
Wastewater Services
Figure 4 above illustrates the performance (condition) of Wastewater treatment and
collection assets over the 10-year forecast. The estimated average combined annual
expenditures to maintain these conditions is approximately $9.7 million.
Attachment #4: Transit Service Area
Infrastructure
Value
$115M
Annual
Renewal Needs
$4.1M
Overall
Condition
3.0
Fair
High Risk
Asset Value
$23M
20%
Trend
1.0
Summary of the Transit Service Area
Asset classes that fall under the transit service area include fleet, transit facilities, linear
assets (access lanes and driveways) and miscellaneous assets which include bus stops
and shelters (including pads), bus fareboxes and equipment and software. Condition
rating trends are neutral from the previous year and remain Fair. The Simcoe St.
parking garage/bus terminal facility is a shared facility between the transit and the roads
& related assets service area (parking services). Details are reported in this section
until further analysis is completed which will allocate the correct portion of assets into
the respective service area.
Annual renewal needs are based on lifecycle management strategies and represent the
estimated amount of capital the City needs to reinvest for replacement of its existing
asset inventory on an annual basis over the next 10 years to sustain the current levels
of service (based on 25-yr investment forecast).
Table 1 details the City of Peterborough's inventory for the transit service area.
1.1
Inventory Details
Table 1: Transit Service Area Asset Inventory
Asset
Category & Class
2023
Quantity
Unit of Measure
Fleet
Bus - Conventional
61
Each
Accessible Van
13
Each
Transit Facilities
Transit Garage - 200 Townsend
St.
4,045
Sq.m
Asset
Category & Class
2023
Quantity
Unit of Measure
Simcoe St. Parking Garage/Bus
Terminal - 190 Simcoe St.
20,129
Sq.m
Bus Storage - 182 Townsend St.
33,100
Each
Transit Linear Assets
Access/Driveways
1
Each
Miscellaneous
Bus Stops
637
Each
Fareboxes & Equipment
Pooled
Each
Pre-Board announcement
Pooled
Each
Stop announcement signs
Pooled
Each
Software
Pooled
Each
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the transit service area totalled
$115 million. Replacement costs were determined using different valuation methods,
such as unit cost multipliers based on recent construction projects or replacements,
condition assessments or historical costs inflated to 2023 where recent assessments or
costing information was not available.
Figure 1: Transit Service Area -Replacement Cost by Asset Class
REPLACEMENT COST BY ASSET CATEGORY
TRANSIT SERVICES
($MILLIONS)
Fleet, $50 ,
44%
Facilities, $54 ,
47%
Linear Assets,
$10 , 9%
Miscellaneous,
$0.01 , 0%
Table 2: Transit - Replacement Cost by Asset Sub-Class
Asset
Class & Sub-Class
2023
Replacement Cost
Fleet
$54,405,167
Bus
$52,740,857
Accessible Van
$1,664,310
Transit Facilities
$50,031,888
Transit Garage - 200 Townsend St.
$13,560,610
Simcoe St. Parking Garage/Bus Terminal - 190
Simcoe St.
$31,051,728
Bus Storage - 182 Townsend St.
$5,419,549
Transit Linear Assets
$114,711
Access/Driveways
$114,711
Miscellaneous
$10,066,687
Bus Stops
$7,432,429
Fareboxes & Equipment
$2,327,272
Pre-board announcement
$129,150
Stop announcement sign
$77,000
Asset
Class & Sub-Class
2023
Replacement Cost
Software
$100,836
Transit Total
$114,618,453
1.3
Asset Condition and Remaining Useful Life
The City's transit service area is currently rated in overall fair condition. Where
condition inspections have not been completed, age-based ratings were used. Based
on replacement cost, 11% or $12 million are in very good condition, 17% or $20 million
are in good condition, 45% or $52 million are Fair and 27% or $21 million in poor to very
poor condition. Figure 2 and Table 3 provide condition details of the transit service area.
Figure 2: Transit - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND
REPLACEMENT COST
TRANSIT SERVICES
($MILLIONS)
Very Good,
$12.0 , 11%
Good, $20.0 ,
17%
Fair, $52.0 ,
45%
Poor, $11.0 ,
10%
Very Poor,
$20.0 , 17%
Table 3: Transit - Asset Class Condition Ratings
Asset
Class & Sub-Cass
2023
Condition Rating
Fleet
Conventional Bus
Fair
Accessible Van
Good
Transit Facilities
Transit Garage - 200 Townsend St.
Very Good
Simcoe St. Parking Garage/Bus Terminal
- 190 Simcoe St.
Fair
Bus Storage - 182 Townsend St.
Very Poor
Transit Linear Assets
Asset
Class & Sub-Cass
2023
Condition Rating
Access/Driveways
Fair
Miscellaneous
Bus Stops
Fair
Fareboxes & Equipment
Very Good
Pre-board announcement
Very Good
Stop announcement signs
Very Good
Software
Very Good
Transit Overall Condition1
Fair
Fleet
Transit fleet condition ratings are based on both age and recommended ratings
provided by staff. Estimated useful lives of transit fleet are 16 years for conventional
buses and 18 years for accessible vans. The City currently has a target average age 18
years prior to replacing a bus without having to carry out traditional bus refurbishment.
The City's fleet maintenance plan incorporates ministry requirements and industry best
practices which maintains a high level of vehicle health. Predictive processes are
utilized when scheduling major repairs such as engine, transmission and axle repairs.
This ensures that the right maintenance activities are being carried out at the correct
time throughout the vehicle's life cycle.
Climate Change Considerations
New fleet buses come equipped with Nova Bus' clean diesel propulsion system which
includes a proprietary electric engine cooling system. Use of this system results in
significant fuel savings, reduced greenhouse gas emissions and competitive life cycle
costs when compared to conventional diesel-powered buses. Continuing to reduce the
age of the fleet will contribute to meeting corporate greenhouse gas emission targets.
As well, staff continue to review industry technology and opportunities for alternate fuel
vehicles, which fit the Peterborough context.
Transit Facilities
Condition ratings for the Transit Garage and Simcoe St. Parking Garage/Bus Terminal
are based on the available building condition assessments completed in 2021-2022 and
use observed age of facility elements at the time of assessment. High level condition
rating for the Bus Storage at 182 Townsend St. have been provided by internal staff.
Individual facility BCA's will be updated on a 7-year cycle and are anticipated to be
completed in 2028.
A facility that is rated poor or worse does not represent a hazard but rather represents
that the facility is not performing as intended, at the end of its useful life or have
significant deferred maintenance/capital costs relative to the overall replacement cost of
the facility.
1 Weighted by replacement cost
Simcoe St. Parking Garage/Bus Terminal
The parking garage/bus terminal at 190 Simcoe St., currently rated in fair condition,
underwent a structural review in 2013 which identified major structural and mechanical
capital needs which were completed in 2016 at an estimated $790,000 (Phase 1 of
second rehab program). Major works included replacing deteriorated concrete on
structural beams, updating the drainage systems, localized repairs to the concrete deck
surface, waterproofing systems and expansion joint repairs. An updated structural
review in 2017 identified a further $2.3 million in work to upgrade and replace the
waterproofing system and repair deteriorated concrete in the structure.
The facility was constructed in 1974 as a parking garage and was initially designed for
smaller buses serving fewer transit trips than the service provides today. Currently the
transit terminal configuration and size are not suited to meet the current operating
needs. The Downtown Transit Hub Plan is currently underway and will review and
evaluate candidate sites for the new transit garage site along with concept plans and
identify the most suitable location and design for a downtown terminal.
Transit Garage
The transit garage facility located at 200 Townsend St. is currently rated very good.
Funds requested in 2020 at an estimated $1.0 million will be used for minor upgrades to
the garage to extend its service life until a new garage can be constructed.
The transit garage is only capable of storing 42 buses indoors which does not allow for
enough storage of 55 buses. In 2018, Public Works operations, including major bus
maintenance activities, moved from the 182 Townsend Street location to the new
location at 791 Webber Avenue. With the Webber Ave. yard not being large enough to
incorporate a new bus storage facility onsite, buses will continue to be stored at the 200
Townsend St. and 182 Townsend St. location and at the new PW Yard on Webber Ave,
albeit outdoors, until further plans are developed regarding a new Transit garage
location.
Outdoor bus storage does not allow the vehicles to be properly washed and cleaned at
the end of the day to ensure that interior surfaces and the advanced accessibility
features (kneeling buses, accessible ramps) do not freeze up during the winter. The
inability to properly service and maintain the buses reduces the life expectancy and
increases longer term maintenance costs. Currently, staff are required to shuttle the
buses from the storage facility to the Webber Ave. Public Works yard for maintenance
work. Funds in 2017 were used to undertake a transit garage relocation study,
complete design work for the selected location and secure necessary approvals
allowing for construction to proceed once funding is available.
Miscellaneous Assets
Assets within the miscellaneous asset class are primarily rated in fair to very good
condition. The proposed capital budget includes the Transit Stop Shelter project with an
estimated total project cost of $0.1 million over the 2020-2023 capital forecast. This
project was initiated in 2017 as part of the Public Transit Infrastructure Funding (PTIF)
received from the federal government. The program will allow existing transit stops to
be upgraded and the install of new transit shelters to accommodate various levels of
passenger demand. The shelter upgrades enhance accessibility by being designed
barrier free and to accommodate passengers with mobility devices.
Remaining Useful Life
The following summarizes the Transit service area remaining useful life. The useful life
of an asset is the estimated period over which the City expects to use the asset.
Estimates are based on the calculated age (not observed age) and do not take into
consideration any betterments that extend the useful life of the asset(s). Ideally, as
condition assessments are completed the 'observed' age would be used in calculating
remaining useful life. The ages of the transit service area assets are variable and with
efforts to extend the life by application of lifecycle treatments. Table 4 shows the transit
remaining useful life details.
Table 4: Transit Remaining Useful Life
Asset
Inventory
Expected
Useful Life
(Yrs)2
Ave.
Remaining
Useful Life
(Yrs)
Percent of Useful
Life Remaining
Transit Facilities
45
0
0%
Fleet
11
0
0%
Miscellaneous
13
0
0%
Transit Remaining Useful Life3
33
0
0%
1.4
Asset Risk Assessment
The consequences of failure for Transit assets have been determined manually by City
staff based on a standardized chart for consequence (found in Appendix B). The
assessment considers environmental, economical, social, life safety, legislation and
corporate reputation as factors when scoring consequence.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Transit services high risk assets is $23 million.
2 Uses average of asset classes/assets
3 Overall RUL and Percent Useful Life remaining are weighted by replacement cost
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies and policies such as the 2022 Transportation Master Plan, the 2012
Public Transit Operations Review and the Official Plan.
Stakeholder and technical levels of service, performance measures and current targets
for the Transit service area are outlined in Table 5 below. Further development of the
City's levels of service is underway in which the proposed levels of service and the
affordability of the service will be analyzed and presented. Future versions of the asset
management plan will also include other proposed levels of service reporting
requirements set forth in the Asset Management Planning for Municipal Infrastructure
Regulation (O.Reg. 588/17).
Table 5: Levels of Service - Transit Service Area
Asset Class: Transit
Service Objective Statement: The City strives to provide a high quality, accessible and affordable service that provides access to the city.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Scope/Availability
A transit system
with access to
all areas of the
City.
Map showing
the extent of
the transit
route system
throughout the
City
See Figure 3:
Peterborough
Transit
Routes
See Figure 3:
Peterborough
Transit Routes
Access to a
service is
provided to
customers by
providing bus
stops within
distance of
addresses
90% percent of
population is within
450m of a bus stop
95% of
population is
within 450m
of bus stop
97% of
population is
within 450m
of bus stop
Provide various
routes and
services to suit
ridership needs
Maintain current
available routes
and services
4 Services -
10 Regular
Routes,
Community
Bus Service ,
Trans-Cab
Service,
Snow Routes
4 Services -
10 Regular
Routes,
Community
Bus Service
, Trans-Cab
Service,
Snow
Routes
Conventional Bus
Vehicle hours per
person
1.4 vehicle hours
1.77 vehicle
hours
1.70 vehicle
hours
Reliability/Quality
Providing
reliable Transit
that meets the
Transit
facilities and
assets are
n/a - new
measure
Transit
facilities and
assets are
Number of
facilities with
overall condition
3 Facilities
n/a - new
measure
2 Facilities
Asset Class: Transit
Service Objective Statement: The City strives to provide a high quality, accessible and affordable service that provides access to the city.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
needs of the
community
maintained in
a state of good
repair
proactively
maintained
and reliable for
intended use
rating of 'Fair' or
better
Percentage of
vehicles that past
their useful life
Max 10%
n/a - new
measure
14%
Unassigned ratio
of vehicles
Max 15%
n/a - new
measure
Conventional
Bus: 10%
Wheelchair
Access:
10%
Average Fleet
Vehicle Age
(Conventional
Buses)
Average of 10 years
Average of 8
years
Average of
12 years
Accessibility
(Specialized
accessible
buses)
Door to door
service is
available to
registered users
Availability of
accessible
transit service
throughout the
City
Door to door
service is
available
Door to door
service is
available
Specialized Bus
Vehicle hours per
person
Min 0.2 vehicle
hours
0.22 vehicle
hours
0.33 vehicle
hours
Figure 3: City of Peterborough Transit Routes
3.0
Asset Management Strategies - Transit Service Area
The transit strategy will primarily focus on the fleet assets with some strategies for the
building assets. Options for which lifecycle activities that could potentially be
undertaken have been explored in various studies and reports such as the
Transportation Master Plan, Transit Route Review and Long-Term Growth Study. The
following table below documents the set of planned actions or 'activities' that the City
undertakes to sustain current levels of service, while managing risk at the lowest
lifecycle cost. The City plans the necessary lifecycle activities at the required time and
does not need to alter the type of activity undertaken. However, with limited funding
available, the interval and timing of the necessary lifecycle activities are affected, which
can have an overall impact on the performance of the asset(s) over its useful life.
Table 6: Transit - Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower
costs or extend asset life (e.g.
better integrated infrastructure
planning and land use planning,
demand management,
insurance, process optimization,
managed failures, etc.).
Older fleet rotated into daily driving fleet less often
Extended warrantee provisions in purchasing
process
Linking the asset management plan to other
studies, master plans and strategies
Public consultation on levels of service
High priority in procurement for purchasing fleet
compatible with current fleet to improve parts and
maintenance costs
Training programs for mechanics and operators to
optimally maintain and operate vehicles
Redundancy of parts and fleet for the system
Annual contribution made to transit management
budget from operational budget to prepare for
repairs and replacements
Budget yearly for accessibility upgrades
Maintenance Activities
Activities include regularly
scheduled inspection and
maintenance, or m
ore significant
repair and activities associated
with unexpected events.
High standard for preventative maintenance that
exceeds the Original Equipment Manufacturer
(OEM) schedule
Biannual government inspections legislated
Annual HVAC, Undercoating, Mirror Replacement
programs
Fluid monitoring with lab analysis performed every
other service to gain insight of future failures
Third party tire checks 2x a year
Monitor OEM bulletins/recalls and be ready to
replace and repair
Strategy Type
Facilities are part of the corporate wide facility
preventative maintenance program
Renewals/Rehabilitation:
Includes significant repairs
designed to extend the life of the
asset (e.g. the lining of iron
watermains can defer the need
for replacement).
Current Practice
Software license upgrades yearly to ensure
system works and meets applicable legislation
and standards for Stop Call system
Reactive renewals program
Reuse of tire casings
Transit vehicles have an engine overhaul at mid-
life (approximately 5 years of age).
Refurbishment line item on budget
Retrofitting buildings to automated systems
Replacement
Activities that are expected to
occur once an asset has reached
the end of its useful life and
renewal/rehabilitation is no
longer an option.
Subject to funding, schedule made yearly
18-year bus
replacement cycle (standard in
industry as best practice life cycle)
Use gas tax when available to replace fleet
Facility components replaced when at end of
useful life through capital planning/business case
Transit procurement initiative to allow for joint
procurement of various transit related vehicles
and equipment
Disposals/Abandonment
Policies
Activities associated with
disposing of an asset once it has
reached the end of its useful life
or is otherwise no longer needed
by the municipality.
Sell problematic fleet (very rare)
Auction retired fleet
Facilities that are no longer needed for the
intended service are either sold, re-purposed or
demolition.
Expansion Programs
Planned activities required to
extend the services to previously
un-serviced areas - or expand
services to meet growth
demands.
Use transit reserve potentially when required
Cost recovery contract programs used for
expansion programs for post secondary school
routes
Tie accessible stop improvement program to road
reconstructions
Future Strategies
Review alternate fuels periodically for potential
use
Consider electric vehicles
Updating the vehicle storage to increase fleet
capacity
Expanding the use of sponsorship to fund projects
Adding real-time GPS to buses
Strategy Type
Current Practice
Reviewing partnership with MetroLinx for fleet
purchases if feasible in the long term and with
customization fees
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Transit services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Risk Trade Offs
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are
not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Public health and safety - assets not adequate/available for emergency
response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance
now needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Potential risks associated with the City's ability to effectively deliver established service
levels are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Impacts associated with above risks include:
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance
now needing replacement)
Planned budget/needs forecast not reflective of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
All City services, including Transit services are reviewed and identified in the City's
Business Continuity Plan (BCP) and prioritization process. The BCP identifies the key
interruption impacts, recovery time objectives, dependencies, qualified resources
available and a resource back-up strategy should services be interrupted. The BCP is
reviewed and updated regularly to ensure that critical services are not interrupted,
minimizing risks.
The choice of strategy for maintaining Transit assets considers the risk of failure of the
assets, the risk to service delivery and the risk to other services dependant on this
service area. Strategies implemented are at the lowest cost in order to reduce the
burden on the tax base and user fees where possible and to maintain the current levels
of service.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk
treatment plan for non-acceptable risks is planned and will be included in future
versions of the asset management plan when completed.
Strategies implemented are primarily at the lowest cost in order to reduce the burden on
the tax base and user fees in order to maintain the current levels of service at the lowest
risk.
3.2
Lifecycle Models, Interventions, and Cost of Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed4 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement)
are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
4 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of S
ervice
The options analysis of the lifecycle activities that could be undertaken were reviewed
with Transit services subject matter experts. Lifecycle activity options were discussed
and determined that the current planned activities are appropriate and the most cost-
effective option(s). Details related to the Transit services available funding, investments
and shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 3 below shows the Transit service area projected 10-year lifecycle
costs (asset renewal and replacement activities required for existing assets) and
performance to maintain current levels of service. For details on current levels of
service descriptions, measures and targets and current performance, refer to Table 5 in
Section 2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for
that asset/asset class. Where asset condition data was not available, age-based
condition ratings were applied.
-
Table 7: Transit Services 10-Year Lifecycle Associated Costs - Delivering Current Levels of Service
Lifecycle Activity
Costs -
Transit Services
Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
Total 10-Yr
Transit
$0
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$40,589,861
Annual Total
$0
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$40,589,861
Average Annual
Lifecycle Cost
$0
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
$4,058,986
Based on the lifecycle assessment for Transit assets (for renewal and replacement), it is estimated that the City would need to spend an average of $4.1 million
per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 4: 10-Year Forecasted Performance for Maintaining Levels of Service - Transit
Services
Figure 4 above illustrates the performance (condition) of Transit Services assets over
the 10-year forecast. The estimated average combined annual expenditures to
maintain these conditions is approximately $4.1 million.
Attachment #5: Solid Waste Management
Service Area
Infrastructure
Value
$57.5M
Annual Renewal
Needs
$1.1M
Overall
Condition
3.0
Fair
High Risk Asset
Value
$10M
17%
Trend
1.0
Summary of Solid Waste Management
Asset classes that fall under the solid waste management service area are facilities
(landfill and surrounding buffer zones), houses on the landfill buffer land, Hazardous
Household Waste Depot at 400 Pido Rd., Recycling Centre at 390 Pido Rd., fleet
vehicles and equipment.
Annual renewal needs are based on lifecycle management strategies and represent the
estimated amount of capital the City needs to reinvest in its existing asset inventory on
an annual basis over the next 10 years to sustain the current levels of service (based on
25-yr investment forecast).
Table 1 below details the City of Peterborough's inventory for the solid waste
management service area. The force mains that move leachate from the landfill to the
wastewater treatment plant have been included in the wastewater analysis.
1.1
Inventory Details
Table 1: Solid Waste Management Asset Inventory
Asset
Class
2023
Quantity
Unit of Measure
Facilities
Landfill
411,365
Sq.m
Hazardous Waste Depot
169
Sq.m
Asset
Class
2023
Quantity
Unit of Measure
Recycling Centre
44,052
Sq.m
Access Drive/Roadways
1
Each
Fleet
Garbage Trucks
18
Each
Light Duty Truck
2
Each
Land
Landfill Buffer
969
Sq.m
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the solid waste management
service area totalled $58.4 million. Replacement costs were determined using different
valuation methods, such as unit cost multipliers based on recent construction projects,
condition assessments or historical costs inflated to 2023 where recent assessments or
costing information was not available.
Figure 1: Solid Waste Management -Replacement Cost by Asset Class
REPLACEMENT COST BY ASSET CLASS
SOLID WASTE MANAGEMENT
($MILLIONS)
Facilities, $35 ,
61%
Fleet, $6 , 11%
Land, $16 ,
28%
Table 2: Solid Waste Management - Replacement Costs by Asset Class
Asset Category & Class
2023
Replacement Cost
Facilities
$34,822,609
Landfill
$24,198,800
Hazardous Waste Depot
$157,598
Recycling Centre
$9,759,602
Access Drive/Roadways
$706,610
Fleet
$6,435,811
Garbage Trucks
$6,354,992
Light Duty Truck
$80,819
Land
$16,236,878
Landfill Buffer
$16,236,878
Solid Waste Management Total
$57,495,299
1.3
Asset Condition and Remaining Useful Life
The City's solid waste management service area is currently rated in overall fair
condition (weighted average). A building condition assessment was completed for the
Recycling Centre and Landfill Scale house in 2021-2022 and is anticipated to be
updated in 2028. Where building condition assessments are not completed, age-based
ratings or recommended high level ratings by staff are applied. Based on replacement
cost, 23% or $13 million are rated very good, 31% or $18 million are rated good, 24% or
$14 million are fair and 22% or $13 million are rated poor to very poor. Figure 2 and
Table 3 provide condition details of the solid waste management service area.
Figure 2: Solid Waste Management - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT
COST
SOLID WASTE MANAGEMENT
($MILLIONS)
Very Good,
$13 , 23%
Good, $18 ,
31%
Fair, $14 , 24%
Poor, $6 , 10%
Very Poor, $7 ,
12%
Table 3: Solid Waste Management - Asset Class Condition Ratings
Asset Category & Class
2023
Condition Rating
Facilities
Landfill
Fair
Hazardous Waste Depot
Poor
Recycling Centre
Fair
Access Drive/Roadways
Fair
Fleet
Garbage Trucks
Poor
Light Duty Truck
Very Good
Land
Landfill Buffer
Very Good
Solid Waste Management Overall
Condition1
Fair
1 Weighted by replacement cost
Facilities
Solid waste facilities are rated in overall good condition. The City of Peterborough and
County of Peterborough entered into an agreement in 2002 to jointly own and operate
the Bensfort Rd Landfill on a 50-50 cost share basis. The Hazardous Waste Depot,
Recycling Centre and Landfill site are currently rated good (high level recommendation
by City staff). Landfill assets include weigh scales, rental properties (houses)
surrounding the landfill, sitework/roadways, gas capture system and leachate system.
Cell 2 of the north fill area is nearing completion and will be capped in 2020. Cell 3 will
continue to receive waste for an estimated four to five more years with Cell 4 design
and construction planning anticipated to start in 2020.
Fleet
Solid Waste Management fleet ratings are based on both age and recommended
ratings provided by staff. Fleet vehicles include garbage trucks and light duty pick up
trucks. The City's fleet maintenance plan incorporates ministry requirements and
industry best practices which maintains a high level of vehicle health. Predictive
processes are utilized when scheduling major repairs such as engine, transmission and
axle repairs. This ensures that the right maintenance activities are being carried out at
the correct time throughout the vehicle's life cycle.
Remaining Useful Life
The following summarizes the solid waste management service area remaining useful
life. The useful life of an asset is the estimated period over which the City expects to
use the asset. Estimates are based on the calculated age (not observed age) and do
not take into consideration any betterments that extend the useful life of the asset(s).
Ideally, as condition assessments are completed the 'observed' age would be used in
calculating remaining useful life. The age of the solid waste management service area
is variable and with efforts to extend the life by application of lifecycle treatments, there
isn't necessarily a linear relationship between age and condition. Table 4 shows the
solid waste management remaining useful life details.
Table 4: Solid Waste Management Remaining Useful Life
Asset
Inventory
Expected
Useful Life
(Yrs)2
Ave.
Remaining
Useful Life
(Yrs)
Percent of Useful
Life Remaining
Facilities
33
12
36%
Fleet
10
0
0%
Land Buffer
189
166
88%
Solid Waste Remaining Useful
Life3
40
20
49%
1.4
Asset Risk Assessment
Currently, the consequences of failure for solid waste assets have been determined
manually by City staff based on a standardized chart for consequence (found in
Appendix B). The condition of the assets (inspected where available) was used to
evaluate the likelihood that an asset would fail.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Solid Waste high risk assets is $10 million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
2 Uses average of asset classes/assets
3 Overall RUL and Percent Useful Life remaining are weighted by replacement cost
plans, studies and policies such as the 2022 City of Peterborough Waste Management
Master Plan Update.
Stakeholder and technical levels of service, performance measures and current targets
for the Solid Waste service area are outlined in Table 5 below. Further development of
the City's levels of service is underway in which the proposed levels of service and the
affordability of the service will be analyzed and presented. Future versions of the Asset
Management Plan will also include other proposed levels of service reporting
requirements set forth in the Asset Management Planning for Municipal Infrastructure
Regulation (O.Reg. 588/17).
Table 5: Levels of Service - Solid Waste Management Service Area
Service Area: Solid Waste Management
Service Objective Statement: The City strives to manage solid waste in an environmentally and fiscally sustainable manner that is responsive, reliable and
available to all, along with meeting legislative requirements.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Responsiveness
Waste is not
missed during
allocated pick-
up times
Average
number of
complaints per
month
12.5 Recycling
complaints/month
54 Garbage
complaints/month
13 Green waste
complaints/month
No update
available
Compliance
with Ministry
of the
Environment
and Climate
Change
100% Compliance
based on
Audits/Inspections
Compliant
No update
available
Minimum
collected
tonnage of
recycling,
organics, and
household
hazardous
waste
11,975 tonnes of
recycling
collected, 6,640
tonnes of
organics
collected, 240
hazardous waste
collected
7,281 tonnes
recyclables.
6,735 tonnes
leaf and yard
waste;
1,659 tonnes
of organics;
337 tonnes of
hazardous
waste
No update
available
Service Area: Solid Waste Management
Service Objective Statement: The City strives to manage solid waste in an environmentally and fiscally sustainable manner that is responsive, reliable and
available to all, along with meeting legislative requirements.
Scope/Availability
Facilities are
available during
business
operation hours
Facilities open
during the
hours of
8:00am-
4:30pm
Monday to
Friday
Household
Hazardous
Waste Depot
open Wednesday
to Saturday from
8:00am-4:00pm
Landfill open
from 8:00am-
4:45pm Monday
to Friday and
Saturday
8:00am-3:45pm
Household
Hazardous
Waste Depot
open
Wednesday to
Saturday from
8:00am-4:00pm
Landfill open
from 8:00am-
4:45pm Monday
to Friday and
Saturday
8:00am-3:45pm
Percent of
waste diverted
from the
Landfill
Minimum 40% of
waste diverted
55% of waste
diverted
No update
available
Reliability/Quality
Providing
reliable solid
waste
management
facilities and
assets that
meet the needs
of the
community
Solid waste
management
facilities and
assets are
maintained in a
state of good
repair
Solid waste
management
facilities assets
are proactively
maintained and
reliable for
intended use
Solid waste
management
facilities assets
are proactively
maintained and
reliable for
intended use
Number of
facilities with
FCI of 10% or
better
2 Facilities
n/a - not
reported
1 Facility
Percentage of
vehicles that
past their
useful life
Max 10%
n/a - not
reported
50%
Unassigned
ratio of
Vehicles
Max 10%
n/a - not
reported
10%
3.0
Asset M
anagement Strategies - Solid Waste Management
Solid waste management includes the collection and transport of waste and the
processing of that waste. Recycling and hazardous waste management have been
contracted out to external agencies. Most of the strategies currently in place for these
streams have been explored and analyzed by the contractor however the City remains
involved to ensure current levels of service are maintained. The following table below
documents the set of planned actions or 'activities' that the City undertakes to sustain
current levels of service, while managing risk at the lowest lifecycle cost. The City plans
the necessary lifecycle activities at the required time and does not need to alter the type
of activity undertaken. However, with limited funding available, the interval and timing of
the necessary lifecycle activities are affected, which can have an overall impact on the
performance of the asset(s) over its useful life.
Table 6: Solid Waste Management - Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower
costs or extend asset life (e.g.
better integrated infrastructure
planning and land use planning,
demand management,
insurance, process optimization,
managed failures, etc.).
Training of backup staff for landfill staff coverage.
Ensure that contracted staff at recycling and
hazardous waste facilities training is renewed
yearly.
Linking the asset management plan to other
studies, master plans and strategies
Public consultation on levels of service
Yearly inspection programs for the landfill,
Regulations require some inspections more
frequently.
Hourly tracking of equipment usage.
CCTV program for leachate system.
Property Management division inspects rental
properties in landfill buffer.
Maintenance Activities
Activities include regularly
scheduled inspection and
maintenance, or m
ore significant
repair and activities associated
with unexpected events.
Contractors apply an approved preventative
maintenance program for equipment.
Scales are calibrated and checked twice a year.
Facility maintenance for recycling centre is
currently Ad Hoc.
Landfill inspections trigger maintenance program
changes at landfill.
Hours of operations are tracked and trigger
preventative maintenance activities.
Leachate collection system maintained based on
Environmental Compliance Approval (ECA)
requirements.
Strategy Type
Current Practice
Garbage Truck fleet is part of the City's fleet
management program for maintenance.
Renewals/Rehabilitation:
Includes significant repairs
designed to extend the life of the
asset (e.g. the lining of iron
watermains can defer the need
for replacement).
Ad Hoc renewals at hazardous waste depot.
Recycling centre rehabilitations managed by the
City Facility Manager.
Rental properties maintained by City Facility
Manager.
Pumps in leachate system are rebuilt.
Completed based on review of records gathered
from operating/maintenance activities. If issues
are identified by O&M activities, then the asset is
scheduled for renwal/rehabilitation
Replacement
Activities that are expected to
occur once an asset has reached
the end of its useful life and
renewal/rehabilitation is no
longer an option.
Replacement of landfill equipment is determined
by age of the asset, the number of hours in
service and the cost of continued maintenance.
Fleet is replaced based on the age of the assets.
Service truck is traded in when replaced.
Facility assets are replaced based on actual
findings and recommendations from building
condition assessments or during in-field
inspections by staff during maintenance activities.
Disposals/Abandonment
Policies
Activities associated with
disposing of an asset once it has
reached the end of its useful life
or is otherwise no longer needed
by the municipality.
Dispose of assets when cost of maintenance is
greater than value or replacement parts are no
longer available.
Compost site at Harper road to be abandoned in
2019 based on ECA.
Landfill once closed will be maintained by the City
for environmental purposes for 175 years.
Landfill will be retired once capacity has been
reached.
Rental properties sold/removed based on cost to
maintain vs. revenue from rental generated.
Expansion Programs
Planned activities required to
extend the services to previously
un-serviced areas - or expand
services to meet growth
demands.
Consultation regarding waste disposal capacity
capabilities in 4-5 years.
Future Strategies
Provincial regulation changes may lead to city no
longer managing materials recycling facilities in
the future.
Strategy Type
Current Practice
The Province currently proposing many changes
to solid waste management the City and County
are preparing to be ready for these changes.
Source separated organics to be introduced to the
City once a site, process and fleet are in place.
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Emergency Services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Changes to Regulatory/Legislated standards
Risk Trade Offs
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are
not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Public health and safety - assets not adequate/available for emergency
response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance
now needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Risks relating to asset failure are mitigated though condition assessment programs,
maintenance programs (legislated and best practices) and scheduled renewal programs
which ensure assets are in acceptable condition and are available to achieve the
determined levels of services. Risks related to fleet asset failures are addressed
through proactive fleet maintenance and adequate vehicle storage to ensure adequate
service readiness.
The solid waste management actively invests in maintaining the landfill assets in order
to meet provincial regulations. The recycling and hazardous waste management
programs are primarily based on contracts. It is recommended to align asset
management lifecycle strategies with capital plans highlighting the impact that budget
decisions have on the condition, useful life, maintenance costs, future
rehabilitation/replacement funding needs, levels of service and risk/liability.
All City services, including Solid Waste Management are reviewed and identified in the
City's Business Continuity Plan (BCP) and prioritization process. The BCP identifies the
key interruption impacts, recovery time objectives, dependencies, qualified resources
available and a resource back-up strategy should services be interrupted. The BCP is
reviewed and updated regularly to ensure that critical services are not interrupted,
minimizing risks.
The choice of strategy for maintaining Solid Waste Management assets considers the
risk of failure of the assets, the risk to service delivery and the risk to other services
dependant on this service area. Strategies implemented are at the lowest cost in order
to reduce the burden on the tax base and user fees where possible and to maintain the
current levels of service.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk
treatment plan for non-acceptable risks is planned and will be included in future
versions of the asset management plan when completed.
3.2
Lifecycle Models, Interventions, and Cost of Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed4 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement)
are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
4 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of S
ervice
The options analysis of the lifecycle activities that could be undertaken were reviewed
with Solid Waste Management subject matter experts. Lifecycle activity options were
discussed and determined that the current planned activities are appropriate and the
most cost-effective option(s). Details related to Solid Waste Management available
funding, investments and shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 3 below shows the Solid Waste Management service area projected
10-year lifecycle costs (asset renewal and replacement activities required for existing
assets) and performance to maintain current levels of service. For details on current
levels of service descriptions, measures and targets and current performance, refer to
Table 5 in Section 2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for
that asset/asset class. Where asset condition data was not available, age-based
condition ratings were applied.
-
-
Table 7: Solid Waste Management Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle
Activity Costs -
Solid Waste
Mgmt. Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
Solid Waste
Management
Assets
$0 $1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$11,325,876
Annual Total
$0 $1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$11,325,876
Average Annual
Lifecycle Cost $1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
$1,132,588
Based on the lifecycle assessment for Emergency services assets (for renewal and replacement), it is estimated that the City would need to spend an average of $1.1
million per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 3: 10-Year Forecasted Performance for Maintaining Levels of Service - Solid
Waste Management
Figure 3 above illustrates the performance (condition) of Solid Waste assets over the
10-year forecast. The estimated average combined annual expenditures to maintain
the above conditions is approximately $1.1M.
Attachment #6: Community Housing Service
Area
Infrastructure
Value
$326M
Annual
Renewal Needs
$9.6
Overall
Condition
2.0
Poor
High Risk
Asset Value
$31.9M
10%
Trend
1.0
Summary of Community Housing
Asset classes that fall under the Community Housing service area include detached
homes, semi-detached, townhomes and apartments. Currently, the housing stock
owned by the City of Peterborough consists of Rent-Geared-to-Income (RGI) units and
affordable housing units. Annual renewal needs are based on lifecycle management
strategies and represent the estimated amount of capital the City needs to reinvest in its
existing inventory on an annual basis over the next 10 years to sustain the current
levels of service (based on the 25-yr investment forecast). Trends are neutral with no
significant improvement in conditions primarily due to the large backlog of deferred
work.
1.1
Inventory Details
Table 1 details the City of Peterborough's inventory for the Community Housing service
area
Table 1: Community Housing Service Area Asset Inventory
Asset
Class
2023
Quantity
(units)
Unit of Measure
Detached/Semi Detached
Homes
44
Units
Townhomes
466
Units
Apartments
627
Units
Total
1,137
Units
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the Community Housing service
area totalled $326.3 million. Replacement costs were determined using construction
unit cost multipliers for the different types of facility element. Unit costs are taken from
the current asset management & planning software solution1 database and inflated
(2023 dollars) to determine the updated facility replacement costs.
Table 2: Community Housing - Replacement Cost by Facility Element Asset Class
Asset
Class
2023
Replacement Cost
Substructures
$52,084,735
Shell
$139,582,144
Interior Finishes
$68,837,138
Services - electrical and mechanical
$45,635,643
Equipment and Furnishings
$2,624,428$
Special Construction
$116,567
Sitework
$17,428,282
Community Housing Overall
Replacement Cost
$326,308,937
1 PHC is currently using Ameresco's AssetPlanner
1.3
Asset Condition and Remaining Useful Life
The Community Housing service area is currently rated in overall poor condition
(weighted by replacement cost). The most recent BCA's for the housing portfolio was
last completed in 2020. Based on replacement cost, 3% or $9.8 million are very good,
5% or $16.9 million are good, 30% or $98.1 million are rated fair, and 62% or $15.6
million are rated poor and very poor Figure 1 and Table 3 provide condition details of
the social housing service area.
Figure 1: Community Housing - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT
COST
COMMUNITY HOUSING
($MILLIONS)
Good, $17 , 5%
Fair, $98 , 30%
Poor, $97 , 30%
Very Poor,
$104 , 32%
Very Good, $10
, 3%
Table 3: Community Housing - Asset Class Condition Ratings
Asset
Class
2023
Condition Rating
Substructures
Fair
Shell
Poor
Interior Finishes
Poor
Services - electrical and mechanical
Poor
Equipment and Furnishings
Very Poor
Special Construction
Very Poor
Sitework
Poor
Community Housing Overall Condition2
Poor
2 Weighted by replacement cost
Condition Ratings
Condition ratings for each asset class were calculated using data in the asset
management & planning software system. Condition ratings are based on observed
age-based ratings which provide actual condition of the assets at the time of the
assessment. Building condition assessments (BCA'S) are anticipated to be undertaken
every five to seven years (includes both City and County of Peterborough housing
sites). In conjunction with the City's asset management strategy, BCA's will significantly
improve monitoring of Community Housing providers' capital reserves as well as identify
capital repair needs and provide capacity to pay.
Remaining Useful Life
The following summarizes the Community Housing service area remaining useful life.
The useful life of an asset is the estimated period over which the City expects to use the
asset. Estimates are based on the average of the observed age and do not take into
consideration any betterments that extend the useful life of the asset(s). Facility assets
shown in Table 4 below are based primarily on the on an average life span for facility
structures of 75 years. The age of the Community Housing service area is variable and
with efforts to extend the life by application of lifecycle treatments, there isn't necessarily
a linear relationship between age and condition. Table 4 shows the social housing
remaining useful life details.
Table 4: Community Housing Remaining Useful Life
Asset
Inventory
Expected
Useful Life
(Yrs)
Ave.
Remaining
Useful Life
(Yrs)
Percent of Useful
Life Remaining
Facilities
41
6
15%
Community Housing Remaining
Useful Life 3
41
6
15%
1.4
Asset Risk Assessment
The consequences of failure for Community Housing assets have been determined
manually by City staff based on a standardized chart for consequence (found in
Appendix B). The assessment considers environmental, economical, social, life safety,
legislation and corporate reputation as factors when scoring consequence.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
3 Overall RUL and Percent Useful Life remaining are weighted by replacement cost
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Community Housing high risk assets is $31.9
million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies and policies such as the Peterborough 10-Year Housing and
Homelessness Plan and its latest update in 2022.
Stakeholder and technical levels of service, performance measures and current targets
for the Community Housing service area are outlined in Table 5 below. Further
development of the City's levels of service is underway in which the proposed levels of
service and the affordability of the service will be analyzed and presented. Future
versions of the Asset Management Plan will also include other proposed levels of
service reporting requirements set forth in the Asset Management Planning for
Municipal Infrastructure Regulation (O.Reg. 588/17).
Table 5: Levels of Service - Community Housing
Service Objective Statement: The Peterborough Housing Corporation strives to be recognized as a community leader and housing provider of choice that
delivers safe, quality and affordable accomodations to engage residents in a vibrant and inclusive community.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Efficiency
Workorders
responded to in
a timely
manner
All work orders
are responded
to within 24
hours of
submission
100% of work
orders
responded to
within 24 hrs
Number of
households on
waiting list for
housing
Less than
1000
households
waiting for
housing
1339
households
seeking
placement
1848
Reliability/Quality
Providing
reliable and
high-quality
Community
Housing that
meets the
needs of the
community
Community
Housing is
maintained in a
state of good
repair
Facilities are
proactively
maintained
and reliable
for intended
use
Facilities are
proactively
maintained and
reliable for
intended use
Maintain a
minimum
facility
condition rating
Average
facility
condition
rating of 'Fair'
or better.
Poor
Fair
Average
Facility
Condition Index
(FCI) value for
all facilities
Fair (Between
5% and 10%)
n/a - not
reported
6.48% (Fair)
Number of
facilities with
FCI of 10% or
better
All community
housing
Facilities
(100%)
n/a - not
reported
84%
3.0
Asset M
anagement Strategies - Community Housing
The following table describes the current strategies and activities for the Community Housing service area to maintain the
current levels of service. Options for which lifecycle activities that could potentially be undertaken are analyzed when an
asset is no longer meeting service levels or its intended purpose. An asset will either be rehabilitated (for the interim or
for the long term) or eliminated through sale or demolition. The lifecycle strategies below consider the useful life of the
assets and assumes the investment costs over the lifecycle of the assets, including capital, operating costs such as
energy, maintenance, financing costs and other relevant costs.
Table 6: Community Housing - Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs or
extend asset life (e.g. better integrated
infrastructure planning and land use
planning, demand management,
insurance, process optimization, managed
failures, etc.).
PHC review of housing in 2015 for suitability, and
sustainability Capital Financing and Community
Revitalization Plan to understand demand, needs and
develop direction
Model suites available to view by prospective customers
Linking the asset management plan to other studies, master
plans and strategies
Public consultation on levels of service
Reduces vacancy
Help prospective customers determine if the suite will suit
their needs
PHC organizes capital projects in groups to reduce the costs
or with other housing organizations
Non-smoking policy in Affordable Housing Units Portfolio and
new units to reduce damage to units
Bulk tendering for the supply of property insurance and gas
utilities
Stakeholder (The City) reports to secure funding that include
Creative capital planning strategies
Identification and cultivation of partnerships
Strategy Type
Current Practice
Partner specific plans
Maintaining, and updating maintenance training and
certifications for m
aintenance staff
Financing strategy to save some capital budget yearly for
unplanned maintenance activities fund
Maintenance Activities
Activities include regularly scheduled
inspection and maintenance, or more
significant repair and activities associated
with unexpected events.
Legislative maintenance programs for Fire safety
implemented
Have onsite personnel for maintenance of units
Some personnel are shared between sites
Seasonal maintenance activities tendered
Have a dedicated carpentry shop to work on cabinetry,
doors, windows and other housing carpentry
Introduced a modern computerize maintenance
management system (CMMS) to track work orders and staff
time
Renewals/Rehabilitation:
Includes significant repairs designed to
extend the life of the asset (e.g. the lining
of iron watermains can defer the need for
replacement).
Carpet replacement program to replace with longer life span
flooring
Energy efficiency renewals strategy to improve housing
energy costs
Seek to renew assets with modern and resilient materials
Responsive renewals/rehabilitation when tenant vacates
facility
Targeted renewals in programs such as performing all
renewals of specific items over a period, area, or floor
Replacement
Activities that are expected to occur once
an asset has reached the end of its useful
life and renewal/rehabilitation is no longer
an option.
End of debenture period could trigger replacement of a unit
Replace assets when they reach the end of their service
lives
Strategy Type
Current Practice
Disposals/Abandonment Policies
Activities associated with disposing of an
asset once it has reached the end of its
useful life or is otherwise no longer needed
by the municipality.
Properties sold based on not meeting housing needs any
more (unit size or location)
Sell properties deemed too expensive to continue to
maintain
Sell properties when market changes make a property
attractive for sale such as location, local service changes,
school locations or access to health care
Expansion Programs
Planned activities required to extend the
services to previously un-serviced areas -
or expand services to meet growth
demands.
Expand properties deemed needed for redevelopment using
Ontario's Places to Grow density targets as a guide
Expand locations that have marketable qualities (same as
the market changes in disposals)
Expansion limited to municipal bylaws and regulations
Some properties have limitations due to local environment
and size for future expansion
Expansion requires access to debt funding,
municipal/provincial/federal funding opportunities
Creative capital planning applied to seek expansion
Future Strategies
Looking into bulk purchasing agreement for energy utilities
Seeking opportunities to find energy efficiency and
generation where possible including green energy
Intensification of units/properties during site redevelopments
Adjust development layouts to increase emergency response
access and community development
Increase accessibility of units when redeveloped
Debenture period ending opening opportunities for
investigating new strategies for housing needs
Using social bonds for housing strategies
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Community Housing services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Risk Trade Offs
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are not
undertaken, they may sustain or create risk consequences. These risk consequences
may include (but not limited to):
Public health and safety - assets not adequate/available for emergency response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance now
needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Risks relating to asset failure are mitigated though condition assessment programs,
maintenance programs (legislated and best practices) and scheduled renewal programs
which ensure assets are in acceptable condition and are available to achieve the
determined levels of services.
Assets within the facility that are associated with the safety, health, and well being of the
tenants (e.g. building shell, stairs, structural, fire & life safety, and elevating devices) are
considered high-risk due to the nature of the service it provides to the tenants. These are
considered priority projects for repair/replacement relative to other non-high-risk assets.
Where health and life safety factors are not an issue, projects are prioritized based on
established criteria. In undertaking repair, preventative maintenance and capital work, it is
the City's policy to consider energy conservation measures where possible.
All City services, including Community Housing services are reviewed and identified in the
City's Business Continuity Plan (BCP) and prioritization process. The BCP identifies the
key interruption impacts, recovery time objectives, dependencies, qualified resources
available and a resource back-up strategy should services be interrupted. The BCP is
reviewed and updated regularly to ensure that critical services are not interrupted,
minimizing risks.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk treatment
plan for non-acceptable risks is planned and will be included in future versions of the asset
management plan when completed.
3.2
Lifecycle Models, Interventions, and Cost of Service
Overview of Lifecycle Models
Service area lifecycle models have been developed4 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement) are
documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and of
asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short, lifecycle
models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
4 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
3.3
Lifecycle Options Analysis and Costs of S
ervice
The options analysis of the lifecycle activities that could be undertaken were reviewed with
the Community Housing services subject matter experts. Lifecycle activity options were
discussed and determined that the current planned activities are appropriate and the most
cost-effective option(s). Details related to the Community Housing available funding,
investments and shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 2 below shows the Community Housing projected 10-year lifecycle
costs (asset renewal and replacement activities required for existing assets) and
performance to maintain current levels of service. For details on current levels of service
descriptions, measures and targets and current performance, refer to Table 5 in Section 2
- Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for that
asset/asset class. Where asset condition data was not available, age-based condition
ratings were applied.
-
-
Table 7: Community Housing Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle Activity Costs -
Community Housing
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
Housing Facility Assets
$0
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$95,691,309
Annual Total
$0
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$95,691,309
Average Annual Lifecycle Cost
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
$9,569,131
Based on the lifecycle assessment for Community Housing assets (for renewal and replacement), it is estimated that the City would need to spend an average of $9.6
million per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 2: 10-Year Forecasted Performance for Maintaining Levels of Service -
Community Housing
Figure 2 above illustrates the performance (condition) of Community Housing assets
over the 10-year forecast. The estimated average combined annual expenditures to
maintain the above conditions is approximately $9.6 million.
Attachment #7: Recreation
Infrastructure
Value
$227M
Annual Renewal
Needs
$5.0M
Overall
Condition
3.0
Fair
High Risk Asset
Value
$32M
14%
Trend
1.0
Summary of Recreation
Recreation assets include Aquatics & Equipment, Arenas, the Marina, & Recreation
Facilities, Parks Buildings, Parks Amenities and Recreational Land - Developed
Parkland locations. The Plan now covers all of Recreation service area assets where
previous iterations of the Plan only covered the Arenas service area. Annual renewal
needs are based on lifecycle management strategies and represent the estimated
amount of capital the City needs to reinvest in its existing asset inventory on an annual
basis over the next 10 years to sustain the current levels of service (based on the 25-yr
investment forecast). Condition rating trends remain neutral from the previous reported
Plan, with an overall condition rating of fair.
1.1
Inventory Details
Table 1 details the City of Peterborough's Recreation inventory:
Table 1: Recreation Asset Inventory
Asset Category & Class
2023
Quantity
Unit of Measure
Aquatics & Equipment
Splash Pads and Wading Pools
10
Each
Public Beaches
2
Each
Arenas and Recreation Facilities
Peterborough Memorial Centre
11,082
Sq.m
Morrow Park (total)
4,033
Sq.m
Bi-Centennial Building (Gymnastics
Club)
620
Sq.m
Multi-purpose Building (Morrow
Building)
2,125
Sq.m
Peterborough Agricultural Office
76
Sq.m
East Horse Barn
627
Sq.m
West Horse Barn
586
Sq.m
Asset Category & Class
2023
Quantity
Unit of Measure
Events Equipment
13
Each
Marinas
1
Each
Community and Wellness Centres
2
Each
Park Amenities
Wharfs & Barges
4
Each
Boat ramps
5
Each
Baseball Diamonds
23
Each
Rectangular Fields
10
Each
Tennis Courts
8
Each
Basketball Courts
24
Each
Play Equipment
60
Each
Lacrosse Bowls
1
Each
Picnic Shelters/Pavilions
3
Each
Skate Parks
1
Each
Parking Lots
11
Each
Park Lighting & Signs
Pooled
Pooled
Park Bleachers & Seating
Pooled
Pooled
Park Buildings
Boathouses
2
Each
Changerooms/Washrooms
10
Each
Maintenance Buildings
1
Each
Fieldhouses
1
Each
Parkland
Regional Parks
12
Each
Community Parks
38
Each
Neighbourhood Parks
79 total (12
embedded in
Regional Parks)
Each
Pocket Parks
14
Each
1.2
Replacement Costs
The estimated year end 2023 replacement costs for Recreation totalled $227 million.
Replacement costs for Recreation assets were taken from multiple sources including
development charge studies, Parks and Open Space Studies, financial records and
historical costs inflated to 2023 dollars. Inventory counts for various parks and open
spaces (land) throughout the City have been shown for information purposes.
Replacement costs for land have not been included in the overall analysis.
Figure 1: Recreation - Replacement Cost by Subservice
REPLACEMENT COST BY SUBSERVICE
RECREATION SERVICES
($MILLIONS)
Aquatics &
Equip., $4.0,
2%
Park
Siteworks,
$6.0, 3%
Equipment,
$0.2, 0%
Facilities,
$176.0, 94%
Fleet, $1.0, 1%
Park
Amenities,
$0.04, 0%
Table 2: Recreation - Replacement Cost by Asset Sub-Class
Asset
Category & Class
2023 Replacement Cost
Aquatics & Equipment
Splash Pads and Wading Pools
$3,693,866
Public Beaches
$237,313
Arenas and Recreation Facilities
Arenas
$96,851,816
Events Equipment
$210,000
Fleet (zamboni, light duty trucks)
$1,115,000
Morrow Park
$16,851,474
Community and Wellness Centres
$53,025,117
Park Amenities
Park Structures (Picnic shelters, pavilions,
wharfs & barges)
$2,187,402
Park Bleachers & Seating
$181,947
Structures (boat ramps)
$871,807
Fields & Sports Pads
$29,666,775
Playgrounds & Water Plays
$7,314,801
Park Facilities
Boathouses
$2,214,734
Asset
Category & Class
2023 Replacement Cost
Changerooms/Washrooms
$4,207,148
Maintenance Buildings
$302,917
Fieldhouses
$405,516
Marinas
$2,337,322
Park Siteworks
Parking Lighting & Signs
$4,247,277
Parking Lots
$1,322,008
Recreation Total
$227,243,924
1.3
Asset Condition and Remaining Useful Life
The overall condition rating for Recreation is currently rated fair. Recreation facilities
that have had building condition assessments (previously completed in 2021-2022) have
ratings shown from the assessments otherwise all other assets are rated using an age-
based methodology. Based on replacement cost, 7% or $17M are rated very good, 29%
or $67 million in good condition, 40% or $91 million in fair condition and 24% or $54
million in poor to very poor condition. Figure 2 and Table 3 provide condition details of
the Recreation assets.
Figure 2: Recreation - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT
COST
RECREATION SERVICES
($MILLIONS)
Very Good,
$16.5 , 7%
Good, $66.7 ,
29%
Fair, $90.5 ,
40%
Poor, $32.7 ,
15%
Very Poor,
$20.8 , 9%
Table 3: Recreation - Asset Class Condition Ratings
Asset
Class
2023 Condition Rating
Aquatics & Equipment
Splash Pads & Wading Pools
Good
Public Beaches
Good
Arenas and Recreation Facilities
Facilities
Fair
Equipment
Fair
Fleet
Fair
Park Amenities
Fields and Sports Pads
Fair
Park Bleachers and Seating
Good
Park Structures
Fair
Playgrounds & Water Plays
Poor
Structures
Fair
Park Facilities
Boathouses
Good
Marinas
Poor
Maintenance Buildings
Fair
Fieldhouses
Fair
Park Siteworks
Parking Lighting & Signs
Poor
Parking Lots
Poor
Recreation Overall Condition
Fair
Aquatics & Equipment
Condition ratings for the aquatics and equipment assets are age-based ratings provided
by City staff based on expert knowledge of the assets as they currently exist.
Arenas and Recreation Facilities
Condition ratings for the arena and recreation facilities are based on the most recent
building condition assessments completed in 2021-2022 and use observed age of the
facility elements at the time of the assessment. Other assets use an age-based rating
methodology and have been reviewed by staff to ensure that it reflects the current
conditions until detailed assessments are completed. The City plans to complete BCA's
on a seven to ten year cycle with the next round of assessments anticipated to be
completed in 2028.
Condition ratings for events equipment and fleet is currently rated overall fair, as
assessed based on age. Ice resurfacing equipment condition ratings have been
calculated based on the age and volume of usage of the equipment, assuming a
standard average life cycle of ten years.
The Peterborough Marina operation includes a 92-slip marina operating over a six-
month period, receiving 900-1,000 boats annually. The Marina has been identified as a
need for expansion as it has exhausted its functional space. The expansion is
necessary to provide growth opportunities and attract more transient boater tourism to
Peterborough.
The Peterborough Sport and Wellness Centre is a leisure recreational complex that
offers community recreational programs and services, lifestyle wellness fitness program.
The facility includes leisure and therapy pools; exercise studio, fitness centre, three
gymnasiums, child minding room and three meeting rooms. The PSWC services the
City of Peterborough and surrounding community to the full-time student body at
Sutherland Campus, in partnership with Fleming College.
Parks
In 2019 a Parks and Open Space Assessment was completed. The purpose of the
assessment was to provide a document on the findings of the current state of the
existing parks and open spaces in Peterborough (focusing on neighbourhood parkland)
and develop a Park Development Standards document. The Assessment document
recommended solutions to improve quality and access to the City's existing and future
parkland.
As part of the assessment, quantity, quality/functionality and accessibility to
neighbourhood parks were evaluated. Findings show that overall, the City is below the
recommended standard for quantity of neighbourhood parks per Planning Area
(minimum 1 HA/1,000 population). Quality and functionality of parks were assessed
using a 'minimum' and 'variable' design feature and standards guide. All these aspects
were integrated into a 'Park Equity' assessment methodology in which the quality,
access (to parkland) and inclusivity (the degree to which ALL residents can access
parks and open spaces) of all parks were evaluated. As a result, a prioritized list of 43
parks in need for was provided to the City for consideration.
Remaining Useful Life
The following summarizes Recreation assets remaining useful life. The useful life of an
asset is the estimated period over which the City expects to use the asset. Estimates
are based on the calculated age (not observed age) and do not take into consideration
any betterments that extend the useful life of the asset(s). Ideally, as condition
assessments are completed the 'observed' age would be used in calculating remaining
useful life. The ages of Recreation assets are variable and with efforts to extend the life
by application of lifecycle treatments, there isn't necessarily a linear relationship
between age and condition.
The City had a lease with the Gymnastics Club (end date of September 2020). Future
plans include re-purposing the Bi-Centennial Building at Morrow Park as a City storage
facility due to the mechanical/plumbing and electrical elements reaching the end of life.
Table 4 shows the Recreation service area remaining useful life details.
Table 4: Recreation Remaining Useful Life
Asset
Inventory
Expected Useful
Life
(Ave Yrs.) 1
Ave. Remaining
Useful Life
(Yrs.)
Percent of
Useful Life
Remaining
Aquatics & Equipment
Splash Pads and Wading
Pools
50
28
56%
Public Beaches
100
68
68%
Recreation Facilities
Arenas, Park Facilities,
Other recreation facilities
33
20
39%
Equipment
Events Equipment
10
0
0%
Fleet
Zambonis and light duty
vehicles
10
1
13%
Park Amenities
Fields and Sports Pads
24
4
15%
Park Bleachers and
Seating
Park Structures
Playgrounds & Water
Plays
Structures
Park Siteworks
Park Utilities
29
0
0%
Recreation Remaining
Useful Life
32
12
37%
1 Uses average of asset classes/assets
1.4
Asset Risk Assessment
The consequences of failure for Recreation assets have been determined manually by
City staff based on a standardized chart for consequence (found in Appendix B). The
assessment considers environmental, economical, social, life safety, legislation and
corporate reputation as factors when scoring consequence.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Recreation high risk assets is $31.8 million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies and policies such as the Official Plan (April 2023) and the 2019
Assessment of Parks and Open Spaces.
Stakeholder and technical levels of service, performance measures and current targets
for Recreation are outlined in Table 5 below. Further development of the City's levels of
service is underway in which the proposed levels of service and the affordability of the
service will be analyzed and presented. Future versions of the asset management plan
will also include other proposed levels of service reporting requirements set forth in the
Asset Management Planning for Municipal Infrastructure Regulation (O.Reg. 588/17).
-
Table 5: Levels of Service - Recreation
Asset Class: Recreation - Arenas and Recreation Facilities
Service Objective Statement: The City will strive to ensure that reliable, quality facilities are provided and affordable ice times are available.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Availability
Primetime hour
usage is within
specified
capacity range
Primetime hour
usage between
80%-90%
capacity
95% capacity
Provision of ice time
to community
1 ice surface
for every
11,000
people
1 ice surface
to 14,167
people
1 ice surface
to 16,730
people
Provision of
Recreation and
Culture
Facilities
Available
Recreation
Facilities with
indoor
swimming pool
3 Facilities (1
indoor
swimming
pool)
3 Facilities (1
indoor
swimming
pool)
Ratio of indoor pools
to current population
1:25,000
population
1:85,000
population
1:83,651
population
Affordability
Ice rental is
affordable for
customers
Cost per hour
for ice time is
max. $206/hr
for adult and
$178/hr for
youths (incl.
HST)
$206.25/hr for
adults (incl.
HST)
$178.71/hr for
youths (incl.
HST)
$238.90/hr for
adults (incl.
HST)
$207.03/hr for
youths (incl.
HST)
Average arena
facility condition
rating
Minimum
condition
rating of Fair
Fair
Fair
Reliability/Quality
All Arenas and
Recreation
Facilities are
maintained in a
Arena and
Recreation
Facilities are
proactively
All recreation
and arena
facilities are
proactively
All recreation
and arena
facilities are
proactively
Average Facility
Condition Index (FCI)
value Arenas and
Recreation Facilities
Minimum
Fair (5% -
10%)
n/a - not
reported
8% (Fair)
-
Service Objective Statement: The City will strive to ensure that reliable, quality facilities are provided and affordable ice times are available.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
state of good
repair
maintained
and reliable for
intended use
maintained
and reliable for
intended use.
maintained
and reliable for
intended use.
Number of facilities
with FCI or 10% or
better
6 Facilities
n/a - not
reported
3 Facilities (1
Facility with
no BCA)
Percentage of Arena
fleet (zamboni) in
poor or better
condition
100% of fleet
replacement
value
n/a - not
reported
52% of Fleet
CRV is rated
poor or better.
Climate
Leadership
Facilities are
energy efficient
and
demonstrate
leadership on
climate action
Facilities that
meet our
environmental
objective
Facilities strive
to lower
energy usage
by installing
energy
conservation
measures that
improve
energy
efficiency to
reduce GHG
emissions
Facilities strive
to lower
energy usage
by installing
energy
conservation
measures that
improve
energy
efficiency to
reduce GHG
emissions.
Annual energy
consumption per
Sq.m
1.65 GJ/m2
n/a - not
reported
1.59 GJ/m2
Asset Class: Recreation - Arenas and Recreation Facilities
Asset Class: Recreation - Parks
Service Objective Statement:
The City will strive to provide a public park system that provides opportunites for physical recreation, socialization, cultural
pursuits, community identification, active transportation, nature appreciation and education.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Scope/Availability
Provide public
park and open
space system
within the City
Classifications
of parkland
and open
spaces
available
12 Regional
Parks
38 Community
Parks
67
Neighbourhood
Parks (plus 12
embedded in
Regional
Parks)
14 Pocket
Parks
12 Regional
Parks
38 Community
Parks
67
Neighbourhood
Parks (plus 12
embedded in
Regional
Parks)
14 Pocket
Parks
Average Ratio of
neighborhood parks
to current population
1
hectare/1,000
population
0.75ha/1,000
pop
0.76ha/1,000
pop
Ratio of outdoor
aquatic facilities to
current population
1:25,000 of
pop. for pools
1:7,500 of
pop. for
splash
pads/wading
pools
1:85,000 of
pop. for
pools
1:9,444 for
splash
pads/wading
pools
1:83,651 of
pop. for pools
1:9,295 for
splash
pads/wading
pools
Ratio of play
equipment to current
population
1:1,500 of
population
n/a - not
reported
1:1,394 of
population
Reliability/Quality
Providing
reliable and
high-quality
recreation
facilities and
parks that meet
All recreation
facilities and
parks
amenities are
maintained in a
state of good
repair
Recreation
facilities and
parks
amenities are
proactively
maintained and
Recreation
facilities and
parks
amenities are
proactively
maintained and
Meet minimum
design standards for
neighborhood parks
Meet
minimum
design
standards
n/a - not
reported
43
neighborhood
parks not
meeting
minimum
design
standard
-
Asset Class: Recreation - Parks
Service Objective Statement: The City will strive to provide a public park system that provides opportunites for physical recreation, socialization, cultural
pursuits, community identification, active transportation, nature appreciation and education.
Stakeholder LoS and Measures
Stakeholder Performance
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
the needs of
the community
reliable for
intended use
reliable for
intended use
Park Facilities with
condition rating of
poor or better
15 Facilities
n/a - not
reported
13 Facilities
Percentage of Parks
Amenities assets in
poor or better
condition
100% of
parks
amenities
rated poor or
better.
n/a - not
reported
70%
Stakeholder
Value/Service
Attribute
Technical Measure
3.0
Asset Management Strategies - Recreation
The following table describes the current, preferred strategies and activities for the Recreation service area to maintain the
current levels of service. Options for which lifecycle activities that could potentially be undertaken have been explored in
various needs studies and reports such as the Arenas Needs Study, the Outdoor Water Play Facilities 10 Year Capital
Strategy and the Parks and Open Space Assessment. The following table below documents the set of planned actions or
'activities' that the City undertakes to sustain current levels of service, while managing risk at the lowest lifecycle cost. The
City plans the necessary lifecycle activities at the required time and does not need to alter the type of activity undertaken.
However, with limited funding available, the interval and timing of the necessary lifecycle activities are affected, which can
have an overall impact on the performance of the asset(s) over its useful life.
Table 6: Recreation - Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs or extend
asset life (e.g. better integrated infrastructure
planning and land use planning, demand
management, insurance, process optimization,
managed failures, etc.).
Linking the asset management plan to other studies, master
plans and strategies
Public consultation on levels of service
Arenas & Recreation Facilities
Programs are rotated to arenas in order to make use of facilities
that have the appropriate resources
Staffing changed during events to create staffing efficiency
Rotate older eq
uipment into backup pool
Share mobile equipment between the Arena facilities and the
Wellness Centre
Investigations into when the cost to maintain is greater than the
cost to replace
Arena needs studies to assess how the services are being
delivered to the community and what the needs of the
community are
Strategy Type
Current Practice
Building Condition Assessments completed on a 7-year cycle
Parks (Aquatics, Equipment, Buildings, Amenities)
Development of Parks and Open Spaces study (2019) to
understand needs and develop rejuvenation strategy
Implement Outdoor Water Play Facilities 10-Year Capital
Strategy
Program reviews increase in frequency as a facility ages
Conduct needs assessments to identify areas of need for new
waterplay equipment
Parks assets are inspected bi-annually by staff at the beginning
of season and end of season. These inspections include
equipment that is not under the umbrella of the building
condition assessment program (ex. Zambonis).
Building Condition Assessments completed on a 7-year cycle
Maintenance Activities
Activities include regularly scheduled inspection and
maintenance, or more significant repair and activities
associated with unexpected events.
Arenas & Recreation Facilities
Preventative maintenance programs for Ice Plants and HVAC
and mechanical systems which also include efficiency tests
Maintenance Check Logs for all mobile equipment, compressor
rooms and facility maintenance activities
Public works maintenance program for fleet
Structural reviews of all load bearing assets above head height
and flooring
Strategy Type
Current Practice
Predictive maintenance program in place for critical assets.
Parks (Aquatics, Equipment, Buildings, Amenities)
Preventive maintenance program for playgrounds, basketball
courts, and beaches and waterways. City has 2 permanent
parks staff, they don't have people/funding.
Maintenance as needed for baseball diamonds and irrigation
systems.
Predictive maintenance program in place for critical assets.
Redundancy in equipment to allow rotations and minimize
reactive maintenance downtime
Renewals/Rehabilitation:
Includes significant repairs designed to extend the
life of the asset (e.g. the lining of iron watermains can
defer the need for replacement).
Arenas & Recreation Facilities
Upgrading to high efficiency mechanical equipment changed the
use of the system and improved the service it delivered
Addition of cold-water flood systems for ice resurfacing.
Eliminate potential hot water requirements and equipment
Updated to new building codes when asset needs renewals
Upgrading projects focus on removing asset exposure to
elements
Updating of refrigeration plant equipment and components
based on life cycle analysis
Replacement
Activities that are expected to occur once an asset
Arenas & Recreation Facilities
Combine projects to include the investigations, renewals and
replacements
Strategy Type
Current Practice
has reached the end of its useful life and
renewal/rehabilitation is no longer an
option.
Replace large assets based on condition or efficiency
Operating vs. Replacement cost to strategize
Review engineering specifications to plan for future
replacements
Replacement programs include groups of assets from several
facilities to reduce costs
Replacements considered within the context of the facility
Building codes updates drive programs for replacement of
assets
Parks (Aquatics, Equipment, Buildings, Amenities)
To eliminate the need of lifeguards, reduce operating costs and
extend the waterplay season, phase out wading pools and
replace with splash pads
Replace spray posts with in-ground geysers to reduce
vandalism occurrences and still provide the same flexibility of
use
Replacement considered when age and condition do not meet
minimum standards or capacity of facility (based on public use)
has been reached
Disposals/Abandonment Policies
Activities associated with disposing of an asset once
it has reached the end of its useful life or is otherwise
no longer needed by the municipality.
Arenas & Recreation Facilities
No updates made to facilities deemed beyond service life
Trade in old ice machines as a part of procurement process to
reduce the cost of new machines
Scheduled tear downs and reviews rotated across facilities
Strategy Type
Current Practice
Parks (Aquatics, Equipment, Buildings, Amenities)
Phase out wading pools and replace with splash pads due to
limited time for use, higher operating costs and need for
lifeguards
Considered when age and condition do not meet minimum
standards and capacity of facility (based on public use) h
as
been reached
Expansion Programs
Planned activities required to extend the services to
previously un-serviced areas - or expand services to
meet growth demands.
Arenas & Recreation Facilities
Automation for doors added where possible to reduce wear and
tear on walls, door frames, glass and accessible opening
switches
Light replacement program to LED lights to provide a greater
return on investment
Seek partnerships with schools and private industry to expand
with shared costs
Building code changes often drive expansion programs to meet
new codes
Arena service expectations have changed since buildings
constructed leading to the need for expansion
Changes to accessibility requirements for public buildings drive
expansions, use grants where possible to meet these
requirements
Gender inclusive projects to increase the availability and
opportunity for co-ed sports
Professional Sports League requirements for sports facilities to
remain compliant
Adding multi-purpose rooms to facilities to improve use during
off seasons and for other events
Strategy Type
Current Practice
Keeping more mobile equipment available to increase the
redundancy
Expansion of renewable energy programs and systems to
reduce energy costs for operation
Seek out and apply for appropriate grants to upgrade facilities to
new codes and standards
Parks (Aquatics, Equipment, Buildings, Amenities)
Increased demand at Beavermead park from growth/Little Lake
Master Plan implementation requires additional splash pad for
maintaining levels of service
Install splash pads in the southwest and west areas of the City
to meet growth demands
As opportunities arise, purchase land to create new
Neighbourhood parks or enlarge a small/school site
Where feasible, develop a portion of a Community Park or a
Regional Park to provide Neighbourhood park functions
Alignment of capital plan with studies and master plans to help
help project long term needs
Improve usability and appeal of poor quality Neighbourhood
parks through redevelopment and if possible and required,
through enlargement
The City also hears from facility user groups, who express their
increasing needs for additional facilities, to accommodate
growth.
Future Strategies
Arenas & Recration Facilities
Strategy Type
Current Practice
Follow more recommendations from t he Arena Needs Study and
Vision 2025, A 10-Year Strategic Plan for Recreation, Parks,
Arena and Culture (2016)
Seek out new partnership opportunities to share the cost of
development
Naming rights and sponsorship partners for additional service
funding
Parks (Aquatics, Equipment, Buildings, Amenities)
Carry out needs assessments to help identify best suited
locations for additional waterplay assets to meet demands/levels
of service
Partner with school boards to enhance a portion of a school site
to meet functions of a Neighbourhood Park
Utilize signalized crosswalks and intersections to reduce barrier
effect created by major roads for easier access to recreational
locations
Seek opportunities to increase the integration of services among
major providers (school boards, Peterborough County,
community groups, commercial sector, neighbouring townships,
etc.)
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Recreation Services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Risk Trade Offs
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are not
undertaken, they may sustain or create risk consequences. These risk consequences
may include (but not limited to):
Public health and safety - assets not adequate/available for emergency response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance now
needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Risks relating to asset failure are mitigated though condition assessment programs,
maintenance programs (legislated and best practices) and scheduled renewal programs
which ensure assets are in acceptable condition and are available to achieve the
determined levels of services. Risks related to fleet asset failures are addressed through
proactive fleet maintenance and adequate vehicle storage to ensure adequate service
readiness.
All City services, including Recreation services are reviewed and identified in the City's
Business Continuity Plan (BCP) and prioritization process. The BCP identifies the key
interruption impacts, recovery time objectives, dependencies, qualified resources available
and a resource back-up strategy should services be interrupted. The BCP is reviewed
and updated regularly to ensure that critical services are not interrupted, minimizing risks.
The choice of strategy for maintaining Recreation assets considers the risk of failure of the
assets, the risk to service delivery and the risk to other services dependant on this service
area. Strategies implemented are at the lowest cost in order to reduce the burden on the
tax base and user fees where possible and to maintain the current levels of service.
Risks associated with Recreation strategies are primarily related to growth and ensuring
sustainable funding is available to meet growth demands and maintain levels of service.
Strategic plans discuss the implications of growth and that there will be increasing demand
from all generations and age groups for most types of leisure pursuits, since the
population could increase by as much as 36,500 between 2011 and 2041. The most
significant increase in demand should come from the age groups that will exhibit the most
growth, namely the 55 and older age group. This implies that activities of interest to that
generation will increase significantly in demand by 2041 and the service level of
supporting facilities will have to be increased. Activity examples include: the performing
arts, hand crafts and other creative arts, attending concerts, festivals and community
events, walking for fitness and pleasure, bicycling, all manner of health and wellness
programming and therapeutic aquatic programming, nature appreciation and associated
activities, visiting museums and historic sites - and appreciating cultural heritage and,
gentle individual and team sports (e.g., pickleball, badminton, casual skating, swimming,
dancing, walking for pleasure, fitness).
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk treatment
plan for non-acceptable risks is planned and will be included in future versions of the asset
management plan when completed.
Strategic Priorities
The Council approved Vision 2025 strategic plan provides direction to assist decision
making for the Recreation service area. Projects proposed for the capital budget are
prioritized if they are aligned with of the following strategic directions (no order of priority):
1)
Continue to move toward an increasingly collaborative and better integrated
recreation and culture delivery system;
2) Provide an increasingly enhanced and better-connected park and open space
system
3) Continue to provide quality recreation and culture facilities
4) Continue to provide quality recreation and culture programming, community events
and sport tournaments
Recommended actions based on these strategic directions and objectives in the Vision
2025 Action Plan have informed the 10-year capital budget estimates and are brought
forward for consideration through the annual budget deliberation process.
3.2
Lifecycle Models, Interventions, and Cost of Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed2 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement) are
documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and of
asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short, lifecycle
models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of S
ervice
The options analysis of the lifecycle activities that could be undertaken were reviewed with
the Recreation services subject matter experts. Lifecycle activity options were discussed
and determined that the current planned activities are appropriate and the most cost-
effective option(s). Details related to the Recreation services available funding,
investments and shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 3 below shows the Recreation services area projected 10-year
lifecycle costs (asset renewal and replacement activities required for existing assets) and
performance to maintain current levels of service. For details on current levels of service
descriptions, measures and targets and current performance, refer to Table 5 in Section 2
- Levels of Service of this attachment.
2 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for that
asset/asset class. Where asset condition data was not available, age-based condition
ratings were applied.
-
-
Table 7: Recreation Services Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle Activity Costs -
Recreation Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
Aquatics and Equipment
$0
$49,968
$49,968
$49,968
$49,968
$49,968
$49,968
$49,968
$49,968
$49,968
$49,968
$499,677
Arenas and Facilities
$0
$2,854,059
$2,854,059
$2,854,059
$2,854,059
$2,854,059
$2,854,059
$2,854,059
$2,854,059
$2,854,059
$2,854,059
$28,540,595
Parks
$0
$2,052,388
$2,052,388
$2,052,388
$2,052,388
$2,052,388
$2,052,388
$2,052,388
$2,052,388
$2,052,388
$2,052,388
$20,523,877
Annual Total
$0
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$49,564,149
Average Annual Lifecycle
Cost
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
$4,956,415
Based on the lifecycle assessment of Recreation services assets (for renewal and replacement), it is estimated that the City would need to spend an average of $5.0
million per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 3: 10-Year Forecasted Performance for Maintaining Levels of Service - Recreation
Services
Figure 3 above illustrates the performance (condition) of Recreation assets over the 10-
year forecast. The estimated average combined annual expenditures to maintain these
conditions is approximately $5.0M.
Attachment #8: Airport Service Area
Infrastructure
Value
$92.2M
Annual Renewal
Needs
$2.1M
Overall
Condition
4.0
Good
High Risk Asset
Value
$39M
42%
Trend
1.0
Summary of Airport Service Area
The Peterborough Airport is an aviation industrial park, a service to area businesses,
and a community gateway for the public, tourism, business and general aviation. The
Peterborough Airport contains 20 businesses and educational institutions, employing
over 500 full-time plus seasonal employees. Seneca College School of Aviation and
Flight Technology is also located at the Airport with 150 to 200 students attending
classes. Major improvements and expansions have been made since the purchase of
the Airport in 1967, with the most recent major expansion including the addition of a
2,000 ft paved crosswind runway and supporting parallel taxiway and a 1,000 ft
extension of Bravo taxiway.
Asset classes that fall under the Airport service area are facilities and airport support
assets which include airside and groundside assets. Airside assets consist of airfield
lighting, aprons, tie down areas, runways and taxiways. Groundside assets consist of
food service assets and land improvements (fencing, hardscaping, access roadways,
outdoor lighting & signs and parking lots, etc.). Annual renewal needs are based on
lifecycle management strategies and represent the estimated amount of capital the City
needs to reinvest in its existing asset inventory on an annual basis over the next 10
years to sustain the current levels of service (based on the 25-yr investment forecast).
1.1
Inventory Details
Table 1 details the City of Peterborough's inventory for the Airport service area
Table 1: Airport Asset Inventory
Asset
Category and Class
2023
Quantity
Unit of Measure
Facilities
Airport Beacon Tower
1
Each
Operations Centre
1
Each
Airport Pumping Station
1
Each
Airport Terminal
511
Sq.m
Field Electrical Centre
1
Each
Airport Support Assets
Airside Assets
29
Each
Groundside Assets
8
each
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the Airport service area totalled
$92.2 million. Replacement costs were taken in combination of the City's most recent
building condition assessments (2021-2022) and using other valuation methods, such
as unit cost multipliers based on recent construction projects or historical costs inflated
to 2023 where recent assessments or costing information was not available.
Figure 1: Airport Service Area -Replacement Cost by Asset Class
REPLACEMENT COST
AIRPORT SERVICE AREA
($MILLIONS)
Facilities, $8.8 , 9%
Groundside
Assets, $11.7 ,
13%
Airside Assets,
$71.7 , 78%
Table 2: Airport - Replacement Cost by Asset Class
Asset
Class
2023
Replacement Cost
Facilities
Airport Beacon Tower
$74,865
Operations Centre
$2,473,949
Airport Pumping Station
$1,018,195
Airport Terminal
$4,706,513
Field Electrical Centre
$494,868
Airport Support Assets
Airside Asset
$71,671,440
Groundside Assets
$11,749,998
Airport Total
$92,189,828
1.3
Asset Condition and Remaining Useful Life
The City's Airport service area is currently rated in overall good condition. Facility
ratings shown based on the most recent building condition assessments completed in
2021-2022 and use observed age of facility elements at the time of assessment. Other
assets use an age-based rating methodology and have been reviewed by staff to
ensure that it reflects the current conditions until detailed assessments are completed.
Based on replacement cost, 5% or $4.7 million are rated very good, 84% or$77.8 million
are rated good, 10% or $9.0 million are rated fair and 1% or $0.7 million are rated poor
and very poor. Figure 2 and Table 3 provide condition details of the Airport service area.
Figure 2: Airport - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT COST
AIRPORT
($MILLIONS)
Very Poor,
$0.60, 1%
Very Good,
$4.7, 5%
Good, $77.8,
84%
Fair, $9.0, 10%
Poor, $0.06, 0%
Table 3: Airport - Asset Class Condition Ratings
Asset
Class
2023
Condition Rating
Facilities
Airport Beacon Tower
Good
Operations Centre
Very Good
Airport Pumping Station
Good
Airport Terminal
Very Good
Field Electrical Centre
Very Good
Airport Support Assets
Airside Asset
Good
Groundside Assets
Fair
Airport Overall Condition1
Good
1 Weighted by replacement value
Remaining Useful Life
The following summarizes the Airport service area remaining useful life. The useful life
of an asset is the estimated period over which the City expects to use the asset.
Estimates are based on a combination of the calculated age which do not take into
consideration any betterments that extend the useful life of the asset(s) and observed
age (for facilities only). The age of the Airport service area is variable and with efforts to
extend the life by application of lifecycle treatments. Table 4 shows the airport
remaining useful life details.
Table 4: Airport Remaining Useful Life2
Asset
Inventory
Ave.
Expected
Useful Life
(Yrs.)
Ave.
Remaining
Useful Life
(Yrs)
Percent of Useful
Life Remaining
Facilities
Airport Beacon Tower
30
16
54%
Operations Centre
31
17
57%
Airport Pumping Station
35
15
44%
Airport Terminal
30
18
58%
Field Electrical Centre
37
25
31%
Airport Support Assets
Airside Asset
29
16
54%
Groundside Assets
21
10
48%
Airport Overall
31
17
55%
2 ESL, RUL, and percent of useful life remaining are based on calculated average of asset classes
1.4
Asset Risk Assessment
Currently, the consequences of failure for Airport assets have been determined
manually by City staff based on a standardized chart for consequence (found in
Appendix C). The assessment considers environmental, economical, social, life safety,
legislation and corporate reputation as factors when scoring consequence.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Airport services high risk assets is $39.1 million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies, and policies such as the Official Plan.
Stakeholder and technical levels of service, performance measures and current targets
for the Airport service area are outlined in Table 5 below. Further development of the
City's levels of service is underway in which the proposed levels of service and the
affordability of the service will be analyzed and presented. Future versions of the Asset
Management Plan will also include other proposed levels of service reporting
requirements set forth in the Asset Management Planning for Municipal Infrastructure
Regulation (O.Reg. 588/17).
Table 5: Levels of Service - Airport
Asset Class: Airport
Service Objective Statement: The City strives to deliver a safe and compliance airport service, accessible to diverse tenants and users, accompanied by
reliable customer service while minimizing disturbances to neighbours.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Availability
Service is not denied for
reasons other than
accident/incidents and
maintenance
No occurrences
where service is
denied
10 runway
closures
Incidents
&
construction
16 runway
closures
8 - Incidents
8 -
Maintenance
Staff coverage
during
published hours
of operation
100%
Coverage
during
published
hours of
operations
100%
100%
Serviced Land is
available for leasing
Lot absorption of at
least 1 new build
per year
21.5 acres of
serviced lots
available
21.0 acres
of service
lots
available
Number of
tenant buildings
Greater
than 44
44 tenant
buildings
45 tenant
buildings
Aircraft movements per
year (movement
classified as landing or
take-off)
Annual aircraft
movements
45,600
aircraft
movements
47,781
aircraft
movements
Complaints per
1000 aircraft
movements
Less than
35
76.5
15
Number of jet &
turbine movements
587
Jet/Turbine
Movements
882
Jet/Turbine
Movements
Year over year
increase in
percentage of
movements
3% of total
movements
1.29%
1.85%
Reliability/Quality
Providing a reliable
Airport that meets the
needs of the community
Airport facility and
assets are
maintained in a
state of good repair
Airport facility
and assets
are
proactively
Airport
facility and
assets are
proactively
Average Facility
Condition Index
(FCI) value for
all facilities
Minimum
Good (0% -
5%)
n/a - not
reported
0.23%
(Good)
Asset Class: Airport
Service Objective Statement: The City strives to deliver a safe and compliance airport service, accessible to diverse tenants and users, accompanied by
reliable customer service while minimizing disturbances to neighbours.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
maintained
and reliable
for intended
use
maintained
and reliable
for intended
use
Percentage of
Airside Assets
in fair or better
condition (CRV
$)
100%
n/a - not
reported
99%
Percentage of
Groundside
Assets in fair or
better condition
(CRV $)
70%
n/a - not
reported
100%
Climate
Leadership
Facilities are energy
efficient and
demonstrate leadership
on climate action
Facilities that meet
our environmental
objective
Facilities
strive to
lower energy
usage by
installing
energy
conservation
measures
that improve
energy
efficiency to
reduce GHG
emissions
Facilities
strive to
lower energy
usage by
installing
energy
conservation
measures
that improve
energy
efficiency to
reduce GHG
emissions
Annual energy
consumption
per Sq.m
Energy Use
Intensity
(EUI) of
0.86 GJ/m2
or less
n/a - not
reported
1.23 GJ/m2
3.0
Asset M
anagement Strategies - Airport
The Airport strategy considers facilities and Airport support assets (airside and groundside assets). For leased lands, only
the servicing infrastructure is considered for development of strategy. The following table documents the set of planned
actions or 'activities' that the City undertakes for each asset class to sustain current levels of service, while managing risk
at the lowest lifecycle cost. The City plans the necessary lifecycle activities at the required time and does not need to alter
the type of activity undertaken. However, with limited funding available, the interval and timing of the necessary lifecycle
activities are affected, which can have an overall impact on the performance of the asset(s) over its useful life.
Table 6: Airport - Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs or extend asset life (e.g. better
integrated infrastructure planning and land use planning, demand
management, insurance, process optimization, managed failures, etc.).
Operational inspections carried out daily
Linking the asset management plan to
other studies, master plans and strategies
Public consultation on levels of service
Implementation of Wildlife Management
Plan
Cyclical runway friction testing
Pavement condition assessments yearly
Hazard identification with Safety
Management System
Maintenance Activities
Activities include regularly scheduled inspection and maintenance, or
more significant repair and activities associated with unexpected events.
Repair, clean, treat or remove concerns
identified in daily inspections
Level lights monthly
Airside pavement sweeping
Grass maintained to Wildlife Management
Plan specifications
Winter restoration of friction levels on
runways
Snow clearing including bank removals
Ground-side roads sanded and maintained
during winter to remain open
Strategy Type
Current Practice
Tree cutting and removal to protect
Obstacle Limitation Zone
Winter runway monitoring
Plant removals
Crack-sealing to ensure pavement
condition rating for operation
Repair of drainage structures should any
cracking or heaving take place
Lights and signs replaced immediately
upon failure
Line painting
Renewals/Rehabilitation:
Includes significant repairs designed to extend the life of the asset (e.g.
the lining of iron watermains can defer the need for replacement).
Rebuild subsurface and repave sections of
runway if sections fail code specifications
Rehabilitation of internal road commercial
area
20-year plan to fully renew asphalt surface
Replacement
Activities that are expected to occur once an asset has reached the end
of its useful life and renewal/rehabilitation is no longer an option.
Replacement of assets at end of their
service life.
Disposals/Abandonment Policies
Activities associated with disposing of an asset once it has reached the
end of its useful life or is otherwise no longer needed by the municipality.
-
Properties purchased for expansion as
they become available
Strategy Type
Current Practice
Expansion Programs
Planned activities required to extend the services to previously un-
serviced areas - or expand services to meet growth demands.
Watermain and Sanitary sewer upgrades
to accommodate growth.
Commercial and General Aviation Lots
prepared for leasing
Strategic Development Plan
recommendations followed
Bravo Taxiway extension as airport growth
requires for safe operations
Passing Area on Apron III
Upgrade Runway Designation to Non-
Precision (to support lower landing minima
for flying by instrument flight rules)
Construct access roads to new lots
Rehabilitation of internal road commercial
area
Environmental Assessments for future
development areas
Growth requirements
Expansion of terminal building to meet
increased demand.
Widening of primary runway from 100 to
150 ft to improve service.
Extension of taxiway system to full length
of runway to improve safety and efficiency.
Emergency access road at west end of
runway
Future Strategies
Strategic development plan completed in
2017 complimenting and updating the
master plan
Strategy Type
Current Practice
Servicing studies for new tenants to ensure
future water and sewer needs are met
Land Development review for farmlands
owned to generate revenue
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Airport services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Risk Trade Offs:
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are
not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Public health and safety - assets not adequate/available for emergency
response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance
now needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Risks relating to asset failure are mitigated though condition assessment programs,
maintenance programs (legislated and best practices) and scheduled renewal programs
which ensure assets are in acceptable condition and are available to achieve the
determined levels of services. Risks related to fleet asset failures are addressed
through proactive fleet maintenance and adequate vehicle storage to ensure adequate
service readiness.
All City services, including Airport services are reviewed and identified in the City's
Business Continuity Plan (BCP) and prioritization process. The BCP identifies the key
interruption impacts, recovery time objectives, dependencies, qualified resources
available and a resource back-up strategy should services be interrupted. The BCP is
reviewed and updated regularly to ensure that critical services are not interrupted,
minimizing risks.
The choice of strategy for maintaining Airport services assets considers the risk of
failure of the assets, the risk to service delivery and the risk to other services dependant
on this service area. Strategies implemented are at the lowest cost in order to reduce
the burden on the tax base and user fees where possible and to maintain the current
levels of service.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk
treatment plan for non-acceptable risks is planned and will be included in future
versions of the asset management plan when completed.
.
3.2
Lifecycle Models, Interventions, and Cost of Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed3 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement)
are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of S
ervice
The options analysis of the lifecycle activities that could be undertaken were reviewed
with the Airport service area subject matter experts. Lifecycle activity options were
discussed and determined that the current planned activities are appropriate and the
most cost-effective option(s). Details related to the Airport service area available
funding, investments and shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 3 below shows the Airport service area projected 10-year lifecycle
costs (asset renewal and replacement activities for existing assets) and performance to
maintain current levels of service. For details on current levels of service
3 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
descriptions, measures and targets and current performance, refer to Table 5 in Section
2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for
that asset/asset class. Where asset condition data was not available, age-based
condition ratings were applied.
-
-
Table 7: Airport Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets.
Lifecycle Activity
Costs -
Airport Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
Airport Assets
$0
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$20,557,236
Annual Total
$0
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$20,557,236
Average Annual
Lifecycle Cost
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
$2,055,724
Based on the lifecycle assessment for Airport assets (for renewal and replacement), it is estimated that the City would need to spend an average of $2.1M per year
to carry out the required lifecycle activities to maintain current levels of service.
Figure 3: 10-Year Forecasted Performance for Maintaining Levels of Service
Figure 3 above illustrates the performance (condition) of Airport assets over the 10-year
forecast. The estimated average annual expenditures to maintain these conditions is
approximately $2.1 million.
Attachment #9: Urban Forest Service Area
Infrastructure
Value
$169.3M
Annual Renewal
Needs
$6.2M
Overall
Condition
3.0
Fair
High Risk Asset
Value
$7M
4%
Trend
1.0
Summary of Urban Forest
Asset classes that fall under the urban forest service area include street trees, park and
open space trees, fleet and tree maintenance equipment. The urban forest is an often-
overlooked critical asset class. This asset assists in the protection of water sources,
flood management, protection from erosion and provides public health benefits.
Annual renewal needs shown are based on lifecycle management strategies and
represent the estimated amount of capital the City needs to reinvest in its existing asset
inventory on an annual basis over the next 10 years to sustain the current levels of
service (based on the 25-yr investment forecast). Condition rating trends show a slight
decline since the last reported Plan due to the addition of park and open space trees to
the inventory, and changes in condition/valuation methodologies.
1.1
Inventory Details
The tree inventory currently includes trees on public right of ways and in parks and open
spaces. Over time this inventory will include complex trees and trees in forest stands.
Table 1 details the City of Peterborough's inventory for the urban forest service area.
Table 1: Urban Forest Asset Inventory
Asset Category &
Class
2023
Quantity
Unit of Measure
Trees
Street Trees, Park & Open Space
Trees
31,111
Each
Asset Category &
Class
2023
Quantity
Unit of Measure
Fleet
Vehicles
3
Each
Equipment
Tree pruning equipment
5
Each
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the Urban Forest service area
totalled $169.3 million. Replacement costs of trees were calculated using the 'CTLA
trunk formula method'. The CTLA method is based on measuring the trunk cross-
sectional area and multiplying it by a monetary value per square centimetre, based on
the species of the tree. Fleet and Equipment replacement costs are based on original
purchase cost and escalated to current day value.
Figure 1: Urban Forest Service Area -Replacement Cost by Asset Class
REPLACEMENT COST BY ASSET CLASS
URBAN FOREST
($MILLIONS)
Fleet, $0.2 ,
0%
Trees, $168.2 ,
99%
Equipment,
$0.9 , 1%
Table 2: Urban Forest - Replacement Cost by Sub-Class
Asset Category &
Class
2023
Replacement Cost
Trees
Street Trees
$145,284,602
Park and Open Space Trees
$22,955,784
Asset Category &
Class
2023
Replacement Cost
Fleet
Vehicles
$221,125
Equipment
Tree pruning equipment
$852,878
Urban Forest Total
$ 169,314,389
1.3
Asset Condition and Remaining Useful Life
The City's Urban Forest service area is currently rated in overall fair condition. Condition
assessments ratings for trees were assigned using the physiological condition data
found in the City's tree inventory database. Where no physiological data is available,
age-based condition ratings were estimated. Fleet and equipment condition ratings
have been assessed based on age. Based on asset replacement value, 47% or $79.4
million are in good condition, 35% or $59 million in fair condition and 19% or $32 million
in poor to very poor condition. Figure 2 and Table 3 provide overall condition details of
the Urban Forest service area.
Figure 2: Urban Forest - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT COST
URBAN FOREST
($MILLIONS)
Good, $79.4 ,
47%
Fair, $59.2 ,
35%
Poor, $11.1 ,
6%
Very Poor,
$19.7 , 12%
Table 3: Urban Forest - Asset Class Condition Ratings
Asset Category &
Class
2023
Condition Rating
Trees
Street Trees
Fair
Park and Open Space Trees
Poor
Fleet
Vehicles
Poor
Equipment
Tree pruning equipment
Poor
Urban Forest Overall Condition1
Fair
Remaining Useful Life
Table 4 shows the Urban Forest remaining useful life details.
Table 4: Urban Forest Remaining Useful Life2
Asset
Inventory
Ave.
Expected
Useful Life
(Yrs)
Ave.
Remaining
Useful Life
(Yrs)
Percent of Useful
Life Remaining
Trees
Street Trees
18
0
0%
Park and Open Space Trees
34
10
31%
Fleet
Vehicles
10
0
0%
Equipment
Tree pruning equipment
15
0
0%
Urban Forest Overall
20
0
0%
1 Weighted by replacement value.
2 ESL, RUL, and percent of useful life remaining are based on calculated average of asset classes
1.4
Asset Risk Assessment
Currently, the consequences of failure for Urban Forest assets have been determined
manually by City staff based on a standardized chart for consequence (found in
Appendix C). The assessment considers environmental, economical, social, life safety,
legislation and corporate reputation as factors when scoring consequence.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Urban Forest high risk assets is $9.0 million.
The City continues to prioritize the operational, maintenance and renewal needs of high-
risk assets to minimize health and safety risks and impacts to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies and policies such as the 2011 Urban Forest Strategic Plan and the 2013
Emerald Ash Borer Management Plan, etc.
Stakeholder and technical levels of service, performance measures and current targets
for the Urban Forest service area are outlined in Table 5 below. Further development of
the City's levels of service is underway in which the proposed levels of service and the
affordability of the service will be analyzed and presented. Future versions of the Asset
Management Plan will also include other proposed levels of service reporting
requirements set forth in the Asset Management Planning for Municipal Infrastructure
Regulation (O.Reg. 588/17).
Table 5: Levels of Service - Urban Forest
Asset Class: Urban Forest
Service Objective Statement: The City is committed to managing the urban forest by promoting community stewardship and strategic practice to preserve,
renew and enhance the essential resource
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical
PM
Target
2021
2023
Safety
Maintenance of
the street trees
and potentially
dangerous trees
The City will
maintain the
street trees by
pruning and
removal of
dangerous trees
328 pruned,
463 removed
Removals:
367 trees
660 ash trees
Total:1,027
214 Pruned
Service
requests are
processed
and reviewed
Review and
process a
minimum of
2,700 service
requests
1422
2207
Sustainability
New trees
planted yearly
Greater than 500
trees planted
yearly
400 trees
planted
515 trees
planted
All street
trees within
City limits
inspected
All of current
tree inventory
inspected
All trees have
been inspected
All trees have
been inspected
Trees are
treated for
Emerald Ash
Borer
Greater than 650
trees treated
yearly
831 trees
treated
750 trees
treated
Preservation of
tree canopy to
support
community
health and well
being
Percent of urban
forest tree
canopy within
the City
n/a - not
reported
30% of urban
forest tree
canopy
Asset Class: Urban Forest
Service Objective Statement: The City is committed to managing the urban forest by promoting community stewardship and strategic practice to preserve,
renew and enhance the essential resource
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical
PM
Target
2021
2023
Reliability/Quality
Providing quality
Urban Forest
assets that meet
the needs of the
community
Urban Forest
assets are
maintained in a
state of good
repair
Urban Forest
assets are
maintained
and reliable for
intended use
Urban Forest
assets are
maintained
and reliable
for intended
use
Percentage of
Trees in poor
or better
condition
100% of trees
in poor or
better
condition
n/a - not
reported
94%
Percentage of
vehicles that
past their
useful life
Max 5%
n/a - not
reported
0%
3.0
Asset M
anagement Strategies - Urban Forest
The urban forest has two distinct but united strategies. One strategy considers maintaining the health of the City's trees;
and the other seeks to grow the urban forestry and the replacement of the urban forest. The following table describes the
current, preferred strategies and activities for the Urban Forest service area to maintain the current levels of service, while
managing risk. Options for which lifecycle activities that could potentially be undertaken at the lowest cost are reviewed
and compared when developing annual budgets. The City plans the necessary lifecycle activities at the required time and
does not need to alter the type of activity undertaken. However, with limited funding available, the interval and timing of
the necessary lifecycle activities are affected, which can have an overall impact on the performance of the asset(s) over
its useful life.
Table 6: Urban Forest - Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs or extend
asset life (e.g. better integrated infrastructure
planning and land use planning, demand
management, insurance, process optimization,
managed failures, etc.).
·
Updating Arborist training
·
Linking the asset management plan to other studies,
master plans and strategies
·
Public consultation on levels of service
·
Public education in the field regarding the importance of
the urban forest
·
Public relations and education around treatments
·
Routine inspections of trees and inspections triggered by
calls from citizens/businesses
·
General inspections
·
Use of species approval list for developers
·
Web education program
·
Holding developers accountable for planting via new
planting inspections
·
Cityworks (computerized maintenance management
software) upgraded
·
Improved maintenance record keeping
·
Cityworks modelling
Strategy Type
Current Practice
·
Enforcement of tree bylaws[1]
Maintenance Activities
Activities include regularly scheduled inspection
and maintenance, or more significant repair and
activities associated with unexpected events.
·
Pruning activities (currently reactive)
·
Treatments for pest control and elimination
·
Safety maintenance (hanger and split removals)
·
Crown raising
·
Crown cleaning (dead wooding)
·
Watering of young trees
·
Mulching and weeding
·
Updating/maintaining equipment
Renewals/Rehabilitation:
Includes significant repairs designed to extend the
life of the asset (e.g. the lining of iron watermains
can defer the need for replacement).
·
Pruning of suckers
·
Cabling of trees
·
Emerald Ash Borer Ma
nagement Plan/Treatment
Replacement
Activities that are expected to occur once an asset
has reached the end of its useful life and
renewal/rehabilitation is no longer an option.
· One for one strategy for dead or dying trees
· Three for one tree replacement plan for any single healthy
tree removed on private property
Disposals/Abandonment Policies
Activities associated with disposing of an asset
once it has reached the end of its useful life or is
otherwise no longer needed by the municipality.
·
Field cost-benefit analysis of pruning vs. removal
·
Fee for removal of healthy trees[2] on public property
·
Removals of trees are completed based on health and
safety risks.
·
Engineering infrastructure conflicts due to repairs,
upgrades, and replacements
· Ash tree removals to control the spread of emerald ash
borers
Expansion Programs
Planned activities required to extend the services to
previously un-serviced areas - or expand services
to meet growth demands.
·
Strategic Planning using Urban Forest Strategic Plan
(UFSP)
·
Leaf-on aerials to determine planting areas for optimum
canopy growth
Strategy Type
Current Practice
·
Partnership planting programs
· Otonabee Regional Conservation Authority (ORCA)
·
TreesCanada
·
Inventory gap filing program
· Expanding the wood utilization program from as
h trees to
other lumber
·
Implement "no net loss of canopy" from UFSP
Future Strategies
·
Fertilization program for young trees
·
Greater public education on tree value
·
Setting an inspection schedule
·
Update the species approval list
·
Remove and replant trees which are not the best choices
for ur
ban forestry
· Change pruning schedule to be more proactive
· Cost of removals billed to the organization whom removed
the tree (Utilities etc.)
·
Planting locations identified through models
·
Succession planning for planting and removals
·
Donor program for memorials
·
Climate change planning
·
Update the forestry job descriptions
·
Update the urban forest bylaw 1982-82
·
Develop a heritage tree program
·
License the arborists
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Recreation Services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Risk Trade Offs
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are
not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Public health and safety - assets not adequate/available for emergency
response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance
now needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
The urban forest service area has many concerns about the cost to maintain the current
urban forest. Currently there is a single team of arborist responsible for service calls and
to complete maintenance activities as deemed necessary. This has left the program in a
position of only reactive work.
Trees do not follow the standard degradation curves of other non-living assets and
generally remain healthy for most of their natural life then rapidly decline. A major
consideration for the urban forest team is planning for tree replacement using
succession planning. This means that sometimes a healthy tree should be removed
early so that the replacement of trees in subdivisions creates an urban forest of different
ages, and species of trees. This creates a healthy natural environment which is more
resistant to pests and disease. This concept may seem to be against best practices in
other areas of infrastructure asset management which would seek to extend the life of
an asset rather than actively remove good assets.
From the strategic end, the urban forest canopy has been showing a downward trend.
The urban forest strategic plan set out to have a goal of 30% canopy cover for the city
overall. However, city development and tree removals (for safety reasons) have led to a
reduction in canopy cover. The urban forest strategic plan recommends that the City
apply a replacement ratio of 3 to 1 for all healthy trees that are removed. Currently this
replacement ratio has been closer to 1 to 1. Young trees do not have the same canopy
for up to 25 years as healthy mature trees and the rate of death of a tree is higher while
the tree is young. The City recently implemented bylaws to improve the overall canopy
on private property.
3.2
Lifecycle Models, Interventions, and Cost of Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed3 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement)
are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
3.3
Lifecycle Options Analysis and Costs of S
ervice
The options analysis of the lifecycle activities that could be undertaken were reviewed
with the Urban Forest services subject matter experts. Lifecycle activity options were
discussed and determined that the current planned activities are appropriate and the
most cost-effective option(s). Details related to the Urban Forest services available
funding, investments and shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 3 below shows the Urban Forest projected 10-year lifecycle costs
(asset renewal and replacement activities required for existing assets) and performance
to maintain current levels of service. For details on current levels of service
descriptions, measures and targets and current performance, refer to Table 5 in Section
2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for
that asset/asset class. Where asset condition data was not available, age-based
condition ratings were applied.
-
-
Table 7: Urban Forest 10-Year Lifecycle Associated Costs - Delivering Current Levels of Service
Lifecycle Activity Costs -
Urban Forest Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
otal 10-Yr
Urban Forest Assets
$0
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$62,191,257
Annual Total
$0
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$62,191,257
Average Annual Lifecycle
Cost
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
$6,219,126
Based on the lifecycle assessment for the Urban Forest assets (for renewal and replacement), it is estimated that the City would need to spend an average of $6.2
million per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 3: 10-Year Forecasted Performance for Maintaining Levels of Service - Urban
Forest
Figure 3 above illustrates the performance (condition) of Urban Forest assets over the
10-year forecast. The estimated average combined annual expenditures to maintain
these conditions is approximately $6.2 million.
Attachment #10: Social Services - Childcare
Service Area
Infrastructure
Value
$1.2M
Annual
Renewal Needs
$16.2K
Overall
Condition
5.0
Very Good
High Risk
Asset Value
$0.3M
24%
Trend
1.0
Summary of Childcare Services Facilities
The Peterborough Daycare Centre facility is a 4,390 square foot facility originally
constructed in 1972 and acquired by the City in 1989. The City directly owns and
operates the Peterborough Daycare Centre which offers full day care for up to 49
children between the ages of eighteen months to six years old at this location. Although
not owned facilities, the City also operates an additional full day childcare program for
children (between 18 months and 6 years old) and two school age programs (JK
through to grade 6) at three other leased locations. Annual renewal needs are based on
lifecycle management strategies and represent the estimated amount of capital the City
needs to reinvest in its existing asset inventory on an annual basis over the next 10
years to sustain the current levels of service (based on the 25-yr investment forecast).
Condition rating trends remain neutral since the last reported Plan with an overall
condition rating of Very Good.
Table 1 details the City's inventory for Daycare facilities.
1.1
Inventory Details
Table 1: Peterborough Daycare
Asset
Class & Sub-class
Daycare Facility
2023
Quantity
Unit of Measure
Peterborough Daycare Centre,
127 Aylmer St. S
4,390
Sq. Ft
1.2
Replacement Costs
The estimated year end 2023 replacement costs for Peterborough Daycare Centre
totalled $1.2 million. Replacement costs have been determined using the elemental
replacement costs as reported in the most recent building condition assessment (BCA)
completed in 2019 and inflated to 2023 dollars.
Figure 1: Peterborough Daycare Centre - Replacement Cost by Element
REPLACEMENT COST BY ASSET CLASS
DAYCARE FACILITIES
($MILLIONS)
Substructure,
$93,849 , 8%
Shell,
$447,712 , 38%
Interiors,
$302,444 , 26%
Services,
$237,829 , 21%
Sitework,
$85,491 , 7%
Table 2: Peterborough Daycare Centre - Replacement Costs by Building Element
Classification
Building Element Classification
2023
Replacement Cost
A - Substructure
$93,849
B - Shell
$447,712
C - Interiors
$302,444
D - Services
$237,829
G - Sitework
$85,491
Daycare Centre Total
$1,167,325
1.3
Asset Condition and Remaining Useful Life
The overall condition rating for the Peterborough Daycare Centre is currently rated very
good. Condition ratings are based on the most recent building condition assessment
information available (2019). At the time of data gathering and assessment for this Plan,
the most current BCA was not available for analysis at the time (completed in
2021/2022). The next iteration of the Plan will report updated replacement costs and
conditions as found in the 2021/2022 BCA. The City plans to complete BCA's on a
seven to ten year cycle with the next round of assessments anticipated to be completed
in 2028.
Based on replacement cost, 64% or $0.8 million are rated very good, 19% or $0.2
million rated good and 17% or $0.2 million rated fair. Figure 2 and Table 3 provide
condition details of the Daycare building.
The current layout of the Peterborough Daycare Centre has presented challenges for
staff to carry out day-to-day program activities. Since original construction, the facility
has not had significant upgrades and/or renovations completed to accommodate
evolving childcare program needs. Future plans for the facility and childcare programs
offered are currently being reviewed by City staff.
Figure 2: Peterborough Daycare Centre - Distributed Condition and Replacement Cost
Very Good,
$0.8 , 67%
Good, $0.2 ,
16%
Fair, $0.2 , 17%
DISTRIBUTED CONDITION AND
REPLACEMENT COST
DAYCARE FACILITIES
($MILLIONS)
Table 3: Peterborough Daycare Centre - Asset Condition Ratings
Building Element Classification
2023 Overall
Condition Rating
A - Substructure
Good
B - Shell
Good
-
Building Element Classification
2023 Overall
Condition Rating
C - Interiors
Very Good
D - Services
Very Good
G - Sitework
Very Good
Daycare Overall Condition Rating
Very Good
Remaining Useful Life
The following summarizes the Daycare building element average useful life and
average remaining useful life. The useful life of an asset is the estimated period over
which the City expects to use the asset. Estimates are primarily based on the observed
age (where condition assessments have been completed) and take into consideration
any betterments that extend the useful life of the asset(s). Ideally, as condition
assessments are completed the 'observed' age will be used in calculating remaining
useful life. The ages of the assets are variable and with efforts to extend the life by
application of lifecycle treatments, there isn't necessarily a linear relationship between
age and condition.
Table 4 shows the Daycare facility average remaining useful life details by building
element.
Table 4: Peterborough Daycare Remaining Useful Life1
Asset
Inventory
Ave.
Expected
Useful Life
(Yrs.)
Ave.
Remaining
Useful Life
(Yrs.)
Percent of Useful
Life Remaining
Daycare Facility - Building
Peterborough Daycare Centre,
127 Aylmer St. S
43
23
53%
Peterborough Daycare Centre
Average Remaining Useful Life
43
23
53%
1.4
Asset Risk Assessment
The consequences of failure for Daycare facility assets have been determined manually
by City staff based on a standardized chart for consequence (found in Appendix B).
The assessment considers environmental, economical, social, life safety, legislation and
corporate reputation as factors when scoring consequence.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
1 Uses average of asset classes (building elements)
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of the Daycare facility high risk assets is $0.3 million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration
Ontario's vision for the early years and childcare in which the City of Peterborough is
aligning itself with, as well as the City's standards in facility maintenance.
The City of Peterborough follows the guiding principles as those outlined in the EarlyON
Child and Family Centre programs. They are intended to guide the development,
delivery and evaluation of EarlyON Child and Family Centre programs.
Stakeholder and technical levels of service, performance measures and current targets
for the Childcare service area are outlined in Table 5 below. Further development of the
City's levels of service is underway in which the proposed levels of service and the
affordability of the service will be analyzed and presented. Future versions of the Asset
Management Plan will also include other proposed levels of service reporting
requirements set forth in the Asset Management Planning for Municipal Infrastructure
Regulation (O.Reg. 588/17).
Table 5: Levels of Service - Childcare
Asset Class: Childcare
Service Objective Statement: The City will strive to provide families access to high quality and accessible childcare and early learning that fosters success for
every child.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical
PM
Target
2021
2023
Reliability/Quality
Providing
reliable and
high-quality
Daycare
Facilities that
meet the needs
of the
community
Daycare Facilities
are maintained in
a state of good
repair
The City of
Peterborough directly
owns and operates:
Full day childcare
program for children
18 months to 6 years
old at Peterborough
Childcare Centre
The City of
Peterborough
directly owns and
operates:
Full day childcare
program for children
18 months to 6
years old at
Peterborough
Childcare Centre
Condition of
Childcare
Facility
Minimum
facility
condition
rating of
'Fair'
Very Good
Very Good
Asset Class: Childcare
Service Objective Statement: The City will strive to provide families access to high quality and accessible childcare and early learning that fosters success for
every child.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical
PM
Target
2021
2023
The City of
Peterborough directly
operates:
Full day childcare
program for children
18 months to 6 years
at Pearson Child
Care Centre and
school age programs
at Edmison Heights
Elementary and
Westmount
Elementary for kids
JK through to Grade
6
The City of
Peterborough
directly operates:
Full day childcare
program for children
18 months to 6
years at Pearson
Child Care Centre
and school age
programs at
Edmison Heights
Elementary and
Westmount
Elementary for kids
JK through to Grade
6
Average
Facility
Condition
Index (FCI)
value for all
facilities
Minimum
Fair (5% -
10%)
n/a - not
reported
Fair (8%)2
2 FCI is calculated using current conditions of the Childcare facility and not 2019 BCA which is outdated and does not reflect current conditions of the facility.
Asset Class: Childcare
Service Objective Statement: The City will strive to provide families access to high quality and accessible childcare and early learning that fosters success for
every child.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical
PM
Target
2021
2023
Climate
Leadership
Facilities are
energy efficient
and
demonstrate
leadership on
climate action
Facilities meet
our environmental
objective
Facilities strive to
lower energy usage
by installing energy
conservation
measures that
improve energy
efficiency to reduce
GHG emissions
Facilities strive to
lower energy usage
by installing energy
conservation
measures that
improve energy
efficiency to reduce
GHG emissions
Annual
energy
consumption
per Sq.m
Energy Use
Intensity
(EUI) of
0.71 GJ/m2
or less
n/a - not
reported
0.97
GJ/m2
3.0
Asset M
anagement Strategies - Peterborough Daycare Centre
The Peterborough Daycare assets include the facility and all associated building elements. The following table describes
the current strategies and activities for the Peterborough Daycare Centre to maintain the current levels of service, while
managing risk at the lowest lifecycle cost. The City plans the necessary lifecycle activities at the required time and does
not need to alter the type of activity undertaken. However, with limited funding available, the interval and timing of the
necessary lifecycle activities are affected, which can have an overall impact on the performance of the asset(s) over its
useful life.
Table 6: Daycare Facility - Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs or extend
asset life (e.g. better integrated infrastructure
planning and land use planning, demand
management, insurance, process optimization,
managed failures, etc.).
·
Detailed Building Condition Assessments (BCA's)
completed on an 8 to 10-year cycle
· Linking the asset management plan to other studies,
master plans and strategies
· Public consultation on levels of service
· Conduct regular energy audits of facilities to identify
opportunities for improved efficiency
· Align facility expansion planning with population growth
forecasting/growth studies and needs studies
· On a case-by-case basis the City will explore options
including alternatives to building new assets, for any major
developments being considered
· Leverage incentive programs offered through utilities that
are for low carbon emissions or energy efficiency projects
· Educate staff on climate change initiatives and energy
efficiency opportunities with respect to building
operations/ownership
Maintenance Activities
Activities include regularly scheduled inspection
· Preventative and corrective maintenance programs for
facilities
and maintenance, or more significant repair and
activities associated with unexpected events.
· Consider sustainability and environmental opportunities
in operating and maintenance decisions
· Service contracts for regulatory building elements
requiring annual inspection/certification (ESA, TSSA, Fire
suppression, etc.)
· Asbestos management program for current condition and
all abatement requirements as needed
· Seasonal maintenance contracts such as snow clearing
and cleaning
Strategy Type
Current Practice
Renewals/Rehabilitation:
Includes significant repairs designed to extend the
life of the asset (e.g. the lining of iron watermains
can defer the need for replacement).
·
Building element renewal/rehabilitation needs are
reviewed at on a case-by-case basis to determine the best
option
· Activities are coordinated with other building lifecycle
activities to minimize costs
Replacement
Activities that are expected to occur once an asset
has reached the end of its useful life and
renewal/rehabilitation is no longer an option.
· Facility components replaced when at end of useful life
through capital planning/business case
· Replace large assets based on condition or efficiency
· Context of replacement is specific to the facility, i.e.
Assets that are replaced should not have a longer useful life
than the useful life of the facility. Facilities are continually
maintained and assets inside are perpetually replaced
· Updates to building codes drive programs for
replacement needs
Disposals/Abandonment Policies
Activities associated with disposing of an asset
once it has reached the end of its useful life or is
otherwise no longer needed by the municipality.
· Facilities that are no longer needed for the intended
service are either sold, re-purposed or demolished
Strategy Type
Current Practice
Expansion Programs
Planned activities required to extend the services to
previously un-serviced areas - or expand services
to meet growth demands.
· Demand for childcare services increases over time
leading to the need for expansion/addition to existing facility
when feasible (adding infant rooms, growth needs, etc)
· Building code changes often drive expansion program
to meet new codes
· Retrofitting buildings to automated systems to optimize
asset functionality/operations where feasible
· Implementation of interior and exterior LED lighting
retrofit program
· Upgrade insulation/building envelope while conducting
other essential building work (where feasible)
· Update building elements according to new building
codes when asset needs renewals
· Planning strategies are based on manufacturer and/or
industry standards for recommended renewal/rehabilitation
activities and timelines to extend life of building element in
order to avoid premature replacement costs
· Replace windows and doors with high efficiency
according to replacement schedule/need
· Replace mechanical equipment with high efficiency
according to replacement schedule/need
· Changes to accessibility requirements for public
buildings drive expansion needs, use grants/incentives
where possible
s
Future Strategies
· On a case-by-case basis, seek new partnership
opportunity to relocate and/or increase childcare locations
(i.e. partner with schoolboards to lease/rent space in
existing or new build schools to open a new childcare
location.
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Childcare Services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Risk Trade Offs
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are
not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Public health and safety - assets not adequate/available for emergency
response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance
now needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Risks relating to asset failure are mitigated though condition assessment programs,
maintenance programs (legislated and best practices) and scheduled renewal programs
which ensure assets are in acceptable condition and are available to achieve the
determined levels of services. Risks related to fleet asset failures are addressed
through proactive fleet maintenance and adequate vehicle storage to ensure adequate
service readiness.
All City services, including childcare services are reviewed and identified in the City's
Business Continuity Plan (BCP) and prioritization process. The BCP identifies the key
interruption impacts, recovery time objectives, dependencies, qualified resources
available and a resource back-up strategy should services be interrupted. The BCP is
reviewed and updated regularly to ensure that critical services are not interrupted,
minimizing risks.
The choice of strategy for maintaining daycare facility assets considers the risk of failure
of the assets, the risk to service delivery and the risk to other services dependant on
this service area. Strategies implemented are at the lowest cost in order to reduce the
burden on the tax base and user fees where possible and to maintain the current levels
of service.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk
treatment plan for non-acceptable risks is planned and will be included in future
versions of the asset management plan when completed.
3.2
Lifecycle Models, Interventions, and Cost of Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed3 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement)
are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
3.3
Lifecycle Options Analysis and Costs of S
ervice
The options analysis of the lifecycle activities that could be undertaken were reviewed
with the facility management subject matter experts. Lifecycle activity options were
discussed and determined that the current planned activities are appropriate and the
most cost-effective option(s). Details related to the childcare facility available funding,
investments and shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 3 below shows the daycare facility projected 10-year lifecycle costs
(asset renewal and replacement activities required for existing assets) and performance
to maintain current levels of service. For details on current levels of service
descriptions, measures and targets and current performance, refer to Table 5 in Section
2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for
that asset/asset class. Where asset condition data was not available, age-based
condition ratings were applied.
-
-
Table 7: Daycare Facilities Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle Activity Costs -
Childcare Facility Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
Childcare Assets
$0
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$162,190
Annual Total
$0
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$162,190
Average Annual Lifecycle Cost
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
$16,219
Based on the lifecycle assessment of the Daycare facility assets (for renewal and replacement), it is estimated that the City would need to spend an average of
$16.2 thousand per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 3: 10-Year Forecasted Performance for Maintaining Levels of Service - Daycare
Facility
Figure 3 above illustrates the performance (condition) of the Daycare facility assets over
the 10-year forecast. The estimated average combined annual expenditures to
maintain these conditions is approximately $16.2K.
Attachment #11: Arts, Culture & Heritage
Service Area
Infrastructure
Value
$65M
Annual
Renewal Needs
$1.3M
Overall
Condition
4.0
Good
High Risk
Asset Value
$3.2M
5%
Trend
1.0
Summary of Arts, Culture & Heritage
Asset classes that fall under the Arts, Culture & Heritage (ACH) service area include the
museum and City archives, libraries and collections, the art gallery, public art and the
market hall and tower. Annual renewal needs are based on lifecycle management
strategies and represent the estimated amount of capital the City needs to reinvest in its
existing asset inventory on an annual basis over the next 10 years to sustain the current
levels of service (based on 25-yr investment forecast). Condition rating trends remain
neutral since the previous Plan with an overall condition rating of good.
Table 1 details the City's inventory for the ACH and related assets service area.
1.1
Inventory Details
Table 1: Arts, Culture & Heritage Service Area Inventory
Asset
Inventory
2023
Quantity
Unit of Measure
Museum
Peterborough Museum and Archives
3,300
Sq.m
Museum Curatorial Centre
3,000
Sq.m
Libraries
Main Library
5,342
Sq.m
Library Equipment
Pooled
Pooled
Library Collections
361,131
Each
Art Gallery of Peterborough
Art Gallery of Peterborough
1,193
Sq.m
Public Art
Public Art Collections
29
Each
Heritage
Asset
Inventory
2023
Quantity
Unit of Measure
Market Hall/Clock Tower
1,068
Sq.m
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the Arts, Culture & Heritage service
area totalled $64.6 million. Replacement costs were determined using different
valuation methods such as condition assessments, risk insurance appraisals, or
historical costs inflated to 2023 where recent assessments or costing information was
not available.
Figure 1: Arts, Culture & Heritage Service Area -Replacement Cost by Asset Class
REPLACEMENT COST BY ASSET CLASS
ARTS, CULTURE & HERITAGE
($MILLIONS)
Heritage,$21,
32%
Library, $22.0,
34%
Museum,
$11.9, 18%
Art Gallery &
Public Art,
$10.2, 16%
Table 2: Arts, Culture & Heritage - Replacement Costs by Asset
Asset
Inventory
2023
Replacement Cost
Museum
Peterborough Museum and Archives & Memorial
Pavilion
$7,112,670
Museum Curatorial Centre
$4,618,699
Museum Lookout Structure1
$173,386
Libraries
Main Library
$17,241,591
Library Equipment
$613,642
1 Lookout Structure is located within Ashburnham Park but accounted for under the Museum portfolio
Asset
Inventory
2023
Replacement Cost
Library Collections
$4,178,984
Art Gallery of Peterborough
Art Gallery of Peterborough
$4,806,805
Public Art
Public Art Collections
$5,361,299
Heritage
Market Hall/Clock Tower2
$20,542,762
Arts, Culture & Heritage Total
$64,649,834
1.3
Asset Condition and Remaining Useful Life
The ACH service area is currently rated in overall good condition. Condition ratings for
facilities are based on the most recent building condition assessments (BCA's)
completed in 2021-2022 with updates anticipated in 2028. Age based ratings have
been used where assessments are not available. Based on replacement cost, 29% or
$18.6 million are rated very good, 32% or $20.4 million rated good, 31% or $20.1 million
rated fair and 8% or $5.5 million rated poor and very poor. Figure 2 and Table 3 provide
condition details of ACH assets.
2 Partially city owned. Replacement cost of the full facility is shown until further analysis is carried out to
determine the City's share in terms of replacement cost.
Figure 2: Art, Culture & Heritage - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND
REPLACEMENT COST
ARTS, CULTURE AND HERITAGE
($MILLIONS)
Very Good,
$18.6 , 29%
Good, $20.4 ,
32%
Fair, $20.1 ,
31%
Poor, $2.8 , 4%
Very Poor, $2.7
, 4%
Table 3: Arts, Culture & Heritage - Asset Condition Ratings
Asset
Inventory
2023
Condition Rating
Museum
Peterborough Museum and Archives & Curatorial
Centre
Good
Libraries
Main Library, Equipment & Collections
Good
Art Gallery of Peterborough
Art Gallery of Peterborough
Good
Heritage
Market Hall/Clock Tower
Fair
Overall ACH Condition3
Good
Museum and Archives
The recent $3.3 million Museum renewal project consisting of three phases was
completed in 2017. Renewal and construction activities included renovations to 3,000
square feet of the existing facility along with exterior improvements, the construction of
an additional 9,000 square foot dedicated storage building, new HVAC systems and the
purchase and installation of custom collection storage systems.
3 Weighted by replacement value
Library Main Branch
Recent renovations in 2018 to the Main Branch included include slab repairs, hazardous
materials abatement, HVAC replacements, roofing replacement and internal
reorganization, a new entrance, two new elevators, improved accessibility both inside
and outside, and cold weather heated walkways. Expansion and renovations improved
core library services and result in a net gain of 9,000 square feet of public space.
Art Gallery of Peterborough
In 2011 a functional analysis4 of the Art Gallery was completed, followed by a feasibility
study in 20145 and an update to the feasibility study in 2019 These studies indicate that
the current facility has been maximized well beyond its use and a purpose-built facility is
required to better meet the demand of the community, current standards for a public
institution and maximizes the use of a public art gallery. In 2015 there was scheduled
replacement of the failing HVAC system to maintain the climate control as required for a
collecting institution by the Department of Canadian Heritage. At that time, the collection
was temporarily relocated offsite to a fine art storage facility and improvements were
made to the permanent collection and art storage vault. Other improvements for safety
and efficiency have been made in recent years, including asbestos remediation,
replacement of the front entrance doors, new internal doors at the entrance to the
gallery space and new LED lighting throughout the exhibition spaces including a
replacement of the failing original (1979) track lighting system in the main gallery. These
improvements have enabled the gallery to continue to provide good service and
maintain Category A status. The facility use has been maximized to the point that
outside rental is required for storage. As indicated in previous studies mentioned, the
facility no longer meets growth demand and has reached beyond functional capacity to
provide appropriate service. Previous plans for new facility development need to be
revitalized for discussion.
Public Art Collections
The Public Art Collection is one branch of the civic collection, representative of
significant public artworks/projects, funded in whole or in part by the City, that have
been undergone the City's public art selection process, as defined in the public art
policy and related procedures. The collection includes original works of art, in any media
that have been planned and executed with the specific intention of being installed or
presented in a public space, accessible to all citizens either temporarily or permanently.
The City is responsible for maintaining the Public Art Collection to reasonable and safe
standards. A Public Art Collection Management Plan provides a coherent program of
maintenance, conservation and preservation, and a management strategy that details
the location, condition, and maintenance requirements/procedures of each work.
Permanent artworks are made of durable materials and have been fabricated and
acquired by the City with the intention that they be maintained and preserved over the
long-term or in perpetuity. Temporary or transient works are intended to activate a
space and engage the public over a short period of time; it is understood that these
pieces have a shorter lifespan and long-term conservation efforts are not applicable.
4 Lundholm Associates in association with Ginder Consulting and Lett Architects Inc., Art Gallery of
Peterborough Functional Analysis Plan, City of Peterborough (2011).
5 Lundholm Associates in association with Lett Architects Inc., Feasibility Plan, Art Gallery of
Peterborough Feasibility Study, City of Peterborough (2014).
These Artworks are maintained as part of the Public Art Collection for the timeframe
identified at the time of acquisition and/or for agreed upon increments thereafter.
Market Hall and Clock Tower
The Market Hall and Clock tower, a designated heritage building, is a small to mid-size,
multi-functional space that hosts a variety of performing arts, fundraising events, and
educational programmes. The facility underwent interior LED lighting upgrades and
exterior façade repairs in 2018. The facility is partially owned by the City, which
includes the clock tower, the second floor of the market hall and the east, south and
west facades of the exterior. The recent upgrades to the interior lighting and exterior
faces improved the overall condition to fair.
Remaining Useful Life
The following summarizes the ACH service area remaining useful life. The useful life of
an asset is the estimated period over which the City expects to use the asset.
Estimates are based on the calculated age or observed age (where condition
assessments have been completed) and do not take into consideration any betterments
that extend the useful life of the asset(s). Ideally, as condition assessments are
completed the 'observed' age will be used in calculating remaining useful life. The ages
of the assets are variable and with efforts to extend the life by application of lifecycle
treatments, there isn't necessarily a linear relationship between age and condition.
Table 4 shows the Arts, Culture & Heritage service area remaining useful life details.
Table 4: Arts, Culture & Heritage Remaining Useful Life6
Asset
Inventory
Ave.
Expected
Useful Life
(Yrs.)
Ave. Remaining
Useful Life
(Yrs.)
Percent of Useful
Life Remaining
Museum
Peterborough Museum and
Archives & Curatorial Centre
35
19
54%
Libraries
Main Library, Equipment &
Collections
13
1
6%
Art Gallery of Peterborough
Art Gallery of Peterborough
Facility
40
0
0%
Heritage
Market Hall/Clock Tower
26
0
0%
ACH Remaining Useful Life
27
3
11%
6 ESL, RUL, and percent of useful life remaining are based on calculated average of asset classes
1.4
Asset Risk Assessment
Currently, the consequences of failure for facilities have been determined manually by
City staff based on a standardized chart for consequence (found in Appendix B). The
risk evaluation considers environmental, economical, social, life safety, legislation and
corporate reputation as factors when scoring consequence. Building elements
considered high risk are those that pose a high consequence of failure and typically are
associated with the safety, health, and well being of the facility users/tenants. These
elements include (but are not limited to): building structure, shell, fire and life safety
systems, heat generating systems and elevating devices.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Arts, Culture & Heritage high risk assets is $3.2
million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies and policies such as the 2016 Vision 2025, A 10-Year Strategic Plan for
Recreation7, Parks, Arenas and Culture and the 2012 Municipal Cultural Plan.
Stakeholder and technical levels of service, performance measures and current targets
for the ACH assets service area are outlined in Table 5 below. Further development of
the City's levels of service is underway in which the proposed levels of service and the
affordability of the service will be analyzed and presented. Future versions of the Asset
Management Plan will also include other proposed levels of service reporting
requirements set forth in the Asset Management Planning for Municipal Infrastructure
Regulation (O.Reg. 588/17).
7 The RETHINK GROUP in association with C.Talbot & Assoc. Vision 2025, A 10-Year Strategic Plan for
Recreation, Parks, Arenas and Culture, City of Peterborough (2016)
Table 5: Levels of Service - Arts, Culture & Heritage
Asset Class: ACH - Art Gallery of Peterborough
Service Objective Statement: Strives to present a variety of visual art experiences and explorations to stimulate and expand public perception of art as part of
our life and community.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Scope
Showcase
Permanent
Collections,
curate and
exhibit local
artists, and
engage the
community
through
contemporary
art
An available
facility to facilitate
programming,
exhibitions and
external
engagement
Provision of
an Art
Gallery,
11,000 sq. ft
of space
Provision of
an Art
Gallery,
11,000 sq. ft
of space
Ratio of galleries to
current population
1
facility:45,000
of pop
1 facility:
83,651 of
pop.
1 facility:
83,651 of
pop.
Meet environmental and
care standards necessary
to preserve works long-
term
Meet
'Category A'
Collecting
Institution
designation
by the
Department
of Canadian
Heritage
Designated
Category A
Collecting
Institution
Designated
Category A
Collecting
Institution
Reliability/Quality
Providing a
reliable and
high-quality
Art Gallery
that meets
the needs of
the
community
Art Gallery is
maintained in a
state of good
repair
Facility is
proactively
maintained
and reliable
for intended
use
Facility is
proactively
maintained
and reliable
for intended
use
Average facility condition
rating
Minimum
facility
condition
rating of 'Fair'
Fair
Fair
Average Facility Condition
Index (FCI) value for all
facilities
Minimum Fair
(5% - 10%)
n/a - not
reported
10% (Fair)
-
Asset Class: ACH - Art Gallery of Peterborough
Service Objective Statement: Strives to present a variety of visual art experiences and explorations to stimulate and expand public perception of art as part of
our life and community.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Climate Leadership
Facilities are
energy
efficient and
demonstrate
leadership on
climate action
Facilities meet
our
environmental
objective
Facilities
strive to
lower
energy
usage by
installing
energy
conservation
measures
that improve
energy
efficiency to
reduce GHG
emissions
Facilities
strive to
lower
energy
usage by
installing
energy
conservation
measures
that improve
energy
efficiency to
reduce GHG
emissions
Annual energy
consumption per Sq.m
Energy Use
Intensity
(EUI) of 0.41
GJ/m2 or
less
n/a - not
reported
1.34 GJ/m2
-
Asset Class: ACH - Libraries
Service Objective Statement: The Library will inspire our community to become more literate and engaged. We are an agent for positive community
transformation through interaction, discovery and learning.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Scope
Access to
sufficient and
suitably
located
branch
libraries.
Maintain an
adequate level of
library space and
service
Provision of 2
library
branches:
Main and
DelaFosse,
opening of a
self-serve
Library Kiosk
at the
Peterborough
Sport &
Wellness
Centre
(PSWC)
Provision of
1 library
branch
(Main) with
a new
construction
planned to
open in fall
of 2024
(replacing
DelaFosse).
There are
now 3 x self-
serve kiosks
in the City -
one each of
the
following:
PSWC,
PRHC and
Trent.
Ratio of library space
to current population
0.8-1.25
gross sq.
ft/capita
67,500 gross
sq.ft. (0.8
gross sq.
ft/capita)
Main Branch
- 28,792 sq.ft
Kiosk - 20
sq.ft each x 3
=
60 sq.ft (0.3
gross
sq.ft/capita)
-
Asset Class: ACH - Libraries
Service Objective Statement: The Library will inspire our community to become more literate and engaged. We are an agent for positive community
transformation through interaction, discovery and learning.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Reliability/Quality
Providing
reliable and
high-quality
Libraries that
meet the
needs of the
community
Libraries are
maintained in a
state of good
repair
n/a - not
reported
Facilities are
proactively
maintained
and reliable
for intended
use
Average facility
condition rating
Minimum
facility
condition
rating of 'Fair'
Fair
Good
Average Facility
Condition Index (FCI)
value for all facilities
Minimum Fair
(5% - 10%)
n/a - not
reported
1% (Good)
Climate Leadership
Facilities are
energy
efficient and
demonstrate
leadership on
climate
action
Facilities meet
our
environmental
objective
Facilities
strive to
lower energy
usage by
installing
energy
conservation
measures
that improve
energy
efficiency to
reduce GHG
emissions
Facilities
strive to
lower
energy
usage by
installing
energy
conservation
measures
that improve
energy
efficiency to
reduce GHG
emissions
Annual energy
consumption per
Sq.m
Energy Use
Intensity
(EUI) of 1.03
GJ/m2 or less
n/a - not
reported
0.97 GJ/m2
Asset Class: ACH - Museum and Archives
Service Objective Statement: The City strives to provide adequate, safe, welcoming and accessible environments serving the entire community.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Scope
Access to
sufficient and
suitably
located
museum and
archives
Maintain an
adequate level of
museum and
archives space
Provision of
one
Community
Museum &
Archives
location
Provision of
one
Community
Museum &
Archives
location
Ratio of museum f acilities
to current population
1 facility:
community
1 facility:
85,000 pop.
1 facility:
83,651 pop.
Reliability/Quality
Providing
reliable and
high-quality
Museum and
Archives
Facility that
meets the
needs of the
community
Museum and
Archives
Facilities are
maintained in a
state of good
repair
Facilities are
proactively
maintained
and reliable
for intended
use
Facilities are
proactively
maintained
and reliable
for intended
use
Average facility condition
rating
Minimum
facility
condition
rating of
'Fair'
n/a - not
reported
Museum -
Good
Average Facility
Condition Index (FCI)
value for all facilities
Minimum
Fair (5% -
10%)
n/a - not
reported
Museum -
Good (3%)
Number of facilities with
FCI or 10% or better
4 Facilities
n/a - not
reported
Museum -
4/4 facilities
-
Asset Class: ACH - Museum and Archives
Service Objective Statement: The City strives to provide adequate, safe, welcoming and accessible environments serving the entire community.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Climate Leadership
Facilities are
energy
efficient and
demonstrate
leadership on
climate
action
Facilities meet
our
environmental
objective
Facilities
strive to
lower
energy
usage by
installing
energy
conservation
measures
that improve
energy
efficiency to
reduce GHG
emissions
Facilities
strive to
lower
energy
usage by
installing
energy
conservation
measures
that improve
energy
efficiency to
reduce GHG
emissions
Annual energy
consumption per Sq.m
Energy Use
Intensity
(EUI) of
0.41 GJ/m2
or less
n/a - not
reported
0.83 GJ/m2
3.0
Asset M
anagement Strategies - Arts, Culture & Heritage
The following table describes the current strategies and activities for the ACH service area to maintain the current levels
of service, while minimizing risk at the lowest lifecycle costs. Options for which lifecycle activities that could potentially be
undertaken have been explored in various needs studies and reports such as the Art Gallery of Peterborough Strategic
Plan (2016) and Feasibility Study (2014) and Feasibility Study Update (2019), the Library Strategic Plan (2018) and the
Vision 2025, A Ten-Year Strategic Plan for Recreation, Parks, Arenas and Culture (2016). The City plans the necessary
lifecycle activities at the required time and does not need to alter the type of activity undertaken. However, with limited
funding available, the interval and timing of the necessary lifecycle activities are affected, which can have an overall
impact on the performance of the asset(s) over its useful life.
Table 6: Arts, Culture & Heritage- Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs or extend asset
life (e.g. better integrated infrastructure planning and
land use planning, demand management, insurance,
process optimization, managed failures, etc.).
· Building condition assessment program
· Needs studies to assess community needs and how
services are being delivered to the community
· Linking the asset management plan to other studies,
master plans and strategies
· Integrating infrastructure and land use planning
· Public consultation on levels of service
· Leverage incentive programs offered through utilities that
are for low carbon emissions or energy efficiency projects
· Educate staff on climate change initiatives and energy
efficiency opportunities with respect to building
operations/ownership
· Partnership Policy to extend and enhance services is a
sustainable way and coordinate and reduce overlap in efforts
between agencies serving the same area.
Maintenance Activities
Activities include regularly scheduled inspection and
maintenance, or more significant repair and activities
associated with unexpected events.
· Service contracts for building life-safety and security alarm
systems, elevating systems, and code/regulated building
elements
· Basic custodial services
Strategy Type
Current Practice
·
General routine maintenance activities performed
throughout the interior and exterior of each facility
Renewals/Rehabilitation:
Includes significant repairs designed to extend the life
of the asset (e.g. the lining of iron watermains can
defer the need for replacement).
· Renewal of facility elements or sub-systems such as
structures, roofs, building exteriors, building services (HVAC,
plumbing, electrical), interior finishes and sitework that are at
the end of their useful life and renewal does not
improve/expand the intended service initially provided
· Upgrading projects focus on removing asset exposure to
elements
Replacement
Activities that are expected to occur once an asset has
reached the end of its useful life and
renewal/rehabilitation is no longer an
option.
· Facility components replaced when at end of useful life
through capital planning/business case
· Replacement due to obsolescence or does not meet
minimum design standards/intent
· Replacements considered within the context of the facility
· Combine projects to include the investigations, renewals
and replacements
· Replace large assets based on condition or efficiency
· Heritage facility replacements that are intended to preserve
the heritage value of the property/facility - roof, exterior
facades, windows, doors, trim/accents
· Replacement of library collections are carried out
according to the same selection criteria that apply to new
materials
Disposals/Abandonment Policies
Activities associated with disposing of an asset once it
has reached the end of its useful life or is otherwise no
longer needed by the municipality.
· Facilities that are no longer needed for the intended
service are either sold, re-purposed or demolished
· Library collection items that are damaged by patrons are
repaired when possible or disposed of
Strategy Type
Current Practice
· For library collections, materials are withdrawn from the
collection when:
· No longer used by the community
· Worn out, damaged or cannot be repaired
· Outdated, unreliable or m
isleading
· More current materials on a subject become available
· Public demand no longer requires multiple copies
· Space is required for new materials
Expansion Programs
Planned activities required to extend the services to
previously un-serviced areas - or expand services to
meet growth demands.
· When facility has reached its functional capacity and
expansion is necessary for continued delivery of service
· Changes to accessibility requirements for public buildings
drive expansions. Grants are used, where possible to meet
these requirements
· Expansion of renewable energy programs and systems to
reduce energy costs for operation
· Update to new building codes when asset needs renewals
· Ensure existing facility use is maximized before additional
facilities are provided
Future Strategies
· Seek opportunities to co-locate ACH facilities with other
compatible community facilities
· Seek opportunities to collaborate with others to provide
arts, culture and heritage facilities; and associated
programming and events.
· Seek opportunities to increase the integration of services
among major providers (school boards, Peterborough County,
community groups, commercial sector, neighboring townships,
etc.)
· Align culture opportunities and services to the interests and
perspectives of older adult community to meet future expected
service level demands
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Recreation Services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Risk Trade Offs
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are not
undertaken, they may sustain or create risk consequences. These risk consequences
may include (but not limited to):
Public health and safety - assets not adequate/available for emergency response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance now
needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Risks relating to ACH building elements and infrastructure failures are mitigated though
condition assessment programs and maintenance programs (legislated and best
practices) which provide the data necessary to plan the actions at the right time to achieve
the determined levels of services. Primarily, risks are financial in nature and without
planned, adequate levels of funding, strategies are potentially at risk for limited
implementation (or no implementation at all), resulting in the delivery of lower levels of
service to stakeholders.
Currently, the limited art gallery space has been identified as an inherent risk associated
with the ability to meet the demands of the visitors and artists, as well as with the ability to
fulfill the Art Gallery mandate.
There is a risk associated with the increase in demand from population growth, primarily in
the age 55 and older age group by the year 2041. The increase within this age group
implies that activities of interest will significantly increase, and the service level of
supporting facilities will have to be increased as well. Activities related to the Arts, Culture
& Heritage service area include performing arts, attending community events, visiting
museums and historic sites and appreciating cultural heritage. Replacements, Expansion
and Future Strategies will need to take aging demographics into consideration when being
implemented.
All City services, including ACH services are reviewed and identified in the City's Business
Continuity Plan (BCP) and prioritization process. The BCP identifies the key interruption
impacts, recovery time objectives, dependencies, qualified resources available and a
resource back-up strategy should services be interrupted. The BCP is reviewed and
updated regularly to ensure that critical services are not interrupted, minimizing risks.
The choice of strategy for maintaining ACH assets considers the risk of failure of the
assets, the risk to service delivery and the risk to other services dependant on this service
area. ACH projects seek to work with external stakeholders to align projects to minimize
disruption of the use of the existing facilities/programs and reduce costs. Strategies
implemented are at the lowest cost in order to reduce the burden on the tax base and user
fees where possible and to maintain the current levels of service.
3.2
Lifecycle Models, Interventions, and Cost of Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed8 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement) are
documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and of
asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short, lifecycle
models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
8 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of S
ervice
The options analysis of the lifecycle activities that could be undertaken were reviewed with
the ACH services subject matter experts. Lifecycle activity options were discussed and
determined that the current planned activities are appropriate and the most cost-effective
option(s). Details related to the Recreation services available funding, investments and
shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 3 below shows the ACH services area projected 10-year lifecycle costs
(asset renewal and replacement activities required for existing assets) and performance to
maintain current levels of service. For details on current levels of service descriptions,
measures and targets and current performance, refer to Table 5 in Section 2 - Levels of
Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for that
asset/asset class. Where asset condition data was not available, age-based condition
ratings were applied.
-
Table 7: Arts, Culture & Services Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle Activity
Costs -
ACH Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
otal 10-Yr
Heritage
$0
$244,904
$244,904
$244,904
$244,904
$244,904
$244,904
$244,904
$244,904
$244,904
$244,904
$2,449,040
Library
$0
$833,288
$833,288
$833,288
$833,288
$833,288
$833,288
$833,288
$833,288
$833,288
$833,288
$8,332,884
Museum and Arts
$0
$241,018
$241,018
$241,018
$241,018
$241,018
$241,018
$241,018
$241,018
$241,018
$241,018
$2,410,178
Annual Total
$0
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$13,192,102
Average Annual
Lifecycle Cost
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
$1,319,210
Based on the lifecycle assessment of the Arts, Culture & Heritage assets (for renewal and replacement), it is estimated that the City would need to spend an
average of $1.3 million per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 3: 10-Year Forecasted Performance for Maintaining Levels of Service - Arts,
Culture & Heritage
Figure 3 above illustrates the performance (condition) of Arts, Culture & Heritage assets
over the 10-year forecast. The estimated average combined annual expenditures to
maintain these conditions is approximately $1.3 million.
Attachment #12: Information Technology
Services
Infrastructure
Value
$9.8M
Annual
Renewal Needs
$0.9M
Overall
Condition
4.0
Good
High Risk Asset
Value
$9M
96%
Trend
N/A
1.0
Summary of Information Technology Services
Asset classes that fall under the Information Technology Services (ITS) service area
include audio-visual equipment, network appliances and servers, printers and scanners,
security systems1, telephone, and voicemail equipment, back up power supply and
workstations. Annual renewal needs shown are based on lifecycle management
strategies and represent the estimated amount of capital the City needs to reinvest in its
existing asset inventory on an annual basis over the next 10 years to sustain the current
levels of service (based on the 25-yr investment forecast).
This is the first iteration of the Asset Management Plan that includes Information
Technology Services.
Table 1 details the ITS service area inventory.
1.1
Inventory Details
Table 1: ITS Service Area Inventory
Asset
Category & Class
2023
Quantity
Unit of Measure
Equipment
Audio-Visual
pooled
n/a
Network Appliances and Servers
68
Each
Printers and Scanners
pooled
n/a
1 Security Systems and related components for various corporate facilities. Reported as part of ITS
assets in this Plan to align with TCA financial reporting structure.
Asset
Category & Class
2023
Quantity
Unit of Measure
Security Systems2
pooled
n/a
Telephones and Voicemail
pooled
n/a
Uninterrupted Power Supply Systems
pooled
n/a
Workstations
pooled
n/a
Software
pooled
n/a
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the ITS service area totalled $9.8
million. Replacement costs were determined using recent acquisition costs of like
assets or historical inflated to 2023 dollars where recent costing information was not
available.
Figure 1: ITS Service Area -Replacement Cost by Asset Category
REPLACEMENT COST BY ASSET CATEGORY
INFORMATION TECHNOLOGY SERVICES
($MILLIONS)
Hardware, $4.2
, 43%
Software, $5.6 ,
57%
2 Security Systems and related components for various corporate facilities. Reported as part of ITS
assets in this Plan to align with TCA financial reporting structure.
Table 2: ITS Assets - Replacement Costs by Asset Class
Asset
Class & Sub-Class
2023
Replacement Cost
Hardware
Audio-Visual
$358,033
Network Appliances and Servers
$1,914,249
Printers and Scanners
$133,190
Security Systems - Emergency System3
$50,053
Telephones and Voicemail
$260,131
Uninterrupted Power Supply Systems
$83,924
Workstations
$1,407,140
Software
Software
$5,572,834
ITS Assets Total
$9,779,555
1.3
Asset Condition and Remaining Useful Life
For the City's IT assets reported in this Plan, condition ratings are presented using
recommendations based on professional judgment/expertise by IT subject matter
experts. This alternate method takes into consideration not just age/ESL as a proxy,
but the asset failure rates, overall performance, reliability, and the cost impacts of
extending asset useful life vs. acquiring new. This provides a better reflection of actual
IT asset conditions vs. applying age-based ratings. City staff are working towards
developing a more robust 5-point rating scale for IT assets that incorporates varying
factors affecting asset condition as part of the assessment criteria and will align with
methods used in other service areas in this Plan. The overall condition of ITS assets is
rated 'good'.
For various software systems and applications, hardware equipment, etc., the City
strives to extend the useful life through regular inspections, maintenance, upgrades,
and updates. The City ensures that, pending available budget, equipment refresh
schedules are followed to mitigate against technological obsolescence,
operational/functional inefficiencies and risks related to security and data integrity.
Using the alternate condition rating methodology and based on replacement cost, 1% or
$50k is rated very good and 99% or $9.7 million are rated good. Figure 2 and Table 3
provide condition details of the ITS service area.
3 Facility Asset but reported as part of ITS assets in this Plan to align with TCA financial reporting
structure.
Figure 2: ITS Assets - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT COST
INFORMATION TECHNOLOGY SERVICES
($MILLIONS)
Very Good,
$50,053, 1%
Good,
$9,729,502,
99%
Table 3: ITS Assets - Asset Condition Ratings
Asset
Class & Sub-Class
2023
Condition Rating
Hardware
Audio-Visual
Good
Network Appliances and Servers
Good
Printers and Scanners
Good
Security Systems - Emergency System4
Very Good
Telephones and Voicemail
Good
Uninterrupted Power Supply Systems
Good
Workstations
Good
Software
Software
Good
ITS Overall Condition
Good
Remaining Useful Life
The following summarizes the Information Technology Services assets' remaining
useful life. The useful life of the assets shown represent the estimated period over
which the City expects to use the asset. Estimates of ages are based on the calculated
4 Security Systems for various facility access. Reported as part of ITS assets in this Plan to align with
TCA financial reporting structure
age only and do not take into consideration any betterments that extend the useful life
of the asset(s). The City is working towards improving asset data that will inform the
useful life of the assets, and will consider software updates, equipment upgrades and
system enhancements, etc.
Table 4 shows ITS assets remaining useful life details.
Table 4: ITS Assets Remaining Useful Life5
Asset
Inventory
Expected
Useful Life
(Yrs.)
Ave.
Remaining
Useful Life
(Yrs.)
Percent of Useful
Life Remaining
Hardware
8
0
0%
Software
12
0
0%
ITS Assets Remaining Useful
Life
9
0
0%
1.4
Asset Risk Assessment
The consequences of failure for ITS assets have been determined manually by City
staff based on a standardized chart for consequence (found in Appendix B). The
assessment considers environmental, economical, social, life safety, legislation and
corporate reputation as factors when scoring consequence.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of ITS high-risk assets is $9.4 million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
5 ESL, RUL, and percent of useful life remaining are based on calculated average of asset classes
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies and policies.
Stakeholder and technical levels of service, performance measures and current
performance for the ITS service area are outlined in Table 5. Further development of
the City's levels of service is underway in which the proposed levels of service and the
affordability of the service will be analyzed and presented. Future versions of the Asset
Management Plan will also include other proposed levels of service reporting
requirements set forth in the Asset Management Planning for Municipal Infrastructure
Regulation (O.Reg. 588/17).
Table 5: Levels of Service - Information Technology Services
Asset Class: Information Technology Services
Service Objective Statement: Efficiently providing secure information technology at an appropriate quality and quantity to support the delivery of services.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Reliability/Quality
Providing
reliable and
high-quality IT
Assets that
meet the
needs of the
community
and
stakeholders
IT Assets are
maintained in a
state of good
repair
n/a
IT Assets are
proactively
maintained
and reliable
for intended
use
Unplanned downtime
average that is high
impact and has broad
scope for key
technology that the
City relies on for
critical functions.
Unplanned downtime
less than 1 hour
during production
hours with less than
four single
incidences/device
within 8 hours
n/a
Target met.
Distribution of hours
allocated to Enterprise
Application Support
Enterprise
applications no more
than 70% of hours
dedicated to keep the
lights on (run the
business). Minimum
10% dedicated to
major capital projects
(transforming the
organization).
n/a
Target met.
Consistent
performance for
external Security
Audit/Assessment.
80% of audit scores
are equal to or bet
ter
than previous year
n/a
Target met
Asset Class: Information Technology Services
Service Objective Statement: Efficiently providing secure information technology at an appropriate quality and quantity to support the delivery of services.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and
Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Metric for service
desk issues regarding
end-user assets.
70% of requests
addressed within 1
business day and
90% within three
business days
n/a
Target met
3.0
Asset M
anagement Strategies - Information Technology
Services
The following table describes the current strategies and activities for the Information
Technology Services area to maintain the current levels of service. Options for which
lifecycle activities that could potentially be undertaken have been explored on based on
industry best practices, past trends, business requirements. The following table below
documents the set of planned actions or 'activities' that the City undertakes to sustain
current levels of service, while managing risk at the lowest lifecycle cost. The City plans
the necessary lifecycle activities at the required time and does not need to alter the type
of activity undertaken. However, with limited funding available, the interval and timing of
the necessary lifecycle activities are affected, which can have an overall impact on the
performance of the asset(s) over its useful life.
Table 6: Information Technology Services - Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower
costs or extend asset life (e.g. better
integrated infrastructure planning
and land use planning, demand
management, insurance, process
optimization, managed failures,
etc.).
·
Regular equipment monitoring and
inspection
·
Linking the asset management plan to other
studies, master plans and strategies
·
Public consultation on levels of service
·
Regular support provided by IT department
·
High priority in procurement for purchasing
critical equipment
Maintenance Activities
Activities include regularly
scheduled inspection and
maintenance, or more significant
repair and activities associated with
unexpected events.
·
Equipment maintained by IT department as
needed
·
Reactive maintenance as required
-
Patch installations and upgrades where
required
Renewals/Rehabilitation:
Includes significant repairs designed
to extend the life of the asset (e.g.
the lining of iron watermains can
defer the need for replacement).
·
Not applicable - IT equipment undergoes
regular maintenance program until
replacement
Replacement
Activities that are expected to occur
once an asset has reached the end
of its useful life and
renewal/rehabilitation is no longer an
option.
·
Replace equipment when no longer
functioning as intended
·
Replace equipment when obsolete
Disposals/Abandonment Policies
Activities associated with disposing
of an asset once it has reached the
end of its useful life or is otherwise
no longer needed by the
municipality.
·
Repurpose used equipment whenever
possible
·
Retain retired critical equipment as required
to maintain spare ratios
Expansion Programs
Planned activities required to extend
the services to previously un-
serviced areas - or expand services
to meet growth demands.
·
Upgrade equipment as required to meet
user needs
·
Right-size equipment as needed to
accommodate expansion of service and
planned growth
Future Strategies
n/a
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established IT Services are:
Insufficient funding levels
Increased Cyber Security risks
Insufficient staffing and resources to responsibly implement lifecycle strategies
IT asset replacement plans/schedules are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, flooding) that could cause physical damage to equipment
and/or power outages
Supply chain issues
Technology disruptors that render a current technology obsolete
Risk Trade Offs
If the identified lifecycle activities (operations, maintenance, renewal, and other capital
projects) are not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Reduced/interrupted emergency service support due to failed or obsolete 911
emergency dispatch equipment and software
Threats to IT security - sensitive data/systems are more vulnerable to hackers,
viruses, etc. if monitoring and detection tools are not in place
Hardware and software become obsolete causing operational/functional delays
Increased backlog of work for those business units requesting IT resources
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Risks associated with IT security and the loss of confidential data are mitigated through
a number of measures including advanced monitoring and detection tools, security
awareness training, strong access control measures and detailed incident response
plans. Risks associated with not replacing IT assets at the end of useful life are
mitigated by the implementation of the City Capital Expenditure Project in which the
lifecycle management, new initiatives and enhancements of existing IT assets are
funded.
All City services, including IT dependencies are reviewed and identified in the City's
Business Continuity Plan (BCP) and prioritization process. The BCP identifies the key
interruption impacts, recovery time objectives, dependencies, available qualified
resources, and a resource back up strategy should there be disruption to services. The
BCP is reviewed and updated regularly to ensure that back up IT infrastructure is
available where required and critical services are not interrupted, minimizing risks.
The choice of strategy for operating and maintaining IT assets considers the risk of
failure of the assets, the risk to service delivery and the risk to other services dependant
on this service area. Strategies implemented attempt to balance cost, security and
performance at the lowest cost (where applicable) in order to reduce the burden on the
tax base and user fees where possible and to maintain the current levels of service.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk
treatment plan for non-acceptable risks is being reviewed and will be included in future
versions of the asset management plan when completed.
3.2
Lifecycle Models, Interventions, and Cost o
f Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed6 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement)
are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of Service
The options analysis of the lifecycle activities that could be undertaken were reviewed
with ITS subject matter experts. Lifecycle activity options were discussed and
determined that the current planned activities are appropriate and the most cost-
effective option(s). Details related to the ITS available funding, investments and
shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 3 below shows the ITS service area projected 10-year lifecycle costs
(asset renewal and replacement activities required for existing assets) and performance
to maintain current levels of service. For details on current levels of service
descriptions, measures and targets and current performance, refer to Table 5 in Section
2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for
that asset/asset class.
6 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
-
Table 7: ITS Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle Activity Costs -
Information Technology
Services
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
ITS assets
$0
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$9,112,010
Annual Total
$0
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$9,112,010
Average Annual Lifecycle
Cost
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
$911,201
Based on the lifecycle assessment for ITS assets (for renewal and replacement), it is estimated that the City would need to spend an average of $0.9 million per
year to carry out the required lifecycle activities to maintain current levels of service.
Attachment #13: Emergency Services
Infrastructure Value
$66.3M
Annual Renewal
Needs
$1.9M
Overall Condition
3.0
Fair
High Risk Asset
Value
$27M
41%
Trend
N/A
1.0
Summary of Emergency Services
The Emergency Services area includes Police and Fire Services. Asset classes that fall
under both areas include facilities, fleet, and equipment. Annual renewal needs shown
are based on lifecycle management strategies and represent the estimated amount of
capital the City needs to reinvest in its existing asset inventory on an annual basis over
the next 10 years to sustain the current levels of service (based on the 25-yr investment
forecast).
This is the first iteration of the Asset Management Plan that includes Emergency
Services.
Table 1 details the City's inventory for Emergency Services.
1.1
Inventory Details
Table 1: Emergency Services Inventory
Asset
Class & Sub-class
Asset
2023
Quantity
Unit of Measure
Fire Services
Fleet
Vehicles
39
Each
Facilities
Fire Station #1
27,208
Sq. Ft
Fire Station #2
3,500
Sq. Ft
Fire Station #3
16,603
Sq. Ft
Annex/Emergency
Operations Centre
2,670
Sq. Ft
Asset
Class & Sub-class
Asset
2023
Quantity
Unit of Measure
Miscellaneous
Equipment
Various
Equipment
Pooled
Pooled
Police Services
Fleet
Vehicles
62
Each
Facilities
Peterborough
Police & Parking
Garage
55,590
Sq. Ft
Miscellaneous
Equipment
Various
Equipment
Pooled
Pooled
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the Emergency Services area
totalled $66.3 million. Replacement costs were determined using different valuation
methods, such as unit cost multipliers based on recent construction projects or
replacements, condition assessments or historical costs inflated to 2023 where recent
assessments or costing information was not available.
Figure 1: Emergency Services -Replacement Cost by Asset Category
Fire Facilities,
$28 , 43%
Fire Fleet, $6 ,
9%
Fire
Equipment, $2
, 3%
Police
Facilities, $22,
33%
Police Fleet,
$2, 3%
Police
Equipment, $6,
9%
REPLACEMENT COST BY ASSET CATEGORY
EMERGENCY SERVICES
($MILLIONS)
Table 2: Emergency Services - Replacement Costs by Asset
Asset
Category & Class
Asset
2023
Replacement Cost
Fire Servces
Fleet
Vehicles
$6,325,186
Facilities
Fire Station #1
$15,165,490
Fire Station #2
$1,546,793
Fire Station #3
$10,316,259
Annex/Emergency Operations
Centre
$1,234,054
Equipment
Emergency and Non-Emergency
Response equipment
$2,186,994
Police Services
Fleet
Vehicles
$2,297,585
Facilities
Peterborough Police & Parking
Garage
$21,516,414
Equipment
Emergency Response
Equipment
$5,671,691
Emergency
Services Total
$66,260,466
1.3
Asset Condition and Remaining Useful Life
The City's Emergency Services assets are currently rated in overall fair condition.
Where condition inspections have not been completed, high-level ratings using
professional judgement, or age-based ratings were used. Based on replacement cost,
11% or $7.0 million are rated very good, 19% or $12 million rated good, 42% or $27
million rated fair and 29% or $19 million are rated poor and very poor. Figure 2 and
Table 3 provide condition details of Emergency Services.
Figure 2: Emergency Services - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT
COST
EMERGENCY SERVICES
($MILLIONS)
Very Good, $7 ,
11%
Good, $12 ,
18%
Fair, $27 , 42%
Poor, $11 , 16%
Very Poor, $8 ,
13%
Table 3: Emergency Services - Asset Condition Ratings
Asset
Category & Class
Asset
2023
Condition Rating
Fire Services
Fleet
Vehicles
Fair
Facilities
Fire Station #1
Fair
Fire Station #2
Poor
Fire Station #3
Good
Annex/Emergency
Operations Centre
Good
Asset
Category & Class
Asset
2023
Condition Rating
Equipment
Emergency and Non-
Emergency Response
equipment
Fair
Police Services
Fleet
Vehicles
Good
Facilities
Peterborough Police &
Parking Garage
Fair
Miscellaneous Equipment
Emergency Response
Equipment
Poor
Emergency Services
Overall Condition1
Fair
Fire and Police Services Facilities
Fire and Police facility ratings shown are based on the most recent building condition
assessments completed in 2021-2022 and use observed age of facility elements at the
time of assessment. Other assets use an age-based rating methodology and have
been reviewed by staff to ensure that it reflects the current conditions until detailed
assessments are completed. The City plans to complete BCA's on a seven-year cycle
with the next round of assessments anticipated to be completed in 2028.
A new Fire Station #2 is currently being constructed in to replace the outdated facility
currently located on Carnegie Avenue (built in 1967). The design and location of the
current facility has made service delivery challenging, requiring a new location to
accommodate current needs as well as growth demands. Construction of the new Fire
Station #2 is underway with an anticipated completion date in fall of 2024.
Fleet
Condition ratings for fleet are based on both inspected conditions and age-based
ratings. For Fire Services, useful life of specialized heavy-duty vehicles (e.g., pumper
trucks, aerial lift trucks) are based on Fire Underwriters Insurance Rating Chart for the
age, vehicle and its use. Light-duty support vehicles are typically replaced every 15
years. Police light duty vehicles (e.g., police cruisers, pick-pick up trucks, etc.) and
miscellaneous fleet (e.g., motorcycles) are estimated to reach end of useful life and
replaced every 9 to 10 years.
The City's fleet maintenance plan incorporates ministry requirements and industry best
practices which aims to maintain a high level of vehicle health. Predictive processes
are utilized when scheduling major repairs such as engine, transmission, and axle
repairs. This ensures that the right maintenance activities are being carried out at the
correct time throughout the vehicle's life cycle and minimizing the total cost of
ownership.
1 Weighted by replacement cost
Police and Fire Services Equipment
Fire fighting equipment, personal protective equipment (PPE) and police protective
equipment have an average operational life of 5-10 years and are part of a scheduled
inspection and replacement program to ensure the fire and police staff are suitably
equipped and to adhere to Ministry of Labour standards. Condition ratings shown are
age-based and reviewed by service area subject matter experts.
Remaining Useful Life
The following summarizes the Emergency Services assets' remaining useful life. The
useful life of an asset is the estimated period over which the City expects to use the
asset. Estimates are based on the calculated age or observed age (where condition
assessments have been completed) and do not take into consideration any betterments
that extend the useful life of the asset(s). Ideally, as condition assessments are
completed the 'observed' age will be used in calculating remaining useful life. The ages
of the assets are variable and with efforts to extend the life by application of lifecycle
treatments, there isn't necessarily a linear relationship between age and condition.
Table 4 shows the Emergency Services remaining useful life details.
Table 4: Emergency Services Assets Remaining Useful Life2
Asset
Inventory
Expected
Useful Life
(Yrs.)
Remaining
Useful Life
(Yrs.)
Percent of Useful
Life Remaining
Facilities
Fire Stations
34
12
34%
Peterborough Police Station &
Parking Garage
34
14
41%
Fleet
Emergency Response Fleet
12
2
0%
Non-Emergency Response Fleet
23
21
44%
Equipment
Emergency Response Equipment
10
0
0%
Non-Emergency Response
Equipment
10
0
0%
Emergency Services Assets
Remaining Useful Life
30
10
34%
2 ESL, RUL, and percent of useful life remaining are based on calculated average of asset classes.
1.4
Asset Risk Assessment
The consequences of failure for Emergency Services assets have been determined
manually by City staff based on a standardized chart for consequence (found in
Appendix B). The assessment considers environmental, economical, social, life safety,
legislation and corporate reputation as factors when scoring consequence.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Emergency Services high risk assets is $26.1
million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies and policies such as the Official Plan (April 2023).
Stakeholder and technical levels of service, performance measures and current
performance for Emergency Services are outlined in Table 5 and 6 below. Further
development of the City's levels of service is underway in which the proposed levels of
service and the affordability of the service will be analyzed and presented. Future
versions of the Asset Management Plan will also include other proposed levels of
service reporting requirements set forth in the Asset Management Planning for
Municipal Infrastructure Regulation (O.Reg. 588/17).
-
Table 5: Levels of Service - Fire Services
Asset Class: Fire Services - Facilities
Service Objective Statement: Providing effective and reliable emergency services that keep the community safe.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Reliability/Quality
Providing reliable
and high-quality
Fire Services
Facilities that meet
the needs of the
community
Fire Services
Facilities are
maintained in a
state of good
repair
n/a - not
reported
Facilities are
proactively
maintained
and reliable
for intended
use
Percent of fire
suppression
incidents within
NFPA response
travel time.
90% of fire
suppression
incidents
are within
NFPA
standards
n/a - not
reported
Station 1:
86%
Station 2:
71%
Station 3:
95%
Average Facility
Condition Index
(FCI) value for
all facilities
Good
(Between
0% and 5%)
n/a - not
reported
5% (Good)
Number of
facilities assets
in overall fair or
better condition
4 Facilities
n/a - not
reported
3 Facilities
-
Asset Class: Fire Services Facilities
Service Objective Statement: Providing effective and reliable emergency services that keep the community safe.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Climate Leadership
Facilities are
energy efficient and
demonstrate
leadership on
climate action
Facilities meet
our
environmental
objectives
n/a - not
reported
Facilities
strive to lower
energy usage
by installing
energy
conservation
measures
that improve
energy
efficiency to
reduce GHG
emissions
Annual energy
consumption
per facility per
square meter
Energy Use
Intensity
(EUI) of
0.66 GJ/m2
or less
n/a - not
reported
1.10 GJ/m2
-
-
Asset Class: Fire Services - Fleet and Equipment
Service Objective Statement: Efficiently providing safe, reliable, and fuel efficient vehicles at a cost affordable to the client.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder
Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Reliability/Quality
Providing
reliable and
high-quality Fire
Fleet and
Equipment that
meets the needs
of the
community and
stakeholders
Fire Fleet and
Equipment is
maintained in
a state of
good repair
n/a
Fleet and
Equipment
is
proactively
maintained
and
reliable for
intended
use
Percentage of support
vehicles that are past their
useful life
Less than 5%
n/a - not
reported
19%
Percentage of vehicles that
past their useful life (fire
apparatus and first response
vehicles)
Less than 5%
n/a - not
reported
25%
Unassigned/spare ratio of
vehicles
Max 20%
n/a - not
reported
20%
Percentage of fire equipment
past their estimated service
life
0%
n/a - not
reported
21%
Unassigned/spare ratio of fire
equipment
Max 20%
n/a - not
reported
20%
Climate Leadership
Providing
vehicles and
equipment with
minimal
greenhouse gas
emissions
Fleet that
meets our
environmental
objectives
n/a
60% of all
new light
duty fleet
acquisition
s are low
carbon by
2030
Percentage of support
vehicles that are electrified
5%
n/a - not
reported
TBD
-
Table 6: Levels of Service - Police Services
Asset Class: Police Services - Facilities
Service Objective Statement: Providing effective and reliable emergency services that keep the community safe.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Year of Measure
Technical Measure
Technical Performance
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Reliability
Providing
reliable and
high-quality
Police Facilities
that meet the
needs of the
community
Police Facilities
are maintained
in a state of
good repair
n/a - not
reported
Facilities are
proactively
maintained and
reliable for
intended use
Percentage of police
stations that are able
to meet response
times
100%
n/a
100%
Average Facility
Condition Index (FCI)
value for all facilities
Good
(Between
0% and
5%)
n/a
2% (Good)
Number of facilities
assets in overall fair
or better condition
2 Facilities
n/a
2 Facilities
Accessibility
Providing
facilities that
are accessible
and available to
stakeholders to
support service
delivery
Description of
facilities and
level of
accessibility
n/a - not
reported
Facilities are
accessible for
intended use
Facility meets parking
needs for staff and
service vehicles.
Yes
n/a
No
-
Asset Class: Police Services Facilities
Service Objective Statement: Providing effective and reliable emergency services that keep the community safe.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Year of Measure
Technical Measure
Technical Performance
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Asset Class: Police Services - Facilities
Climate Leadership
Facilities are
energy efficient
and
demonstrate
leadership on
climate action
Facilities meet
our
environmental
objectives
n/a - not
reported
Facilities strive
to lower energy
usage by
installing energy
conservation
measures that
improve energy
efficiency to
reduce GHG
emissions
Annual energy
consumption per
facility per square
meter
Energy Use
Intensity
(EUI) of
0.66 GJ/m2
or less
n/a - not
reported
1.05 GJ/m2
-
Asset Class: Police Services - Fleet
Service Objective Statement: Efficiently providing safe, reliable, and fuel efficient vehicles at a cost affordable to the client.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Reliability/Quality
Providing
reliable and
high-quality
Police Fleet
that meets the
needs of the
community and
stakeholders
Police Fleet is
maintained in a
state of good
repair
n/a
Fleet is
proactively
maintained and
reliable for
intended use
Percentage of
vehicles that past
their useful life
Less than
5%
n/a
2%
Unassigned/spare
ratio of vehicles
Max 10%
n/a
10%
Climate Leadership
Providing
vehicles &
equipment with
minimal
greenhouse
gas emissions
Fleet that
meets our
environmental
objectives
n/a
60% of all new
light duty fleet
acquisitions are
low carbon by
2030
Percentage of
vehicles that are
electrified
5%
n/a
TBD
-
Asset Class: Police Services - Equipment
Service Objective Statement: Efficiently providing police equipment at an appropriate quality and quantity to support the delivery of services.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder
LoS Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Reliability/Quality
Providing
reliable and
high-quality
Police
Equipment that
meets the
needs of the
community and
stakeholders
Police
Equipment is
maintained in a
state of good
repair
n/a
Equipment is
proactively
maintained
and reliable
for intended
use
Percentage of
police equipment
past their
estimated service
life
0%
n/a
50%
-
3.0
Asset M
anagement Strategies - Emergency Services
Emergency Services assets include both Fire and Police services assets. Options for
which lifecycle activities that could potentially be undertaken have been explored in
various needs studies and reports such as the Fire Station #2 Relocation Study and the
Peterborough Police Services Board Strategic Plan. The following table below
documents the set of planned actions or 'activities' that the City undertakes to sustain
current levels of service, while managing risk at the lowest lifecycle cost. The City plans
the necessary lifecycle activities at the required time and does not need to alter the type
of activity undertaken. However, where limited funding is available, the interval and
timing of the necessary lifecycle activities are affected, which can have an overall
impact on the performance of the asset(s) over its useful life.
Table 7: Emergency Services - Asset Management Lifecycle Strategies
Strategy Type - Facilities
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs
or extend asset life (e.g. better integrated
infrastructure planning and land use
planning, demand management,
insurance, process optimization,
managed failures, etc.).
·
Building condition assessment
program
·
Linking the asset management plan to
other studies, master plans and strategies
·
Public consultation on levels of service
·
Needs studies to assess community
needs and how services are being
delivered to the community
· Integrating asset management
planning to drive lifecycle activities
·
Integrating infrastructure and land use
planning
·
Educate staff on climate change
initiatives and energy efficiency
opportunities with respect to building
operations/ownership
·
Preventative and corrective
maintenance programs for facilities
· Service contracts for building life-
safety and security alarm systems,
elevating systems, and code/regulated
building elements
Maintenance Activities
Activities include regularly scheduled
inspection and maintenance, or more
significant repair and activities
associated with unexpected events.
·
Basic custodial services
·
Seasonal maintenance contracts such
as snow clearing and cleaning
·
Service contracts for pest control and
landscaping maintenance
Renewals/Rehabilitation:
Includes significant repairs designed to
extend the life of the asset (e.g. the lining
of iron watermains can defer the need for
replacement).
· Renewal of facility elements or sub-
systems such as structures, roofs,
building exteriors, building services
(HVAC, plumbing, electrical), interior
finishes and sitework that are at the end of
their useful life and renewal does not
improve/expand the intended service
initially provided
·
Upgrading projects focus on removing
asset exposure to elements
Replacement
Activities that are expected to occur once
an asset has reached the end of its
useful life and renewal/rehabilitation is no
longer an option.
·
Facility components replaced when at
end of useful life through capital
planning/business case (as identified
through BCAs)
·
Replacement due to obsolescence or
does not meet minimum design
standards/intent
·
Replacements considered within the
context of the facility
-
-
Current Practice
Strategy Type - Facilities
-
·
Asset replacement is coordinated with
planned expansion wherever possible
·
Asset replacement is bundled with
other dependent assets wherever possible
·
Operating vs. Replacement cost
comparison
Disposals/Abandonment Policies
Activities associated with disposing of an
asset once it has reached the end of its
useful life or is otherwise no longer
needed by the municipality.
· Facilities that are no longer needed for
the intended service are either sold, re-
purposed or demolished
·
Expansion when facility has reached
its functional capacity and expansion is
necessary for continued delivery of
service
Expansion Programs
Planned activities required to extend the
services to previously un-serviced areas
- or expand services to meet growth
demands.
·
Changes to accessibility requirements
for public buildings where identified and
there is an opportunity to do so.
· Changes to building components to
increase energy efficiency (ex. LED
lighting, etc.) where possible
·
Expansion of renewable energy
programs and systems to reduce energy
costs for operation where possible
Future Strategies
-
n/a
Strategy Type
Fleet and Equipment
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs or extend
asset life (e.g. better integrated infrastructure
planning and land use planning, demand
management, insurance, process optimization,
managed failures, etc.).
· Training programs for
mechanics and operators to
optimally maintain and operate
vehicles
·
Linking the asset
management plan to other
studies, master plans and
strategies
· Public consultation on
levels of service
· Regular vehicle inspection
coordinated with planned
maintenance
· Redundancy of parts and
fleet for the system
·
Redundancy of critical
equipment
·
Annual government
inspections legislated for Fire
Services
· High priority in procurement
for purchasing fleet compatible
with current fleet to improve
parts and maintenance costs
Maintenance Activities
Activities include regularly scheduled inspection and
maintenance, or more significant repair and activities
associated with unexpected events.
·
High standard for
preventative maintenance that
exceeds the Original
Equipment Manufacturer
(OEM) schedule
-
Current Practice
Strategy Type - Fleet and Equipment
·
Reactive maintenance as
required
·
Annual HVAC,
Undercoating, Mirror
Replacement programs
·
Fluid monitoring with lab
analysis performed every
other service to gain insight of
future failures
·
Third party tire checks 2x a
year
·
Monitor OEM
bulletins/recalls and be ready
to replace and repair
Renewals/Rehabilitation:
Includes significant repairs designed to extend the
life of the asset (e.g. the lining of iron watermains
can defer the need for replacement).
·
Not applicable for most
assets. Fleet and equipment
undergo regular maintenance
program until replacement
·
Heavy duty vehicles (ex.
emergency vehicles) have an
engine overhaul at mid-life
(approximately 5 years of
age).
Replacement
Activities that are expected to occur once an asset
has reached the end of its useful life and
renewal/rehabilitation is no longer an option.
·
Replace vehicles at end of
service life
·
Replace equipment at end
of service life
Disposals/Abandonment Policies
Activities associated with disposing of an asset once
it has reached the end of its useful life or is
otherwise no longer needed by the municipality.
·
Sell problematic fleet (very
rare)
·
Auction retired fleet
·
Retain retired fleet as
required to maintain spare
ratios
·
Retain retired equipment as
required to maintain spare
ratios
Expansion Programs
Planned activities required to extend the services to
previously un-serviced areas - or expand services to
meet growth demands.
·
Right-size fleet as needed
to accommodate expansion of
service and planned growth
·
Right-size equipment as
needed to accommodate
expansion of service and
planned growth
Future Strategies
· Review alternate fuels
periodically for potential use
·
Consider electric vehicles
and equipment where possible
and practical
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Emergency Services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Asset deterioration assessments/models are underestimated/miscalculated
External/environmental factors such as climate change effects (more severe
weather instances, increased demands due to growth)
Risk Trade Offs
If lifecycle activities (operations, maintenance, renewal, and other capital projects) are
not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Public health and safety - assets not adequate/available for emergency
response
Further/accelerated asset deterioration
Increased backlog of work
Increased treatment costs
Level of treatment changes requiring increased resources/costs (maintenance
now needing replacement)
Planned budget/needs forecast not a reflection of actual asset needs
Additional assets/expansion of services required
Reputation/image negatively affected
Risks relating to asset failure are mitigated though condition assessment programs,
maintenance programs (legislated and best practices) and scheduled renewal programs
which ensure assets are in acceptable condition and are available to achieve the
determined levels of services. Risks related to fleet asset failures are addressed
through proactive fleet maintenance and adequate vehicle storage to ensure adequate
service readiness.
All City services, including emergency services are reviewed and identified in the City's
Business Continuity Plan (BCP) and prioritization process. The BCP identifies the key
interruption impacts, recovery time objectives, dependencies, qualified resources
available and a resource back-up strategy should services be interrupted. The BCP is
reviewed and updated regularly to ensure that critical services are not interrupted,
minimizing risks.
The choice of strategy for maintaining Emergency Services assets considers the risk of
failure of the assets, the risk to service delivery and the risk to other services dependant
on this service area. Strategies implemented are at the lowest cost in order to reduce
the burden on the tax base and user fees where possible and to maintain the current
levels of service.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk
treatment plan for non-acceptable risks is planned and will be included in future
versions of the asset management plan when completed.
3.2
Lifecycle Models, Interventions, and Cost o
f Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed3 in which asset intervention
thresholds and associated costs for lifecycle activities (e.g., rehabilitation and
replacement) are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (e.g., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical construction costs and financial
information for actual or similar interventions where available and applicable. Where
replacement activities are determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of Service
The options analysis of the lifecycle activities that could be undertaken were reviewed
with the Emergency services subject matter experts. Lifecycle activity options were
discussed and determined that the current planned activities are appropriate and the
most cost-effective option(s). Details related to the Emergency services available
funding, investments and shortfalls can be found in Section 5.0 - Financial Summary.
Table 8 and Figure 3a and 3b below shows the Emergency services area projected 10-
year lifecycle costs (asset renewal and replacement activities required for existing
assets) and performance to maintain current levels of service. For d
etails on current
levels of service descriptions, measures and targets and current performance, refer to
Table 5 in Section 2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for
that asset/asset class. Where asset condition data was not available, age-based
condition ratings were applied.
3 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
-
-
Table 8: Emergency Services Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle
Activity Costs -
Emergency
Services Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
Fire Services
$0
$829,440
$829,440
$829,440
$829,440
$829,440
$829,440
$829,440
$829,440
$829,440
$829,440
$8,294,402
Police Services
$0 $1,043,086 $1,043,086 $1,043,086 $1,043,086 $1,043,086 $1,043,086 $1,043,086 $1,043,086 $1,043,086 $1,043,086 $10,430,865
Annual Total
$0 $1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$18,725,266
Average Annual
Lifecycle Cost $1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
$1,872,527
Based on the lifecycle assessment for Emergency services assets (for renewal and replacement), it is estimated that the City would need to spend an average of $1.9
million per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 3a: 10-Year Forecasted Performance for Maintaining Levels of Service - Fire
Services
Figure 3b: 10 Year Forecasted Performance for Maintaining Levels of Service - Police
Services
Figure 3a and 3b above illustrates the performance (condition) of Fire and Police assets
over the 10-year forecast. The estimated average combined annual expenditures to
maintain these conditions is approximately $1.9M.
Attachment #14: Public Works
Infrastructure
Value
$44.9M
Annual Renewal
Needs
$1.8M
Overall
Condition
4.0
Good
High Risk Asset
Value
$2M
4%
Trend
N/A
1.0
Summary of Public Works Service Area
Asset classes that fall under the Public Works service area include the Municipal
Operations Centre and Office Facility, Operations Storage Garage, the salt and sand
storage facility, fleet, and equipment. Annual renewal needs shown are based on
lifecycle management strategies and represent the estimated amount of capital the City
needs to reinvest in its existing asset inventory on an annual basis over the next 10
years to sustain the current levels of service (based on the 25-yr investment forecast).
This is the first iteration of the Asset Management Plan that includes the Public Works
Service Area.
Table 1 details the City's inventory for the Public Works service area.
1.1
Inventory Details
Table 1: Public Works Inventory
Asset
Class & Sub-class
2023
Quantity
Unit of Measure
Facilities
Municipal Operations Centre Office
16,100
Sq. Ft
Municipal Operations Centre and
Storage Garage
53,916
Sq. Ft
Salt and Sand Storage Facility
21,720
Sq. Ft
Fleet
Equipment and Vehicles
72
Each
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the Public Works service area
totalled $44.9 million. Replacement costs were determined using recent acquisition
costs of like assets or historical costs inflated to 2023 dollars where recent costing
information was not available.
Figure 1: Public Works Service Area -Replacement Cost by Asset Sub-Class
REPLACEMENT COST BY ASSET CLASS
PUBLIC WORKS
($MILLIONS)
Equipment,
$12.8 , 29%
Facilities,
$23.3 , 52%
Fleet, $8.7 ,
19%
Table 2: Public Works Assets - Replacement Costs by Asset Class
Asset
Category & Class
2023
Replacement Cost
Facilities
Municipal Operations Centre Office
$4,363,020
Municipal Operations Centre and Storage
Garage
$18,135,109
Salt and Sand Storage Facility
$831,795
Fleet & Equipment
Fleet
$8,725,557
Equipment
$12,833,497
Public Works Total
$44,888,977
1.3
Asset Condition and Remaining Useful Life
Facilities
Public Works facility condition ratings shown are based on the most recent building
condition assessment (BCA) completed in 2021-2022 and use observed age of facility
elements at the time of assessment. The City plans to complete BCA's on a seven year
cycle with the next round of assessments anticipated to be completed in 2028.
In 2019, the Public Works yard and operations office relocated from the overcrowded
Townsend Street location into a newly purchased facility at 791 Webber Avenue, now
called the Municipal Operations Centre. Other services operating from this location
include Fleet Services and Traffic Operations. With significant renovations being
completed, the new Municipal Operations Centre now provides more space to better
suit staff, fleet, traffic, and public works operational needs, including a larger salt and
sand dome storage facility.
Fleet and Equipment
Condition ratings for fleet are based on both inspected conditions and age-based
ratings. The City's fleet maintenance plan incorporates ministry requirements and
industry best practices which aims to maintain a high level of vehicle health. Predictive
processes are utilized when scheduling major repairs such as engine, transmission, and
axle repairs. This ensures that the right maintenance activities are being carried out at
the correct time throughout the vehicle's life cycle.
Based on replacement cost, 42% or $19 million are rated very good, 13% or $5.6 million
rated good, 20% or $9 million rated fair and 25% or $11.4 million rated poor and very
poor. Figure 2 and Table 3 provide condition details of the Public Works service area.
Figure 2: Public Works Assets - Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT COST
PUBLIC WORKS
($MILLIONS)
Very Good,
$19.0 , 42%
Good, $5.6 ,
14%
Fair, $8.8 , 20%
Poor, $6.0 , 13%
Very Poor, $5.4 ,
12%
Table 3: Public Works Assets - Asset Condition Ratings
Asset
Class & Sub-Class
2023
Condition Rating
Facilities
Municipal Operations Centre Office
Good
Municipal Operations Centre Storage and
Garage
Very Good
Salt and Sand Storage Facility
Very Good
Fleet & Equipment
Fleet
Poor
Equipment
Poor
Public Works Overall Condition1
Good
Remaining Useful Life
The following summarizes the Public Works assets' remaining useful life. The useful life
of an asset is the estimated period over which the City expects to use the asset.
Estimates of ages are based on the calculated age or observed age (where condition
assessments have been completed) and do not take into consideration any betterments
that extend the useful life of the asset(s). Ideally, as condition assessments are
1 Weighted by replacement cost
completed the 'observed' age will be used in calculating remaining useful life. The ages
of the assets are variable and with efforts to extend the life by application of lifecycle
treatments. It shouldn't be assumed that there is a linear relationship between age and
condition for both the calculated and observed age method.
Table 4 shows Public Works assets remaining useful life details.
Table 4: Public Works Assets Remaining Useful Life2
Asset Class and Sub-Class
Inventory
Ave.
Expected
Useful Life
(Yrs.)
Ave.
Remaining
Useful Life
(Yrs.)
Percent of Useful
Life Remaining
Equipment
15
4
26%
Facilities
34
26
77%
Fleet
10
0
0%
Public Works Assets Remaining
Useful Life
28
20
70%
1.4
Asset Risk Assessment
The consequences of failure for Public Works assets have been determined manually
by City staff based on a standardized chart for consequence (found in Appendix B).
The assessment considers environmental, economical, social, life safety, legislation and
corporate reputation as factors when scoring consequence.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Public Works high-risk assets is $1.9 million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2 ESL, RUL, and percent of useful life remaining are based on calculated average of asset classes
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies, and policies.
Stakeholder and technical levels of service, performance measures and current
performance for the Public Works service area are outlined in Table 5 below. Further
development of the City's levels of service is underway in which the proposed levels of
service and the affordability of the service will be analyzed and presented. Future
versions of the Asset Management Plan will also include other proposed levels of
service reporting requirements set forth in the Asset Management Planning for
Municipal Infrastructure Regulation (O.Reg. 588/17).
.
Table 5: Levels of Service - Public Works
Asset Class: Public Works - Fleet
Service Objective Statement: Efficiently providing safe, reliable, and fuel efficient vehicles at a cost affordable to the client.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Year of Measure
Technical Measure
Technical Performance
Year of Measure
Stakeholder LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Reliability/Quality
Providing reliable
and high-quality
Public Works
Fleet and
Equipment that
meet the needs of
the community
and stakeholders
Public Works Fleet
and Equipment are
maintained in a state
of good repair
n/a
Vehicles and
equipment are
proactively
maintained and
reliable for
intended use
Percentage of
vehicles that past
their useful life
Max 10%
n/a
36%
Percentage of
machinery and
equipment assets
past their us
eful life
Max 10%
n/a
20%
Unassigned ratio of
vehicles
Max 10%
n/a
5%
Unassigned ratio of
equipment
Max 10%
n/a
5%
Climate
Leadership
Providing vehicles
& equipment with
minimal
greenhouse gas
emissions
Fleet that meets our
environmental
objectives
n/a
60% of all new
light duty fleet
acquisitions are
low carbon by
2030
Percentage of
vehicles that are
electrified
5%
n/a
TBD
-
Service Objective Statement: Providing high quality, accessible, and energy efficient facilities that are available and meet the needs of the community.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Asset Class: Public Works - Facilities
Reliability/Quality
Providing reliable
and high-quality
Public Works
Facilities that
meet the needs of
the community
and stakeholders
Public Works
Facilities are
maintained in a state
of good repair
n/a
Facilities are
proactively
maintained
and reliable
for intended
use
Average Facility
Condition Index (FCI)
value for all facilities
Fair
(Between
5% and
10%)
n/a
0.33%
(Good)
Number of facilities
with FCI or 10% or
better
5 Facilities
n/a
5 Facilities
Climate
Leadership
Facilities are
energy efficient
and demonstrate
leadership on
climate action
Facilities meet our
environmental
objectives
n/a
Facilities
strive to
lower energy
usage by
installing
energy
conservation
measures
that improve
energy
efficiency to
reduce GHG
emissions
Annual energy
consumption per
facility per square
meter
Energy Use
Intensity
(EUI) of
0.86 GJ/m2
or less
n/a
2.39 GJ/m2
-
3.0
Asset M
anagement S
trategies - Public Works
The following table describes the current strategies and activities for the Public Works service area to maintain the current levels of service. Options for which
lifecycle activities that could potentially be undertaken are based on industry best practices. The following table below documents the set of planned actions or
'activities' that the City undertakes to sustain current levels of service, while managing risk at the lowest lifecycle cost. The City plans the necessary lifecycle
activities at the required time and does not need to alter the type of activity undertaken. However, with limited funding available, the interval and timing of the
necessary lifecycle activities are affected, which can have an overall impact on the performance of the asset(s) over its useful life.
Table 6: Public Works- Asset Management Lifecycle Strategies
Strategy Type - Facilities
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs or extend asset life (e.g. better
integrated infrastructure planning and land use planning, demand
management, insurance, process optimization, managed failures, etc.).
·
Building condition assessment program (7-year cycle)
·
Linking the asset management plan to other studies, master plans and strategies
·
Public consultation on levels of service
·
Needs studies to assess community needs and how services are being delivered to
the community
·
Integrating asset management planning to drive lifecycle activities
·
Integrating infrastructure and land use planning
·
Educate staff on climate change initiatives and energy efficiency opportunities with
respect to building operations/ownership
Maintenance Activities
Activities include regularly scheduled inspection and maintenance, or
more significant repair and activities associated with unexpected events.
·
Preventative and corrective maintenance programs for f acilities
·
Service contracts for building life-safety and security alarm systems, elevating
systems, and code/regulated building elements
·
Basic custodial services
·
Seasonal maintenance contracts such as snow clearing and cleaning
·
Secondary roofing program to re-inspect all facility roofs annually.
-
Current Practice
Strategy Type - Facilities
·
Service contracts for pest control and landscaping maintenance
Renewals/Rehabilitation:
Includes significant repairs designed to extend the life of the asset (e.g.
the lining of iron watermains can defer the need for replacement).
·
Renewal of facility elements or sub-systems such as structures, roofs, building
exteriors, building services (HVAC, plumbing, electrical), interior finishes and sitework
that are at the end of their useful life and renewal does not improve/expand the
intended service initially provided
·
Upgrading projects focus on removing asset exposure to elements
·
Facility components replaced when at end of useful life through capital
planning/business case (as identified through BCAs)
·
Major renovations occur to update building spaces as required
Replacement
Activities that are expected to occur once an asset has reached the end of
its useful life and renewal/rehabilitation is no longer an option.
·
In the event of a required service expansion, entire facilities are replaced if an
improvement or financial analysis justifies the need for a new building as opposed to
upgrading the existing one
·
Replacements considered within the context of the facility
·
Replacement due to obsolescence or does not meet minimum design
standards/intent
·
Asset replacement is coordinated with planned expansion wherever possible
·
Asset replacement is bundled with other dependent assets wherever possible
·
Operating vs. Replacement cost comparison
Disposals/Abandonment Policies
Activities associated with disposing of an asset once it has reached the
end of its useful life or is otherwise no longer needed by the municipality.
·
Facilities that are no longer needed for the intended service are either sold, re-
purposed or demolished
-
Strategy Type - Facilities
Current Practice
Expansion Programs
Planned activities required to extend the services to previously un-
serviced areas - or expand services to meet growth demands.
·
Expansion when facility has reached its functional capacity and expansion is
necessary for continued delivery of service
·
Changes to accessibility requirements for public buildings where identified and there
is an opportunity to do so.
·
Changes to building components to increase energy efficiency (ex. LED lighting,
etc.) where possible
·
Expansion of renewable energy programs and systems to reduce energy costs for
operation where possible
Future Strategies
-
n/a
Strategy Type - Fleet and Equipment
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower costs or extend asset life (e.g. better
integrated infrastructure planning and land use planning, demand
management, insurance, process optimization, managed failures, etc.).
·
Training programs for mechanics and operators to optimally maintain and operate
vehicles
·
Regular vehicle inspection coordinated with planned maintenance
·
Linking the asset management plan to other studies, master plans and strategies
·
Public consultation on levels of service
·
Redundancy of parts and fleet for critical items in the system
·
Redundancy of critical equipment
-
Strategy Type - Fleet and Equipment
Current Practice
·
Annual government inspections legislated for Fire services (all emergency vehicles
and apparatus, heavy duty equipment for winter control)
·
High priority in procurement for purchasing fleet compatible with current fleet to
improve parts and maintenance costs
·
High standard for preventative maintenance that exceeds the Original Equipment
Manufacturer (OEM) schedule
Maintenance Activities
Activities include regularly scheduled inspection and maintenance, or
more significant repair and activities associated with unexpected events.
·
Reactive maintenance as required
·
Annual HVAC, Undercoating, Mirror Replacement programs
·
Fluid monitoring with lab analysis performed every other service to gain insight of
future failures (for emergency fleet)
·
Third party tire checks 2x a year
·
Monitor OEM bulletins/recalls and be ready to replace and repair
Renewals/Rehabilitation:
Includes significant repairs designed to extend the life of the asset (e.g.
the lining of iron watermains can defer the need for replacement).
·
Not applicable for m
ost assets. Fleet and equipment undergo regular m
aintenance
program until replacement
·
Heavy duty vehicles (ex. plow trucks) have an engine overhaul at mid-life
(approximately 5 years of age).
Replacement
Activities that are expected to occur once an asset has reached the end of
its useful life and renewal/rehabilitation is no longer an option.
· Replace vehicles at end of service life
·
Replace equipment at end of service life
Disposals/Abandonment Policies
Activities associated with disposing of an asset once it has reached the
end of its useful life or is otherwise no longer needed by the municipality.
·
Sell problematic fleet (very rare)
·
Auction retired fleet
·
Retain some retired fleet to maintain spare ratios (emergency vehicles, sanitation,
plows, i.e. all heavy-duty).
-
Strategy Type - Fleet and Equipment
Current Practice
·
Retain some retired equipment as required to maintain spare ratios
Expansion Programs
Planned activities required to extend the services to previously un-
serviced areas - or expand services to meet growth demands.
·
Right-size fleet as needed to accommodate expansion of service and planned
growth
·
Right-size equipment as needed to accommodate expansion of service and planned
growth
Future Strategies
·
Review alternate fuels periodically for potential use
·
Consider electric vehicles (non-heavy-duty fleet) and equipment
·
Consider electric vehicles for sanitation trucks
·
Consider electric or hybrid vehicles (vactor truck)
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events that may impact the ability of the City to deliver asset
management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
established Emergency Services are:
Insufficient funding levels
Insufficient staffing and resources to responsibly implement lifecycle strategies
Growth and development not considered when establishing PW operational
needs
External/environmental factors such as climate change effects (more severe and
more frequent weather instances, flooding) that could cause physical damage to
Public Works facilities
Risk Trade Offs:
If the identified lifecycle activities (operations, maintenance, renewal, and other capital
projects) are not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Fleet:
Lack of/limited snow clearing activities (health and safety, legislated impacts)
Lack of/limited resources to carry out repairs or rehabilitation activities (e.g. roads
and related assets, bridges, underground infrastructure, etc.)
Regulatory non-compliance (plows required for snow clearing)
Delays to major or time sensitive construction works that depend on or rely on
public works fleet to be completed
Interrupted service/support to various other City departments that require PW
fleet for service delivery.
Facilities:
Major delays/service interruptions to operations
Backlog of fleet service work impacting various other City services (including
emergency services such as fire and police)
Delays/interruptions to other core services that rely on Public Works Operations
such as roads, sanitary sewer, stormwater, transit, etc.
General Consequences:
Additional assets/expansion of services required to meet demand
Reputation/image negatively affected
Staff morale affected
Risks relating to asset failure are mitigated though condition assessment programs,
maintenance programs (legislated and best practices) and scheduled renewal programs
which ensure assets are in acceptable condition and are available to achieve the
determined levels of services. Risks related to fleet asset failures are addressed
through proactive fleet maintenance and adequate vehicle storage to ensure adequate
service readiness.
All City services, including Public Works services are reviewed and identified in the
City's Business Continuity Plan (BCP) and prioritization process. The BCP identifies the
key interruption impacts, recovery time objectives, dependencies, qualified resources
available and a resource back-up strategy should services be interrupted. The BCP is
reviewed and updated regularly to ensure that critical services are not interrupted,
minimizing risks.
The choice of strategy for maintaining Public Works assets considers the risk of failure
of the assets, the risk to service delivery and the risk to other services dependant on
this service area. Strategies implemented are at the lowest cost in order to reduce the
burden on the tax base and user fees where possible and to maintain the current levels
of service.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk
treatment plan for non-acceptable risks is planned and will be included in future
versions of the asset management plan when completed.
3.2
Lifecycle Models, Interventions, and Cost of Service
Overview of Lifecycle Models
Service area lifecycle models have been developed3 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement)
are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of Service
The options analysis of the lifecycle activities that could be undertaken were reviewed
with the Public Works subject matter experts. Lifecycle activity options were discussed
and determined that the current planned activities are appropriate and the most cost-
effective option(s). Details related to the Public Works available funding, investments
and shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 3 below shows the Public Works area projected 10-year lifecycle
costs (asset renewal and replacement activities required for existing assets) and
performance to maintain current levels of service. For details on current levels of
3 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
service descriptions, measures and targets and current performance, refer to Table 5 in
Section 2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for
that asset/asset class. Where asset condition data was not available, age-based
condition ratings were applied.
-
Table 7: Public Works Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle
Activity Costs -
Public Works
Assets
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
Public Works
$0
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$17,927,552
Annual Total
$0
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$17,927,552
Average
Annual
Lifecycle Cost
$0
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
$1,792,755
Based on the lifecycle assessment for Emergency services assets (for renewal and replacement), it is estimated that the City would need to spend an average of $1.8
million per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 3: 10-Year Forecasted Performance for Maintaining Levels of Service - Public
Works
Figure 3 above illustrates the performance (condition) of Public Works assets over the
10-year forecast. The estimated average combined annual expenditures to maintain
these conditions is approximately $1.8 million.
Attachment #15: Administration Facilities
Infrastructure
Value
$56.2M
Annual
Renewal Needs
$1.0M
Overall
Condition
3.0
Fair
High Risk Asset
Value
$13M
23%
Trend
N/A
1.0
Summary of Administration Facilities Service Area
Asset classes that fall under the Administration facilities service area include City Hall,
Community Services (210 Wolfe St.), and the Provincial Court House. Annual renewal
needs shown are based on lifecycle management strategies and represent the
estimated amount of capital the City needs to reinvest in its existing asset inventory on
an annual basis over the next 10 years to sustain the current levels of service.
This is the first iteration of the Asset Management Plan that includes the Administration
facilities service area.
Table 1 details the City's inventory for the Administration facilities service area.
1.1
Inventory Details
Table 1: Administration Facilities Inventory
Asset
Category & Class
2023 Quantity
Unit of Measure
Facilities
City Hall & Carnegie Wing
64,100
Sq. Ft
Community Services - 210 Wolfe St.
15,110
Sq. Ft
Provincial Court House
19,675
Sq. Ft
1.2
Replacement Costs
The estimated year end 2023 replacement costs for the Administration facility service
area totalled $56.2 million. Replacement costs are based on the most building condition
assessments completed in 2021-2022 or historical costs inflated to 2023 where
condition assessments were not available.
Figure 1: Administration Service Area -Replacement Cost by Asset Class
REPLACEMENT COST BY ASSET CLASS
ADMINISTRATION FACILITIES
($MILLIONS)
City Hall, $38 ,
68%
Community
Services, $7 ,
13%
Provincial
Court H
ouse,
$11 , 19%
Table 2: Administration Service Area - Replacement Costs by Asset Class
Asset
Category & Class
2023
Replacement Cost
Facilities
City Hall & Carnegie Wing
$38,324,670
Community Services - Recreation
Division at 210 Wolfe St.
$6,982,592
Provincial Court House
$10,895,572
Administration Total
$56,202,833
1.3
Asset Condition and Remaining Useful Life
Facilities
Condition ratings are based on the most recent building condition assessments (BCA'S)
completed in 2021 and 2022 and use observed age of facility elements at the time of
assessment. The City plans to complete BCA's on a seven year cycle with the next
round of assessments anticipated to be completed in 2028.
Based on replacement cost of building elements, 22% or $12.4 million are rated very
good and good, 56% or $31.2 million are rated fair, and 22% or $12.5 million are rated
poor and very poor. Figure 2 and Table 3 provide condition details of the Administration
facilities service area.
Figure 2: Administration Facilities- Distributed Condition and Replacement Cost
DISTRIBUTED CONDITION AND REPLACEMENT
COST
ADMINISTRATION FACILITIES
($MILLIONS)
Very Good,
$6.3 , 11%
Good, $6.1 ,
11%
Fair, $31.2 ,
56%
Poor, $8.1 ,
14%
Very Poor, $4.4
, 8%
Table 3: Administration Facilities - Condition Ratings
Asset
Category & Class
2023
Condition Rating
Facilities
City Hall & Carnegie Wing
Fair
Community Services - Recreation
Division at 210 Wolfe St.
Poor
Provincial Court House
Fair
Administration Overall Condition1
Fair
Remaining Useful Life
The following summarizes the Administration facilities' remaining useful lives. The
expected useful life of an asset is the estimated period over which the City expects to
use the asset. Estimates of ages are based on the calculated age or observed age
(where condition assessments have been completed) and do not take into consideration
any betterments that extend the useful life of the asset(s). Ideally, as condition
assessments are completed the 'observed' age will be used in calculating remaining
useful life. The ages of the assets are variable and with efforts to extend the life by
application of lifecycle treatments.
Table 4 shows Administration Facilities remaining useful life details.
Table 4: Administration Facilities - Remaining Useful Life2
Asset Category & Class
Inventory
Ave.
Expected
Useful Life
(Yrs.)
Ave.
Remaining
Useful Life
(Yrs.)
Percent of Useful
Life Remaining
Facilities
City Hall & Carnegie Wing
33
17
51%
Community Services - Recreation
Division at 210 Wolfe St.
32
15
46%
Provincial Court House
32
12
38%
Administration Facilities
Remaining Useful Life
32
15
47%
1.4
Asset Risk Assessment
The consequences of failure for Administration facility assets have been determined
manually by City staff based on a standardized chart for consequence (found in
1 Weighted by replacement cost
2 ESL, RUL, and percent of useful life remaining are based on calculated average of asset classes
Appendix B). The assessment considers environmental, economical, social, life safety,
legislation and corporate reputation as factors when scoring consequence.
Using the product of the scores for likelihood of failure (likelihood is higher as asset
condition worsens) and the consequence of failure, the asset is assigned a risk rating
using the ranges shown in the chart below:
Category
Range
High Risk
< 5
Medium Risk
5 - 20
Low Risk
> 20
The estimated replacement value of Administration high-risk assets is $13 million.
The City continues to prioritize the operational, maintenance and renewal needs of both
the critical assets and high-risk assets to minimize health and safety risks and impacts
to service delivery.
2.0
Levels of Service
This section will present levels of service as they are currently being provided by the
City. Service area objective statements were developed by taking into consideration the
goals, strategies and objectives defined in other overarching Council approved City
plans, studies, and policies.
Stakeholder and technical levels of service, performance measures and current
performance for Administration facilities are outlined in Table 5 below. Further
development of the City's levels of service is underway in which the proposed levels of
service and the affordability of the service will be analyzed and presented. Future
versions of the Asset Management Plan will also include other proposed levels of
service reporting requirements set forth in the Asset Management Planning for
Municipal Infrastructure Regulation (O.Reg. 588/17).
.
-
Table 5: Levels of Service - Administration Facilities
Asset Class: Administration - Facilities
Service Objective Statement: Providing high quality, accessible, and energy efficient facilities that are available and meet the needs of staff and
community.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Year of Measure
Technical Measure
Technical Performance
Year of Measure
Stakeholder LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Reliability/Quality
Providing reliable
and high-quality
Administration
Facilities that meet
the needs of the
community/stakehol
ders
Administration
Facilities are
maintained in
a state of
good repair
n/a - not reported
Facilities are
proactively
maintained and
reliable for
intended use
Average Facility
Condition Index
(FCI) value for
all facilities
Fair (between
5% and 10%)
n/a - not
reported
8% (Fair)
-
Asset Class: Administration - Facilities
Service Objective Statement: Providing high quality, accessible, and energy efficient facilities that are available and meet the needs of staff and
community.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
Accessibility
Facilities are
accessible for
intended use
Description of
facilities and
level of
accessibility
n/a - not reported
Administration
Facilities include:
City Hall - Public
Administration.
Accessible to
Staff and Public.
Public services
hours of
operation:
Monday to
Friday 8:30am to
4:30 pm
Provincial Court
House - Public
Administration.
Accessible to
Staff and Public.
Public services
hours of
operation:
Monday to
Friday 8:30am to
Facility meets
parking needs
of staff
Yes
n/a - not
reported
City Hall and
Provincial
Courthouse -
No
210 Wolfe
St.- Yes
Asset Class: Administration - Facilities
Service Objective Statement: Providing high quality, accessible, and energy efficient facilities that are available and meet the needs of staff and
community.
Stakeholder
Value/Service
Attribute
Stakeholder LoS and Measures
Stakeholder Performance
Technical Measure
Technical Performance
Year of Measure
Year of Measure
Stakeholder LoS
Statement
Stakeholder
Performance
Measure
2021
2023
Technical PM
Target
2021
2023
4:30 pm
210 Wolfe St. -
Social Services -
Overflow Shelter.
Accessible to
Staff and Public.
Public service
hours of
operation: 7-
days a week,
10:00 pm to
8:00am.
Climate
Leadership
Facilities are
energy efficient and
demonstrate
leadership on
climate action
Facilities that
meet our
environmental
objectives
n/a - not reported
Facilities strive to
lower energy
usage by
installing energy
conservation
measures that
improve energy
efficiency to
reduce GHG
emissions
Annual energy
consumption
per facility per
square meter
Courthouse:
0.87 GJ/m2
City Hall:
0.86 GJ/m2
Wolfe St.:
0.87 GJ/m2
n/a - not
reported
Courthouse:
0.76 GJ/m2
City Hall:
0.78 GJ/m2
210 Wolfe
St.: 1.23
GJ/m2
3.0
Asset M
anagement Strategies - Administration Facilities
The following table describes the current strategies and activities for Administration
facilities. Options for which lifecycle activities that could potentially be undertaken are
based on recommendations from the most recent building condition assessments and
facility management best practices. The following table below documents the set of
planned actions or 'activities' that the City undertakes to sustain current levels of
service, while managing risk at the lowest lifecycle cost. The City plans the necessary
lifecycle activities at the required time and does not need to alter the type of activity
undertaken. However, with limited funding available, the interval and timing of the
necessary lifecycle activities are affected, which can have an overall impact on the
performance of the asset(s) over its useful life.
Table 6: Administration Facilities- Asset Management Lifecycle Strategies
Strategy Type
Current Practice
Non-infrastructure Solutions
Actions or policies that can lower
costs or extend asset life (e.g.
better integrated infrastructure
planning and land use planning,
demand management, insurance,
process optimization, managed
failures, etc.).
· Building condition assessment program
· Linking the asset management plan to other
studies, master plans and strategies
· Public consultation on levels of service
· Needs studies to assess community needs
and how services are being delivered to the
community
· Integrating asset management planning to
drive lifecycle activities
· Integrating infrastructure and land use
planning
· Educate staff on climate change initiatives
and energy efficiency opportunities with respect
to building operations/ownership
Maintenance Activities
Activities include regularly
scheduled inspection and
maintenance, or more significant
repair and activities associated
with unexpected events.
· Preventative and corrective maintenance
programs for facilities
· Service contracts for building life-safety and
security alarm systems, elevating systems, and
code/regulated building elements
· Basic custodial services
· Seasonal maintenance contracts such as
snow clearing and cleaning
· Service contracts for pest control and
landscaping maintenance
Renewals/Rehabilitation:
Includes significant repairs
designed to extend the life of the
asset (e.g. the lining of iron
· Renewal of facility elements or sub-systems
such as structures, roofs, building exteriors,
building services (HVAC, plumbing, electrical),
interior finishes and sitework that are at the end
of their useful life and renewal does not
Strategy Type
Current Practice
watermains can defer the need for
replacement).
improve/expand the intended service initially
provided
· Upgrading projects focus on removing asset
exposure to elements
Replacement
Activities that are expected to
occur once an asset has reached
the end of its useful life and
renewal/rehabilitation is no longer
an option.
· Facility components replaced when at end of
useful life through capital planning/business case
(as identified through BCAs)
· Replacement due to obsolescence or does
not meet minimum design standards/intent
· Replacements considered within the context
of the facility
· Asset replacement is coordinated with
planned expansion wherever possible
· Asset replacement is bundled with other
dependent assets wherever possible
· Operating vs. Replacement cost comparison
Disposals/Abandonment
Policies
Activities associated with
disposing of an asset once it has
reached the end of its useful life
or is otherwise no longer needed
by the municipality.
· Facilities that are no longer needed for the
intended service are either sold, re-purposed or
demolished
Expansion Programs
Planned activities required to
extend the services to previously
un-serviced areas - or expand
services to meet growth
demands.
· Expansion when facility has reached its
functional capacity and expansion is necessary
for continued delivery of service
· Changes to accessibility requirements for
public buildings where identified and there is an
opportunity to do so.
· Changes to building components to increase
energy efficiency (ex. LED lighting, etc.) where
possible
· Expansion of renewable energy programs and
systems to reduce energy costs for operation
where possible
Future Strategies
-n/a
3.1
Asset Management Strategies and Associated Risks
Strategic Risks
Strategic level risks are events or scenarios that may impact the ability of the City to
deliver asset management strategies and minimize costs.
Potential strategic level risks associated with the City's ability to effectively deliver
Administration facility levels of service are (but not limited to):
Insufficient funding levels
Insufficient staffing and resources to responsibly implement facility lifecycle
strategies
Growth not considered when establishing facility needs
External/environmental factors such as climate change effects (more severe and
more frequent weather instances, flooding) that could cause physical damage to
facilities
Risk Trade Offs
If the identified lifecycle activities (operations, maintenance, renewal, and other capital
projects) are not undertaken, they may sustain or create risk consequences. These risk
consequences may include (but not limited to):
Major delays/service interruptions to public services delivered from City Hall,
Provincial Court House
Lack of public communications internally and externally
Non-compliance with legislation (e.g. election related services)
Backlog of court case/ court support services
Delays/interruptions to other services that depend on the administrative work of
the Recreation Division located at 210 Wolfe Street
Reputation/image negatively affected
Lack of public confidence
Reduced staff morale
All City services, including services delivered from Administrative facilities are reviewed
and identified in the City's Business Continuity Plan (BCP) and prioritization process.
The BCP identifies the key business interruption impacts, recovery time objectives,
dependencies, available qualified resources, and a resource back up strategy should
there be disruption to services. The BCP is reviewed and updated regularly to ensure
that alternate locations are available where required and critical services are not
interrupted, minimizing risks.
The choice of strategy for operating and maintaining Administration facilities considers
the risk of failure of the assets, the risk to service delivery and the risk to other services
dependant on this service area. Strategies implemented are at the lowest cost in order
to reduce the burden on the tax base and user fees where possible and to maintain the
current levels of service.
A full detailed, documented risk analysis in which the identification of credible risks, the
likelihood of the risk event occurring, the consequences should the event occur,
development of a risk rating, evaluation of the risk and the development of a risk
treatment plan for non-acceptable risks is planned and will be included in future
versions of the asset management plan when completed.
3.2
Lifecycle Models, Interventions, and Cost o
f Service:
Overview of Lifecycle Models
Service area lifecycle models have been developed3 in which asset intervention
thresholds and associated costs for lifecycle activities (rehabilitation and replacement)
are documented.
Lifecycle models are mathematical, statistical and logic models of planned actions and
of asset deterioration over time. This helps the City to forecast required asset lifecycle
activities and their impacts on levels of service, risk, and funding needs. In short,
lifecycle models are mathematical representation of the City's Lifecycle Activities.
Overview of Interventions
Interventions represent the major lifecycle activities carried out for assets over their
service life and are typically accounted for as part of the capital planning process. The
term 'intervention threshold' or 'intervention trigger' are used interchangeably, and they
describe a point in an asset's lifecycle when the intervention typically occurs.
When an asset degrades and an intervention threshold is reached, the asset will require
treatment (i.e., repair or rehabilitation). After the treatment is applied, the performance
(condition) of that asset will increase to a higher value, at which point it will continue to
degrade. This will extend the overall estimated service life (ESL) of the asset.
The costs associated with interventions can be used to establish capital funding needs
and determine the most cost-effective solution to maintain level of service targets. Costs
for thresholds were derived from the City's historical financial information for actual or
similar interventions where available and applicable. Where replacement activities are
determined, asset replacement costs were used.
3.3
Lifecycle Options Analysis and Costs of Service
The options analysis of the lifecycle activities that could be undertaken were reviewed
with the Facilities subject matter experts. Lifecycle activity options were discussed and
determined that the current planned activities are appropriate and the most cost-
effective option(s). Details related to the Administration Facilities available funding,
investments and shortfalls can be found in Section 5.0 - Financial Summary.
Table 7 and Figure 3 below shows the Administration Facilities service area projected
10-year lifecycle costs (asset renewal and replacement activities required for existing
assets) and performance to maintain current levels of service. For details on current
levels of service descriptions, measures and targets and current performance, refer to
Table 5 in Section 2 - Levels of Service of this attachment.
Lifecycle costs shown below were calculated based on current asset conditions and
forecasted out over the 10-yr period using the recommended deterioration model for
that asset/asset class. Where asset condition data was not available, age-based
condition ratings were applied.
3 Request for Proposal RFP 22-22 Consulting Services to Support Asset Management Planning Updates
-
-
Table 7: Administration Facilities Lifecycle Associated Costs - Delivering Current Levels of Service, existing assets
Lifecycle Activity Costs -
Administration Facilities
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033 Total 10-Yr
Administration Facilities
$0
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$9,794,771
Annual Total
$0
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$9,794,771
Average Annual Lifecycle
Cost
$0
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
$979,477
Based on the lifecycle assessment for Administration Facility assets (for renewal and replacement), it is estimated that the City would need to spend an average of $1.0
million per year to carry out the required lifecycle activities to maintain current levels of service.
Figure 3: 10-Year Forecasted Performance for Maintaining Levels of Service -
Administration Facilities
Figure 3 above illustrates the performance (condition) of Administration Facility assets
over the 10-year forecast. The estimated average combined annual expenditures to
maintain these conditions is approximately $1.0 million.