Scottish Road Network
Lessons learned and recommendations following the events of winter 2009/10
August 2010
Scottish Salt Group
Foreword
Dealing with harsh winter conditions are not new to Scottish roads authorities and thanks must be given to the many men and women that work through often horrendous conditions to keep our road network open for the transport of goods, tourism, health and education services. The winter of 2009/10 was exceptional however and was the coldest for nearly 50 years. Despite this Scottish road authorities coped very well last winter with conditions which affected the whole UK. The supply of salt for de-icing was particularly
affected and stocks run very low. The Scottish Salt Group undertook a review of procedures and has made a number of recommendations to make our winter service even better. Dealing with winter requires us all to work together and we will jointly implement the recommendations of this review.
Scottish Salt Group
Contents
Acknowledgements Executive Summary
1. Introduction 2. Context
2.1 Winter Service Provision and policy in Scotland 2.2 Weather Forecasting
2.3 Weather Conditions in the winter of 2009/10 2.4 Salt Production and Supply
3. Review
3.1 Scottish Salt Group 3.2 Resilience of Salt Supply 3.3 Salt Procurement
3.4 Salt Storage 3.5 Salt Conservation 3.6 Mutual Aid
3.7 Emergency Supplies
3.8 Operation of the Salt Group 4.0 Communications
5.0 Impact of Severe Weather
6.0 Summary of Short Term Recommendations and Actions 7.0 Further Suggestions
7.1 Medium Term 7.2 Long Term 8.0 Conclusion
Appendices
Appendix A - Consultees
Appendix B - Consultation Questionnaire
Appendix C - Scottish Salt Group Data Collection Template
Acknowledgements
The Scottish Salt Group would like to acknowledge the help and assistance it received in preparing this report from those listed below and the consultees listed in Appendix B. Photographs and figures in this document are from the authors and from the trunk road operating companies.
Review Steering Group
Graham Edmond Transport Scotland David Hamilton Transport Scotland Roy Brannen Transport Scotland Anne Armstrong Transport Scotland Tash Farrell Transport Scotland
Steven Herriot SCOTS/Dumfries and Galloway Council Jim Valentine SCOTS/Perth and Kinross Council
Anil Gupta COSLA
Rhona Geisler SOLACE/Falkirk Council
Support Consultants - Halcrow Mike Birch
Ian Jones
Executive Summary
A functional and well maintained road network is necessary to allow the economy of Scotland to thrive and grow. Closures and disruptions on the road network due to snow and ice have an adverse impact on the free movement of goods and services. Access to health and education services can be more problematic and there is potential for an increase in the number of injuries due to slipping, and road traffic incidents.
The severity and length of the winter of 2009/10 provided a significant challenge for Scottish Local Authorities and Trunk Road Operators.
Information from the Met Office indicates that Scotland had the second
coldest winter since 1914, with only the winter of 1962/63 being colder.
This resulted in extensive
disruption to transport services in Scotland and indeed throughout the UK. Media coverage of the
conditions and the salt shortage was extensive. In early January special arrangements were required to manage reduced salt stocks in order to mitigate against the potential for running out of salt as the severity and length of the weather was forecast to continue. The Scottish Salt Group was set up to co-ordinate this function.
This last winter was costly; increasing the cost of winter maintenance and causing more damage to the road network than normal with a resulting increase in public compensation claims and payouts.
Given the variability of Scotland‟s weather it is not possible to guarantee that roads will remain free of ice and snow at all times. Despite the considerable efforts made by roads authorities, pedestrians and drivers must play their part.
This review looks at the lessons learned from the events of winter 2009/10. In addition to the 11 short term recommendations, further medium and long term suggestions are given to improve resilience and preparedness for the future.
Finally, recognition must be given to the many people who strived and toiled to keep routes as clear as possible in often horrendous conditions as part of providing a winter service which kept Scotland moving.
1. Introduction
Following the winter of 2009/10, the Scottish Cabinet Sub-committee on Scottish Government Resilience (SGoR) requested a review of winter maintenance operations to be conducted. This task was undertaken by the Scottish Salt Group which comprises a joint forum of representatives from Transport Scotland, the Society of Chief Officers of Transportation in Scotland (SCOTS), the Convention of Scottish Local Authorities (COSLA), the Society of Local Authority Chief Executives (SOLACE) and assisted by consultants Halcrow.
The review was carried out in consultation with Scottish Local Authorities, Trunk Road Operating Companies, salt producers, salt suppliers and weather forecasters. The recommendations contained in this report are a result of these consultations and are based on the main terms of reference to review the following:
a) Assessment of winter maintenance service providers‟ current resilience and preparedness
b) Future winter service resilience standards
c) Scottish Salt Group current and future arrangements
d) Coordination and collaboration arrangements with other winter providers and stakeholders
e) Supplier and Transport Scotland owned salt stock considerations f) Sharing of depots and salt stocks
g) Contingency planning policies h) Joint winter exercises review
i) Review of Mutual aid arrangements j) Communication review
k) Review of legal liabilities
l) Future winter working arrangements
A copy of the questionnaire sent out to all local authorities and trunk road operators is attached at Annex C. Scottish Government Resilience, SCOTS
and DfT are undertaking separate reviews and many Scottish Local
Authorities are also reviewing their own winter maintenance arrangements.
The recommendations in this report have therefore been restricted to those under the direct control of the Scottish Salt Group and/or Transport Scotland.
The timing of this report and the limited time before the next winter must also be borne in mind.
This report will form part of a wider review of the resilience of Scottish transport which will be published in the autumn.
In addition, it is not intended that this report repeats the research and
recommendations from the UK Roads Liaison Group (UKLRG), Lessons from The Severe Weather February 2009 report,
http://www.ukroadsliaisongroup.org/liaison/winter.htm, published in July 2009 following the then considered exceptional winter of 2008/09. The UKRLG report contained several recommendations to develop and improve the service in winter. While the UKLRG report principally considered England, wider UK factors were taken into account and consultation was carried out across the UK. Much of the supporting information contained in the UKLRG report with regard to weather trends, climate change, weather forecasting, salt suppliers, and operational practice and the recommendations, remains
relevant and reference should made to it for further background information.
2. Context
2.1. Winter Service Provision and Policy in Scotland
In Scotland, winter service on 55,000 Kms (34,000 miles) of the local road network is provided by 32 Local Authorities (LAs). Winter service on the 3,250 Km (2,000 miles) of the trunk road network is provided by four Operating Companies (OCs) and three Design, Build, and Finance Operators (DBFOs).
Under the Roads (Scotland) Act 1984 all roads authorities are required to
„take such steps as they consider reasonable to prevent snow and ice
endangering the safe passage of pedestrians and vehicles over public roads‟.
To assist meeting their legal requirements each roads authority produces a winter service policy which describes what steps will be taken to maintain the local road network free from ice and snow as far as is considered reasonable.
Policies vary between roads authorities and are often based on a route
treatment hierarchy where priority routes have been determined depending on various factors such as traffic volumes, bus routes and access to schools, shops and medical facilities. Winter Service Policies are placed within each service provider‟s website and in some cases provided also by leaflets available at Council offices. Transport Scotland places the winter service policy for each OC and DBFO on its website.
Roads Authorities‟ salt stock levels are based on varying criteria such as stocks from the previous year, historical maximum usage, varying days of heavy usage and anticipated route usage in severe conditions with an
allowance for a delivery period for restocking. The unpredictable nature of the winter climate means predicting annual demand for rock salt for de-icing in the UK is difficult. For some island authorities, where deliveries are made by ship, restocking can take up to 15 days or longer following placement of an order depending upon ship availability.
2.2. Weather Forecasting
Weather trends can provide an indication of weather patterns over a period of years. Experience over the past decade has shown that winter has been becoming milder. It is unprecedented in recent times therefore, to have a one in 20 year weather event followed by a one in 40 year plus event the year after.
Weather forecasts provide an indication of the expected weather within any given year and cover long, medium and short range periods of time with varying degrees of reliability. Long range weather forecasts are not sufficiently reliable to enable roads authorities and suppliers to accurately forward plan salt usage in advance of winter. Medium range forecasts are more reliable but do not provide a sufficient lead in period for roads authorities to order and take delivery of significantly larger quantities of salt than normal, or for suppliers to significantly increase supplies. Short range forecasts are the most reliable but by then it is too late to mitigate against a shortage of salt.
Weather forecasting cannot therefore be used as the main criteria for
replenishing salt stocks either at the start of the season or when re-ordering.
2.3. Weather Conditions in the Winter of 2009/10
Throughout the winter of 2009/10 the weather conditions being dealt with were extreme; not only from a temperature and snowfall perspective, but also due to the length of time the severe weather persisted and the geographically large areas affected covering as it did the whole of the UK.
The Met Office reports indicate that Scotland had the second coldest winter since 1914, with only the winter of 1962/63 being colder. For northern Scotland, it was the coldest winter on record, with the highest number of frosts. From Thursday 17 December 2009 to Friday 15 January 2010 the UK experienced a spell of very low temperatures and significant snowfalls which affected most of the country. Daytime temperatures struggled to rise above freezing in many areas and overnight temperatures were particularly low. With
little day-time thawing, fresh snowfalls added to previous accumulations and by Christmas much of the Scottish Highlands had 30 cm or more snow.
Significant snowfalls continued widely at times with falls of over 30 cm in central and northern Scotland in late February. Further snowfalls persisted during March and April with only a few brief milder interludes mostly in the west and south.
The severity of the conditions led to significant disruption on the road network with heavy snowfall leading to numerous closures. Many local roads were closed or passable with extreme care for extended periods and parts of the trunk road network suffered from lengthy closures. This was even with the best efforts of all those involved to keep roads clear of snow and where closure was necessary, to re-open them as quickly as possible despite frequently working in atrocious conditions.
Case Study: The Severe Weather of 24/25 February 2010
On 25 February 2010 very heavy snow caused an electricity power line to fall across both lanes of the A9 at Auchterarder in Perthshire. About two feet of snow fell and gritters were already struggling to clear the road. The snow was widespread and the night before was no better and around 80 motorists were stranded overnight in Aberdeenshire. Heavy snow had been forecast but nevertheless the snow was quite localised with little snow in Perth or Stirling. Unlike other sections of the A9 the Perth to Stirling section has no snow gates. The Police drafted in volunteers in 4 x 4s to ferry food and drink to around 400 stranded drivers. The trunk road operating company mobilised all available winter maintenance vehicles and over 20 gritters eventually helped open the A9 after nearly 12 hours.
The severity of the conditions resulted in significant increases in salt usage, demand and ultimately the availability of supply. Using salt as a de-icer when temperatures fall below - 8 ºC is less effective, requiring an increased amount of salt used.
2.4. Salt Production and Supply
The main way to de-ice roads and footways is to spread salt on roads and footways, usually, sodium chloride (NaCl).
Salt is produced around the world by evaporation of seawater or brine from sources, such as brine wells and salt lakes, and by mining rock salt deposits.
Transportation costs, lead in time for deliveries are significant factors when sourcing economic salt supplies for road de-icing purposes.
UK production of rock salt, occurs in England and Northern Ireland. The three main operational mines producing rock salt in the UK are: Salt Union,
Winsford, Cheshire; Cleveland Potash, near Saltburn, Cleveland; and, Irish Salt Sales, Carrickfergus, Northern Ireland.
The main supplier based in Scotland is Peacock Salt Merchants, Ayr who act primarily as supply intermediaries between salt producers around the world and
consumers. Other salt merchants and
businesses which supply smaller quantities of salt have not been consulted as part of this review.
The location of producers in relation to their customers and the mode of transport used to deliver salt, combined with transportation costs being a significant component of the overall price have resulted in Irish Salt Sales serving the west of Scotland by sea and Cleveland Potash serving the east of Scotland principally by sea with limited deliveries by road. Salt Union, the
smallest supplier to Scotland, serves a few authorities in the south west and central belt of Scotland.
The unprecedented requirement of salt during the winter of 2009/10 resulted in surface stocks at suppliers becoming exhausted during the winter.
Suppliers within the UK are only able to mine an absolute maximum of around 12,000 to 15,000 tonnes per day. To put this in context this is only about one or two days use in Scotland in snow conditions.
Salt suppliers have indicated that they are attempting to re-establish their stockpiles from last winter while meeting customer requests to restock this summer and autumn. As a result, they may again encounter difficulties in meeting winter replenishment requirements this next winter, particularly if an early start to winter is encountered.
Winter Road Salting - Facts and Figures
UK salt suppliers maximum production is around 12,000 tonnes/day
1 x 20g/m² treatment uses 32,000 tonnes/day throughout the UK
„White-out‟ conditions uses 100,000 tonnes/day throughout the UK
It takes 20 days to replenish one UK white-out day using supplies from Cleveland Potash and Salt Union mining combined
35,000 tonnes was the minimum recorded stock level in Scotland during the winter
3. Review
3.1 Scottish Salt Group
The Scottish Government Resilience Room (SGoRR) was activated on 22 December 2009 to monitor the impact of the deteriorating weather
conditions, which were forecast to continue over the Christmas and New Year period, and to keep the Scottish Ministers briefed.
It was clear at the beginning of January 2010 that salt stocks were causing concern to roads authorities and suppliers as the cold weather was forecast to continue, usage remained high and surface stocks at UK producers were depleted. Production is limited to a maximum of around 12,000 to 15,000 tonnes per day for the whole of the UK, which depending on conditions, could be used by Scotland alone in a day or two.
As a result of the deteriorating picture the Transport Scotland Resilience Room was activated on 4 January 2010 to co-ordinate the transport response to the severe weather and emerging salt shortage. The first instances of Mutual Aid between Scottish Roads Authorities took place and actual salt stock levels across Scotland were ascertained at this time.
Also at this time, the UK Government through the
Department for Transport (DfT) ascertained the salt stock levels for the UK with SGoRR initially
supplying the figures for Scotland.
The UK Salt Cell, which was formed during the severe weather of the winter of 2008/09, was subsequently re- activated on 6 January 2010 to provide advice to producers and suppliers on the most effective distribution of available salt supplies in order to minimise the risk to public safety.
At the request of the Scottish Ministers, the Scottish Salt Group was formed on 8 January 2010 involving representatives from SOLACE, SCOTS, COSLA and Transport Scotland to monitor local authority and trunk road operating company (OC) daily salt returns, identify pressure points, arrange mutual aid, input to the UK Salt Cell, liaise with salt suppliers, provide salt conservation guidance, to identify alternative salt suppliers and to identify alternatives to sodium chloride rock salt. ( Recommendation 6)
The UK Salt Cell, recommended allocations of a share of UK production to England, Wales and Scotland on a twice weekly basis. Throughout the winter the share allocated from the UK Salt Cell, although limited, was proportionate to the needs of Scotland based on existing stock levels and weather
forecasts. Suppliers were then advised of the roads authorities where the most effective distribution could be achieved based on resilience levels.
3.2 Resilience of Salt Supply
Scottish Local Authorities develop their own policies and operational procedures based upon the Code of Practice for Highway Maintenance Management Well Maintained Highways published by the UKRLG. OCs and DBFOs who maintain the trunk road network have policies and procedures
Work of the Scottish Salt Group
15,000 tonnes of salt procured from outwith the UK.
At least 49 instances of mutual aid facilitated 28 Scottish Salt Group meetings held
20 UK Salt Cell meetings attended
15 Cabinet Sub-Committee meetings attended 13 SGoRR meetings attended
Salt is produced in anticipation of normal demand rather than in response to immediate demand. UK producers can increase production by 24/7 working, increasing the minimum particle size if acceptable, and, in the case of
Cleveland Potash, changing the balance of production between potash and salt. To meet demand, such as that experienced last winter, some changes to the resilience of salt stocks and management of public expectations is
required.
The resilience of the supply chain within the UK can be affected by disruption due to weather conditions, congestion or incidents on the road network.
Delays at the mine itself, caused by large numbers of queuing lorries or plant failure can also delay deliveries and disrupt production. For imported supplies, ships can be disrupted due to weather, tidal conditions and mechanical failure resulting in significant quantities of salt in vessels with hold capacities of 4,000 – 25,000 tonnes being delayed as a result.
The salt stock resilience triangle demonstrates the three elements required to maintain resilient levels:
Ensure adequate stocks at the start of the winter period to provide a good level of resilience.
Examine areas of potential efficiencies when using salt such as
covered storage, vehicle calibration, selection of de-icing material, and reviewing of the treatment matrix.
Consider mitigation measures for difficulties arising with re-stocking during winter as increasing the pre-season stocks may only provide another day or two resilience days.
Pre-season
stocks In-season
usage In-season
restocking
Due to the anticipated low starting level for salt stocks, both at suppliers and roads authorities, as a result of the heavy usage last winter, the potential for roads authorities re-stocking to higher target levels remains quite critical.
(Recommendation 3) 3.3 Salt Procurement
The majority of roads authorities have supply contracts with one of the UK producers as single suppliers. Because of this, during winter 2009/10, there was difficulty in sourcing salt from other UK suppliers and a number of authorities bought imported salt, shared supplies or mixed salt with sand and/or grit.
In order to increase production significantly to meet a large unplanned spike in demand such as that encountered during winter 2009/10 throughout the UK, salt suppliers are required to employ and train additional operatives and purchase additional equipment. This is not achievable at short notice and although the salt industry did increase production, supply stocks were quickly exhausted and there was insufficient resupply capacity to meet the immediate demand. It is just not possible to significantly increase mining capacity to increase supply and it must also be kept in mind that the suppliers are commercial organisations. Although they did their best in assisting the
situation, there was public criticism at the time of the suppliers from a number of sources which potentially soured relationships at a critical time.
For 2010/11 some Councils are arranging the procurement of salt through a Scotland Excel arranged contact dedicated to securing best value for all Councils and related organisations across Scotland. The contract has now been awarded (in July 2010). Concerns have been expressed that this will potentially delay restocking. The introduction of this new contract should not be an excuse for early and sufficient restocking before the next winter.
During „normal‟ winters, any sudden increase in salt restocking requirements caused by adverse weather in areas of Scotland, England and Wales can generally be met by increased UK production, running down supplier stocks and from additional imports. However when demand is UK wide and not regional, as experienced during winter 2009/10, the suppliers do not have the capacity to cope. (Recommendation 3)
3.4 Salt Storage
Salt production is generally a continuous operation, but demand is highly seasonal. Roads authorities replenish stocks before winter and restock during the winter season to maintain adequate supplies. Pre-season and in-season restocking levels are generally based upon historical usage. Some Roads Authorities maintain high salt reserves, but stock reductions have been encouraged by unrealistic expectations that the introduction of „just in time‟
restocking arrangements with suppliers would assure supplies even in severe and prolonged winter conditions.
It is probably correct to state that Scottish authorities had more resilience in their stock levels compared with the UK as a whole. This is due to several factors. These include a generally more severe winter, more difficult logistics and longer transport distances.
All the Operating Companies and Design Build Finance and Operate Companies and approximately 47%
of local Roads Authorities have salt stock in covered storage. Of the remaining local Roads Authorities, 15% keep salt under temporary
coverage and 38% in uncovered salt piles. If not covered, salt can be lost due to leaching.
3.5 Salt Conservation
To conserve supplies last winter, recommended salt spread rates were either reduced or salt was mixed with sand and grit. These measures did not appear to significantly increase the number of road accident claims, but they did result in additional costs in the clearing up of sand and grit from footways, road channels and gullies afterwards. Because of this a permanent treatment level reduction from current recommended spread rates and the use of sand/salt mixes is being considered but will require further research and publication of guidance. (Recommendations 8 and 10)
Salt usage has evolved and changed in recent years due to the introduction of improved technology, improved salt management and salt additives. The majority of Scottish local authorities currently use dry salt alone but salt additives can improve target spreading and there is some evidence that they also improve road surface retention. It appears that after initially expressing concern the environmental agencies are satisfied that salt additives are safe to use. Salt additives are currently in use by some Scottish local roads
authorities and are being trialled by others. The four OCs and DBFOs use pre- wetted salt which involves mixing the salt with saturated brine before it is spread on the road surface. This method reduces salt usage by around 70%
as it minimises losses through wind drift and vehicle draught and better controls spread distribution.
3.6 Mutual Aid
From the 31 December 2009 until early March 2010 around 50 instances of mutual aid were recorded involving transferring salt between local authorities, trunk road operating companies and NHS Boards. In most cases the amount of salt was relatively low involving 200 or 300 tonnes however in one case 1,700 tonnes of salt was transferred from Orkney to the mainland in mid January. This highlighted some of the logistical difficulties in transporting salt around Scotland particularly to the islands where finding an appropriate vessel and chartering it was necessary.
Although mutual aid was successful it is considered that the system may be improved if arrangements are explored and scoped in advance. This will ensure that delays are minimised in future. (Recommendations 11).
3.7 Emergency Supplies
In addition to making the best use of available stock through mutual aid, salt stocks were strengthened by Transport Scotland procuring 15,000 tonnes from Tunisia, Morocco and Egypt through its operating
companies. Decisions were made swiftly as the lead in time to secure a ship load of salt, unload and transport it to the end user from overseas is at least four weeks from, in this case, the east Mediterranean. A residual stock of this salt is currently being stored on behalf of Transport Scotland although the cost of procurement and storage need to be considered when using this emergency salt supply in future periods severe weather.
Mutual Aid & Emergency Salt - Facts and Figures In the region of:
16 instances of mutual aid between Trunk Road Operators and Local Authorities – total 1,800 tonnes
31 instances of mutual aid between Local Authorities - total 7,850 tonnes.
200 tonnes provided to NHS Boards.
85 tonnes mutual aid from MOD.
12,000 Tonnes of Salt Procured from INEOS Enterprises and 15,000 Tonnes of Salt Procured from Egypt, Morocco and Tunisia.
Stocks were also strengthened by Transport Scotland procuring 12,000 tonnes from INEOS Enterprises, Runcorn, Cheshire. INEOS are the UK's largest manufacturer of vacuum salt products for industrial and domestic applications. During the winter some of their output was re-directed to road de-icing. The manufactured salt is not usable directly in spreaders but can spread by hand and can be mixed with grit sand. As with the imported salt, a residual stock of this salt is also currently being stored on behalf of Transport Scotland, supplemented by a stock of waste salt, a by-product of INEOS manufacturing, which has been screened to remove the waste material.
3.8 Operation of the Salt Group
The Scottish Salt Group was actively involved in the operation of ensuring that Scotland did not run out of salt during the extreme and prolonged winter until March 2010. It is testimony to that group and its partnership working with DfT that this critical objective was achieved.
However, the function of the group could have been improved if all local authorities had provided returns as requested and if the confidence in the accuracy, transparency and methodology of the reported resilience levels could be improved. (Recommendations 4 and 5)
The red, amber, green methodology used by DfT (Annex D) was based on entire routes being treated but in practise many roads authorities‟ treatments in real terms vary considerably depending on its winter service policy. This led to inconsistencies, between local authorities, in the number of resilience days being reported and often the number of days resilience appearing to be less or more than was the actual case. Discussions resulted in guidance being issued to local authorities in Scotland so the system, although rough, did provide a practical level of consistency across the UK.
There is a need to communicate/provide guidance to Roads Authorities on the operation of any Salt Cell if implemented this will include Operation,
Intervention points, use of salt stock data, expectation of Roads Authorities, relationship with DfT data collection and decision process.
4. Communications
The severity and prolonged nature of the winter meant that a level of
disruption was inevitable and to be expected. Keeping strategic and priority routes open required significant effort resulting in it taking longer to get to clearing minor routes and footways. Members of the public and businesses were keen to help by clearing snow and ice from these minor routes and footways when service providers‟
resources were concentrated on the priority network. There were however concerns regarding liability should an accident subsequently occur and consequently people who wanted to help weren‟t sure if they should.
There were expectations on roads authorities to keep all roads clear at all
times and occasions when the travelling public ignored road closed signs and continued with their journeys compounding efforts to clear roads when they became stranded. In the case of some roads such as the A9 and A90 lengthy closures were caused by jack-knifed lorries on what were generally open and passable roads. It is very important drivers and particularly professional drivers reduce their speed and take heed of what must be obviously poor conditions (Recommendation 1, 7)
It became clear during winter 2009/10 that consistent advice is required to be sent out to the public in relation to liability for clearing snow and ice on
footways when service providers‟ resources are concentrated on the priority network. It is not possible to provide a service to all parts of the road network.
As such the public must be encouraged to clear paths and minor access roads, self-help facilities also need be adequately provided. There is also a need for community resilience to be encouraged in rural areas, for example,
the maintenance of higher heating fuel stocks throughout the winter season.
Grit bins are widely available however consideration should be made to
provide high visibility vests, shovels and mini-spreaders to community groups.
(Recommendation 9)
During the winter the media interest was intense. In most cases the same officers in roads authorities were involved in managing a difficult winter service and answering media enquiries. To reduce stress and make a more efficient use of resources use should made of electronic media such as websites and as much information should be put into the public arena in a proactive way.
5. Impact of the Severe Weather
The winter of 2009/10 caused more damage to the road network than normal with a resulting increase in public compensation claims and payouts. Extensive additional patching was required just to hold some roads together but any increase in reactive maintenance budgets was generally at the expense of structural maintenance programmes. It is anticipated that the very worst affected roads will be resurfaced this year but this means that many others that are in need of urgent resurfacing will either be surface dressed instead or left to deteriorate due to insufficient budgets. This increased burden has to be added to the considerable increased cost of winter maintenance itself. On trunk roads the increased cost of dealing with the winter is met by the trunk road operating companies who are paid on a fixed lump sum.
Sudden melting of snow brings with it the potential for significant flooding.
Although limited, this also tested the well planned arrangements in place for such events around Scotland.
6. Summary of Short Term Recommendations and Actions
7.
Communication Recommendation 1
That consistent advice is issued to the public about what conditions are likely to be encountered and what the conditions of roads and footways are. This should be linked to more education about winter service and what can and cannot be delivered.
Action to be taken:
The Scottish Salt Group and SGoRR will develop a communications strategy to manage public expectations pro-actively, consider resource implications of roads authorities and operating companies when dealing with media enquiries and the role of local media.
Transport Scotland will review the national advice and systems before next winter.
Strategic Salt Stocks Recommendation 2
A strategic salt stock should be established in Scotland.
Action underway:
It will not be possible to facilitate a large holding of strategic stock for winter 2010/11 due to difficulties in meeting current demands. Transport Scotland currently holds around 8,000 tonnes from last winter. The location, usage and management of this strategic stock will be reviewed through the next winter and permanent arrangements agreed. This could be considered jointly with the DfT.
To ensure that recipients of emergency salt do not benefit from the existence of this and do not rely on the system it is likely that this will be offered at a higher cost.
Scottish Salt Group Recommendation 3
That the re-stocking is monitored through out the summer and the usage is monitored on a monthly and perhaps weekly basis in the winter.
Action underway:
Monitoring of re-stocking and use will start with a monthly review through the summer and at least the first part of the winter. These returns will be monitored by the Scottish Salt Group and escalation started as necessary.
Recommendation 4
The operation of the Scottish Salt Group should report the resilience of the
members calculated correctly based on accurate measurement of stock levels and each member‟s stated resilience requirement.
Action underway:
An automatic web based system for operating returns is being explored. This will allow 2-way communication between local authorities, operating companies and design, build, operate and finance companies and the Scottish Salt Group.
Recommendation 5
That the operation of the Scottish Salt Group remains transparent to ensure that the local authorities that fail to prepare sufficiently in winter maintenance resilience do not benefit from the Scottish Salt Group and are not relying on it.
Action underway:
The automatic web based system will ensure transparency as all those involved will be able to see the position of all roads authorities and proposed deliveries.
Recommendation 6
That an early decision point is agreed to escalate the operation of the Scottish Salt Group against an agreed threshold.
Action to be taken:
The Scottish Salt Group will work with SGoRR to agree a protocol.
Legal and Liabilities
Recommendation 7
That consistent advice is provided by Central Government to the public about liability resulting from clearing snow and ice on footways.
Recommendation 8
That consistent advice is provided by Central Government about liability for reducing carriageway treatment levels to conserve salt stocks.
Action to be taken:
Under the Roads (Scotland) Act 1984 the legal liability rests with individual authorities.
To be considered and agreed with Scottish Salt Group and sent out to Scottish roads authorities.
advice on risk of litigation/liability for Roads Authorities to implement directions on conservation measures.
guidance on operational interpretation of Roads (Scotland) Act 1984 Section 34 “ take such steps as they consider reasonable.”
Clarification to be provided to the public on liability resulting from clearing snow and ice on footways.
Self Help
Recommendation 9
That the public is encouraged to clear paths and that self help facilities are adequately provided.
Action to be taken:
Scottish Salt group will work with SGoRR:
To provide guidance in the first instance to assist communities procure their own self help material
To encourage community resilience in rural areas
To provide a central guidance note directed at the public
Salt Conservation
Recommendation 10
Consider a permanent treatment level reduction and use of salt/sand mixes.
Action to be taken:
Scottish Salt Group to decide if further research is required in the medium term and/or if the experience of the previous winter season could inform guidance in the short term.
To make recommendations with respect to levels of precautionary treatment.
Action underway:
The treatment matrix at Annex D will be considered as a permanent change by Transport Scotland in the next winter.
Mutual Aid
Recommendation 11
That the mutual aid arrangements are explored and scoped in advance.
Action to be taken:
Roads authorities should ensure that mutual aid procedures for winter assistance are included in wider mutual aid plans, discussed and agreed with neighbouring
authorities.
7. Further suggestions 7.1 Medium Term
In addition to the main recommendations noted above the following suggestions have been made to prompt discussion amongst the road maintenance community.
a) The general perception is that there was no increase in accidents using a sand/grit and salt mix but this would have to independently verified. It is suggested that guidance is included in an update to the “Well
Maintained Highways document ”
b) Most authorities receive salt stocks during late autumn. It is suggested that consideration be given to earlier restocking to avoid a supply delay at the start of the winter season
c) Where not already in place operatives should be trained to the relevant winter accredited SVQ standard
7.2 Long Term
The following recommendations may merit further considering and are included for discussion purposes.
a) Each roads authority with uncovered salt piles should consider the financial, operational, salt conservation and environmental benefits of moving covered storage
b) Consider reviewing medium term weather forecast and communications with winter service providers and suppliers
c) Where resources permit consideration should be given to employing a rota system of drivers on each treatment route to ensure that frontline and snow backup vehicles can be utilised during snow events to
d) Possible consideration could be given to exploring the feasibility of implementing measures which other countries have adopted such as:
Legislating to require citizens to clear snow and ice from footways adjacent to their properties
Closing a road before it becomes impassable in order to clear it and treat it
Co-ordinating closure of public facilities at a local level.
Making it illegal to park on roads when they are being cleared of snow and ice
Requiring lorries to park in lay-bys when snow arrives to reduce the risk of either losing traction or „jack-knifing‟ and coming to a halt, causing traffic delays
8.0 Conclusion
This report is not intended to be a full review of Winter Policy in Scotland. It is for individual authorities to set their own local policies and most including Transport Scotland have reviewed these in preparation for next winter. The National Guidance is understood to be revised in terms of further
amendments to the Well Maintained Highways guidance document
http://www.ukroadsliaisongroup.org/. SCOTS Winter Sub-Group will continue to meet and develop policy, and groups such as the National Salt Spreading Research Group (NSSRG) on which members of the Scottish Salt Group are represented will also continue developing guidance.
Appendix A – Consultees
Aberdeen City Council Stirling Council
Aberdeenshire Council Tayside Contracts (incorporating Dundee, Perth & Kinross and Angus Councils
Argyll and Bute Council Amey
City of Edinburgh Council Scotland TranServ
Clackmannanshire Council BEAR Scotland (South East) Comhairle nan Eilean Siar BEAR Scotland (North East) Dumfries and Galloway Council Autolink M6
East Ayrshire Council Connect Roads M77
East Lothian Council Transport Scotland
East Renfrewshire Council Peacock Salt Sales
Falkirk Council Irish Salt Sales
Fife Council Salt Union
The Highland Council Cleveland Potash
Inverclyde Council Ringway
Midlothian Council Vaisala
Moray Council Met Office
North Ayrshire Council Scotland Excel
Orkney Islands Council SCOTS
Scottish Borders Council COSLA
Shetland Isles Council SOLACE
South Ayrshire Council South Lanarkshire Council
* The list reflects the Councils and Operating Companies that returned replies to the issued questionnaire.
Appendix B – Consultation proforma issued by Transport Scotland
Resilience and preparedness
1. How many salt storage depots or facilities for salt storage do you have and what type are they e.g. barn, dome, open sheeted ?
2. What is the salt storage capacity in tonnes at each of the above locations?
3. Are there additional salt storage facilities available that you could make use of if required?
4. Who was your main salt supplier during 2009/10?
5. Who also supplied you with salt during 2009/10?
6. Do your contracts have any penalties in terms of non-delivery?
7. Was sand or grit or another additive mixed with salt to conserve supplies? If so please describe which was used and in what proportions.
8. Did any issues result from the use of these additives e.g. accidents, drainage problems?
9. Were any other alternative de-icing materials used?
10. If alternative de-icing materials were used, how much was used and at what cost?
11. Were any other measures taken to conserve stocks? If so, what, how much and at what cost?
12. What were your dry salt stock levels in tonnes at the start of your designated winter service period in 2009?
13. Does your organisation use pre-wetted or dry salt?
14. Which salt particle size do you use – 6mm/10mm/other – please state?
15. Are your spreading vehicles calibrated prior to each winter period and at any time during the winter period? If so, at what frequency and how?
16. Do you have a route treatment hierarchy based on route treatment priorities? If so how are the hierarchy/priorities determined?
17. In severe conditions, how many times at current resource levels can you treat your full network at 20g/m² within a 24-hour period? How many tonnes of salt would be required for this?
18. What were your dry salt stock levels at 24 December 2009 ? 19. The Scottish Salt Group relies on accurate returns of existing salt
stocks. How do you monitor and manage your salt stocks?
20. What triggers salt re-stocking e.g. is there a minimum level which triggers re-ordering? If so, what is it?
21. How are salt stock levels assessed e.g. visual assessment/ survey/
computerised management system/other?
22. What criteria or guidance or code of practice is currently used to determine precautionary treatment levels?
23. What is your policy for reducing salt use and what is the process for escalation?
24. Do you normally use additives such as “Safecote” as part of normal treatments?
25. During which month(s) prior to winter do you normally replenish salt stocks?
26. If any, what target salt stock tonnages do you aim for and at what times pre-season and during the winter period?
27. If any, which recommendations did you implement from the UK Roads Liaison Group Report dated July 2009 titled „Lessons from the Severe Weather February 2009‟?
Future winter service resilience standards
1. In terms of resilience how do you currently measure how many days your salt stocks will last?
2. A proposed minimum salt stock sufficient to provide 6-days continuous heavy salting, where heavy salting is defined as 6 salting runs at 20g/m² in 24 hours, is being considered. For your authority, what do you consider should be the minimum salt stock tonnage held in terms of treatment-days and on what is this based?
3. The winter service period for trunk roads is from 1 October to 15 May.
What is your organisation‟s defined winter service period?
Scottish Salt Group current and future arrangements.
1. The Scottish Salt Group was supplied with salt stock tonnages from your organisation and others throughout Scotland during the winter period and liaised with suppliers to prioritise deliveries according to the areas of greatest need. In your view, did this system work well and if not are there any suggestions for improvement e.g. auditing,
communications, efficiency measures, prioritisation of deliveries?
Coordination and collaboration arrangements with other winter providers and stakeholders.
1. When reviewing winter service plans does consultation take place with other roads authorities, key public services and other stakeholders?
2. Do you share salt stocks and depots with other Councils, Trunk Road Operating Companies or DBFOs? If so, what is the basis for doing so and what, if any, formal arrangements exist?
3. How could collaboration with other winter service providers improve service for the public?
Supplier and Transport Scotland owned salt stock considerations
1. It has been suggested that Transport Scotland should provide a reserve salt storage facility(s) at a strategic location(s) in Scotland.
These reserves would be called upon in an emergency. Is this option worthy of further consideration?
2. Are there arrangements in place for supplier held salt stocks at strategic locations? If so what are the details?
Sharing of depots and salt stocks.
1. What are your current salt stock procurement arrangements?
2. What formal or informal arrangements are in place, if any, for sharing salt stocks and depot facilities with other winter service organisations?
4. Would collaborative arrangements such as shared services and collaborative procurement provide an effective and value for money approach to increasing winter service resilience?
Contingency planning policies.
1. When deciding upon the minimum winter treatment network does consultation take place with other stakeholders such as other roads authorities and key public services such as hospitals and public transport providers?
2. On what basis was a reduced network service to provide resilience of salt stocks determined?
3. Are there any lessons to be learned from any salt conservation measures taken last winter?
Joint winter exercises review
1. Are joint winter event training exercises carried out with other relevant partners?
2. If not would these be considered of benefit?
Training
1. Is training of winter operatives carried out?
2. Is this training to a relevant winter SVQ?
3. Is training of officers such as Duty Managers and Duty Officers who will be involved in determining treatment levels and monitoring of ice
sensors and computerised weather forecasting systems carried out? If so, by whom and to what standard?
Review of Mutual aid arrangements
1. What arrangements are in place for mutual aid?
2. Which mutual aid partners do you liaise with?
3. Where mutual aid arrangements exist between organisations do you have any suggestions as to how the current arrangements could be changed to ensure mutual aid is improved?
Communication review
1. How is information on winter conditions communicated to the public?
2. What difficulties were encountered?
3. How is your winter service policy communicated to the public?
Review of legal liabilities
1. Should members of the public be requested by Councils to assist with footpath clearance when Council resources are unable to cope?
2. Are there any legal liability issues with regard to this proposal?
3. If members of the public are requested to assist with footpath clearance when Council resources are unable to cope would additional salt bins have to be provided?
4. What advice would winter service operators welcome with regard to legal liability when salt usage is reduced to conserve stocks?
5. If treatment levels are reduced should this be communicated to the public via a central source e.g. the Scottish government or is it for each Council to do so?
6. To what extent does Driver Hours legislation affect your ability to carry out treatments?
Weather forecasting and communications
1. How accurate have you found the available short, medium and long term weather forecasting in predicting extreme winter weather, and how have you acted on the forecasts?
2. How could the system be improved?
The consequences and economic impacts of severe winter weather 1. How does severe winter weather impact on critical aspects of people‟s
daily travel needs, and on the mobility of goods and services? What lessons have been learned in business, public service and other organisations about forecasting and mitigating the transport effects of
severe winter weather? How effective have winter resilience measures been, and what other measures should be taken?
2. What major areas of economic cost and benefit arise from the transport and travel aspects of:
(a) being prepared for, and dealing with, severe winter weather?
(b) failure to deal adequately with such weather?
3. During the recent winter weather large parts of the country experienced icy footpaths and icy conditions on minor roads for longer periods than usual. What were the consequences of this, in terms of traffic
accidents, higher-than-expected injuries due to slips and trips? Should the public and local communities be able to take a more pro-active role (e.g. in clearing public and private paths and minor roads) and what issues are raised by this?
4. What can we learn from the experience of and approach taken by other nations who have similar weather to the UK, in terms of planning and managing winter resilience?
Long term weather trends
1. Recognising the uncertainties and probabilistic nature of weather forecasting, what further information or assessment is available about the likely trends in UK winters – their nature, duration and severity - over the next 10-15 years. And how might these most effectively be communicated to those who may need to act on them?
Future winter working arrangements
1. How can we work better in Scotland to improve standards of winter service?
2. Should an all-Scotland joint winter service provider meeting be arranged prior to the start of each winter?
Other issues
1. Did the severe weather this winter cause more damage to the road network than normal?
2. If so what action did you take?
3. Would you be available to participate in further discussions and meetings on winter resilience issues?
Further suggestions
1. If you have any further comments or suggestions to make on how winter resilience could be improved please add them to this questionnaire.
Appendix C – Scottish Salt Group Data Collection Template
Appendix D - Revised Salt Treatment Matrix
Weather Conditions Road Surface Conditions
Road Surface Temperature (RST)
Air Temp
Treatment
Dry Salting (g/m2)
Pre-wetted Salting (g/m2) (see Note 1)
Ploughing
Frost or forecast frost
RST at or above -2oC 8 8 No
Frost or forecast frost
RST below - 2oC and above - 5oC and dry or damp road conditions (see Note 3 if damp and lightly trafficked)
10 9 No
Frost or forecast frost
RST below - 2oC and above - 5oC and wet road conditions (see Note 3 if lightly trafficked)
16 15 No
Frost or forecast frost
RST at or below - 5oC and above -10oC and dry or damp road conditions (see Note 3 if damp and lightly trafficked)
18 18 No
Frost or forecast frost
RST at or below - 5oC and above -10oC and wet road conditions (existing or anticipated) (see Note 3 if lightly trafficked )
2 x 15 2 x 15 No
Light snow forecast (<10mm) 20 18 No
Medium/heavy snow or freezing rain forecast 2 x 20 See Note 2
below No
Freezing rain falling 20
(successive)
See Note 2
below No
After freezing rain 20 See Note 2
below No
Ice formed (minor accumulations) above -
5oC 20 See Note 2
below No
Ice formed
at or below - 5oC
2 x 20 See Note 2
below No
Snow covering exceeding 30mm 20
(successive)
See Note 2
below Yes
Hard packed snow/ice above -
8oC
20
(successive)
See Note 2
below No
Hard packed snow/ice
at or below - 8oC
salt/abrasive (successive)
See Note 2
below No
Rate of spread for precautionary treatments may be adjusted to take account of residual salt or surface moisture unless stated otherwise within NMM 5.6.4 (AMM 36-02).
Notes:
1. Spread rates for pre-wetted salt is the combined weight of dry rock salt and brine combined at 70:30 proportion by weight respectively with a maximum brine concentration of 23% salt.
2. When ice has formed or snow is lying dry salting is the preferred treatment unless the road is closed to traffic when pre-wetted salting may be used. Pre-wetted salting is the preferred treatment in advance of such conditions.
3. Treatments should be carried out, whenever possible, after traffic has dispersed standing water. Successive half rate treatments (for both pre-wet and dry salt operations) should be considered for lightly trafficked roads at the
Published on behalf of the Scottish Salt Group by Transport Scotland, Buchanan House,
58 Port Dundas Road, Glasgow G4 0HF.
0141 272 7100
[email protected] www.transportscotland.gov.uk
© Crown copyright 2010
