Property Asset Management Plan

Transcription

1 Property Asset Management Plan

2 Property Services Asset Management Plan Prepared By Linda Cook Consultant Engineer (Wairoa District Council) Approved By Jamie Cox Engineering Manager (Wairoa District Council) Date: April 2015 Status: Final Peer Review Whilst a specific independent peer review of this document has not been undertaken, a peer review of Council s Asset Management Plans structure and content has been undertaken by David Fraser of AMSAAM Ltd, who is an acknowledged expert in infrastructure asset management. He has also undertaken a detailed peer review of all core infrastructure activity AMPs. The themes and recommendations of those peer reviews have been incorporated as relevant herein.

3 EXECUTIVE SUMMARY INTRODUCTION The management of the property activity needs to be reviewed as budgets, the economy and the customers change. Past practices have generally been reactive rather than proactive with a business as usual approach, whereas Council is now working towards best for asset decision-making processes as the basis for maintenance and forward works programmes. THE ACTIVITY & GENERAL ASSET DESCRIPTION The property activity includes the operation and maintenance of a range of services including: corporate property such as Council offices and the Information Centre housing, including pensioner and staff housing community facilities such as the community centre, the museum and the library community halls campground. THE STRATEGIC ENVIRONMENT The property activity is managed and maintained in accordance with agreed levels of service. The key drivers are based around statutory requirements and community outcomes set by Council, as well as ensuring that future demand is provided for. Whilst it is recognised that the population is declining, the level of service required for the property activity is unlikely to reduce in the next 10 years. As a consequence, the community s ability to continue funding the activity and, in particular, maintaining the assets is an area of concern for the future. Council has determined that the current level of asset management practice should be maintained or improved where it is possible to do so in a cost-effective way. ACTIVITY MANAGEMENT PRACTICES The property activity is managed in-house by Council staff for both strategic and operational aspects. Physical works are undertaken by external contractors with contracts awarded in accordance with Council s Procurement Strategy. OPERATIONS, MAINTENANCE, RENEWALS AND CAPITAL WORKS Some of the facilities, such as the community centre, the campground and the community halls are leased by external parties who are then responsible for ongoing operation and, in some cases, maintenance of the assets. Operations & Maintenance Maintenance of the property assets is undertaken by contractors, generally on an as-needed basis except for cleaning of the facilities which is publicly tendered and awarded to external contractors for a three-year term. Renewals, Capital Works and Disposal of Assets Replacement of assets is generally reactive, driven by performance and is normally undertaken on an asneeded basis. When assets are no longer economic to maintain or are incapable of delivering the required level of service they are either replaced or disposed of, usually on a like-for-like basis. Through improved Executive Summary 3

4 asset condition and performance monitoring, Council is moving towards a more pro-active approach by developing a forward works programme. This will enable future funding requirements to be better identified. The following key renewals have been identified for property services over the next 10 years. Renewals Works Timeframe Estimated Cost Pensioner Housing exterior painting $126,000 Community Centre building renewals $1,150,000 Community Centre pool renewals $166,000 Capital works are new works required to improve performance/capacity and/or where the level of service increases. The following key capital works have been identified for property services over the next 10 years. Capital/New Works Timeframe Estimated Cost Library upgrades including carpeting, air conditioning, entrance upgrade, storage area and meeting room 2017/18 $41,000 Community Centre learners pool $1,800,000 Executive Summary 4

5 PROJECTED EXPENDITURE The projected expenditure for the next 10 years for the property activity is outlined in the table below. 2015/ / / / / / / / / /25 Ops/Maint 950, ,804 1,026,305 1,026,348 1,026,090 1,036,712 1,047,692 1,056,069 1,079,240 1,082,882 Renewals 103,000 52,736 51,430 78, , , ,558 42, , ,609 CapEx 1,000, ,000 41, Sub-Total Costs 2,053,014 1,816,540 1,118,735 1,104,961 1,185,504 1,611,981 1,234,250 1,098,449 1,179,306 1,246,491 Income -1,274, , , , , , , , , ,904 TOTAL 778,624 1,531, , , ,164 1,300, , , , ,587 Notes: Operations/Maintenance includes: Renewals includes: CapEx includes: Income includes: routine expenditure on maintaining the assets expenditure on the renewal of an existing asset to the same service standard as previously existed. (This does not account for residual value of the asset that was replaced) expenditure on the creation of a new asset or works that upgrade or improve an existing asset beyond its existing capacity. (This does not account for residual value of the asset that was replaced) rent and funding (community centre) Executive Summary 5

6 PLAN IMPROVEMENT This 2014 Asset Management Plan (AMP) has shown a more pro-active asset management practice than in the past. In particular, improvements in monitoring of performance and condition of assets will enable a more costeffective forward works programme which will assist in a smoother spending profile and the avoidance of peaks in expenditure. However, there is still room for improvement. Key areas for improvement identified throughout this AMP include: development and implementation of a system to monitor the improvement plan itself development and implementation of a more formal condition assessment programme and a formal valuation of assets which will assist in improved forward works programmes for operations, maintenance, renewals and capital works continued improvement in identifying links between levels of service, customer expectations and the cost to deliver those levels of service and expectations. Executive Summary 6

7 Contents Executive Summary Introduction Creation of Policy Selecting the Appropriate Asset Management Level The Strategic Environment Levels of Service Legislative Requirements Understanding the Customer Customer Consultation and Levels of Service Options Levels of Service Contribution to the Community Outcomes Development of Levels of Service and Performance Measurement Improvement Plan for this Section Asset Management Level Demand Introduction Growth/Decline Demand Management Improvement Plan for this Section Asset Management Level Asset Description Introduction Asset Valuation Asset Condition and Remaining Life Asset Capacity, Utilisation and Performance Improvement Plan for this Section Asset Management Level Risk Management Risk Identification Phase Risk Evaluation and Treatment Phase Critical Assets and Contingency Planning Improvement Plan for this Section Asset Management Level Life Cycle Management Plan Introduction Significant Issues/Assumptions Routine Operations/Maintenance Plan Renewals/Replacement Plan Capital Works Disposal Plan improvement Plan for this Section Asset Management Level Financial Summary Historical Financial Data Contents 7

8 7.2 Financial Projections Funding Strategies and Policies Improvement Plan for this Section Asset Management Level Plan Improvement and Monitoring Asset Management Practices Improvement Planning Glossary Appendices Appendix 1: Appendix 2: 10 Year Financial Forecast Risk Register Contents 8

9 1 INTRODUCTION This Asset Management Plan (AMP) details the assets and services that comprise the property activity of the Wairoa District Council (Council). It is not intended that this AMP detail the services to the end user or customer; rather, this is more of a facilities management document that deals with the sustainability of the physical structures of Council s property assets. Public engagement to determine what facilities are required and at what standard is achieved through consultation on the Activity Plan and this supporting AMP related to the service. For example, this AMP will discuss the needs of the physical building asset that is the Wairoa District Library it does not discuss customer attributes such as number of books, opening hours, fees and charges etc. these levels of service will be consulted on through the Library Activity Plan as part of the Long-term Plan (LTP). In effect, the customer for the purposes of this AMP is the departmental manager who delivers services utilising the buildings and facilities detailed herein. This AMP should be read in conjunction with the Introduction to Asset Management Plans Review 2015 which outlines all generic information on Wairoa s asset management process and AMP development in order to avoid repetition across all AMPs. 1.1 CREATION OF POLICY SELECTING THE APPROPRIATE ASSET MANAGEMENT LEVEL Key elements of infrastructure asset management practice are: providing defined levels of service and monitoring performance managing the impact of growth through demand management and asset development taking a life cycle approach to development costs through effective management strategies identifying, assessing and appropriately controlling risks having a long-term financial plan which identifies required expenditure, how it will be funded and seeking to achieve lowest overall whole-of-life costs. The links between policy and asset management practice can be found in the level of service (LOS) framework. To ensure the delivery of services, performance measures have been created to implement and monitor delivery. LOS is at the heart of business, linking policy in this area ensures integration into the whole business. AMPs are used to achieve outcomes resulting from the strategic planning process and to ensure the key elements outlined above are incorporated into the overall asset management practice within Council. This process involves looking at relevant plans and strategies and incorporating the key values and outputs into this AMP. The purpose of adopting policy is to provide mandated guidance from the governance arm of the organisation; in the case of councils this is from the elected members. In 2010 Council adopted a policy Selecting the Appropriate Asset Management Level which provided asset managers with an understanding of expectations, and direction for development, from a strategic perspective. A core level of asset management was set as Council policy although it is noted that property was not included in this policy. As part of this 2015 AMP review, it was recommended, and adopted by Council, that the overall level of asset management practice remain as core whilst implementing improvement plans to increase the level of practice in some areas as deemed appropriate to an intermediate level. Introduction 9

10 There is little perceived cost-benefit in lifting the overall level of asset management practice for a district with a small and declining population, where demand and the scale and complexity of assets associated is unlikely to increase for the foreseeable future. 1.2 THE STRATEGIC ENVIRONMENT Council s vision defines who we are, what we are trying to achieve and who our intended customers are in a single succinct statement. Council s vision is: Connected Communities Desirable Lifestyles Treasured Environments Sitting beneath this vision is a statement outlining the expected strategic result for each activity. Council s goal or strategic intent for the property activity is: Reliable, cost-effective, sustainable and safe provision of property assets Introduction 10

11 2 LEVELS OF SERVICE 2.1 LEGISLATIVE REQUIREMENTS Legislation has an effect on levels of service (LOS) by effectively setting the minimum required LOS alongside other drivers such as customer requirements, industry codes of practice and standards and the desire to achieve best practice. A community and Council cannot agree to a LOS that does not meet minimum legislative standards even if they would prefer to do so to reduce costs. As new legislation is created it establishes benchmarks and Council is required to meet certain thresholds. These usually have an associated cost which may increase the cost to deliver the service. The table below details a summary of relevant legislative requirements that affect the property activity. Table 2.1: Legislation Impacting Specifically on Property Act Description Building Act 2004 Fencing Act 1978 Fencing of Swimming Pools Act 1987 Health Act 1956 Plumber, Gasfitters and Drainlayers Act 1976 Property Law Act 2007 Residential Tenancies Act 1986 The building of houses and other buildings is controlled by the Building Act This Act applies to the construction of new buildings as well as alterations and the demolition of existing buildings. This Act clearly sets out rights and responsibilities relating to fences between neighbouring properties. The Act requires people with pools (including spa pools) to put fences around them to a height of 1.2 meters. This Act addresses all health issues within a property e.g. water supply, and sanitary conveniences. The Act seeks to protect the health and safety of members of the public by ensuring the competency of persons engaged in the provision of sanitary plumbing, gasfitting, and drainlaying services. It also regulates who carries out sanitary plumbing, gasfitting, and drainlaying. This Act restates, reforms and codifies certain aspects of the law relating to real and personal property. The Act outlines important rights and responsibilities for landlords and tenants. It also provides a dispute resolution service by allowing for mediation, and hearings at the Tenancy Tribunal. 2.2 UNDERSTANDING THE CUSTOMER Understanding the customer gives an understanding of how the service is consumed. The knowledge gained can be used to improve service delivery which will ultimately lead to more efficient spending and likely cost savings. Key users for this activity include: commercial tenants residential tenants other occupiers. Levels of Service 11

12 2.2.1 Customer Service Requests (CSR) Council provides a service request system whereby customers can phone in, , write a letter or lodge a request in person. All requests are recorded and monitored for completion with an annual target (typically maximum number of CSRs for that activity) reported on annually. From a record of queries and complaints relating to property (through the CSR system) since 2009/10, the following table shows the number of CSRs received each year. Year 2009/ / / / /14 No. CSRs Less than previous The majority of the requests were to inform Council of maintenance work needing attention. The increase in CSRs over the last two years is a reflection of Council now being responsible for the community centre and many of the CSRs not being directly related to asset management. This is reflected in the customer satisfaction survey results outlined below Annual Survey Communitrak TM is a survey undertaken by the National Research Bureau (NRB). Council has a long history of using this annual survey to assist in the assessment of customer satisfaction and more importantly to monitor trends over time. The survey does not include all property. The Wairoa Community Centre and community halls are the only property activity surveyed in 2013 and these are reported on separately (prior to 2013 the survey covered the management of community halls across the district). Community Halls The results of the annual survey from 2004 to 2013 for the community halls are summarised below. Table 2.2: 2013 Annual Survey Results Very Satisfied % Fairly Satisfied % Very/Fairly Satisfied % Not Very Satisfied % Don t Know % Levels of Service 12

13 The results to March 2013 show that 94% of Wairoa residents are satisfied with the community halls management (compared to 95% in 2012); 6% are not very satisfied. These figures compare to a peer group and national average satisfaction rating of 84%. Figure 2.2: NRB Communitrak TM Survey Results Satisfaction Survey Results ( ) Very / Fairly Satisfied (%) Not Very Satisfied (5) Don t know (%) The overall satisfaction (very/fairly satisfied) is high with more than 90% of those surveyed very satisfied or satisfied since More detailed comments are available in the annual survey reports available at Council offices. Wairoa Community Centre The results to March 2013 show that 82% of Wairoa residents are satisfied with the community centre and 9% are not very satisfied Very Satisfied % Fairly Satisfied % Very/Fairly Satisfied % Not Very Satisfied % Don t Know % Whole District Users/Visitors The overall satisfaction (very/fairly satisfied) is high with those using the centre rating the service higher. 2.3 CUSTOMER CONSULTATION AND LEVELS OF SERVICE OPTIONS Consultation for this activity is generally done through the LTP submission process. Informal consultation is completed by the property manager through inspections and meetings. The LTP places significant emphasis on the need to consult with the community and other stakeholders. The intended process is to gather expectations of all stakeholders and then to report back on the cost of meeting these expectations. Through this process, an indicative understanding of customer focus can be achieved and this, along with feedback from consultation on cost versus expectations, will help in developing future levels of service. Levels of Service 13

14 For the property activity a non-core activity the following should be undertaken in relation to customer consultation to better refine levels of service. Consultation by appropriate means such as through the LTP and Annual Plan submission process or surveys/workshops to better understand customer needs and wants and to present the levels of service given in this AMP. Estimate the costs of meeting indicative expectations of the community and other stakeholders and then feed this information back. Analyse customer satisfaction through research of results etc. and then analyse those results to better define the links between customer and technical levels of service. 2.4 LEVELS OF SERVICE CONTRIBUTION TO THE COMMUNITY OUTCOMES As part of the 2012 local government reform the purpose of local government has changed removing reference to the four well-beings (economic, social, cultural and environmental) to meeting the current and future needs of communities for good quality local infrastructure, local public services and the performance of regulatory functions in a way that is most cost effective for households and businesses. This could be considered a narrower focus but Council has a mandate to continue to deliver the services currently delivered and hence Council will continue to focus on the same community outcomes as detailed in Table 2.4 below. Table 2.4: Contribution of Property Activity to Community Outcomes Community Outcome Property s Contribution 1. A strong, prosperous and thriving community Provision is made for property services at less than market rates 2. A safe and secure community Correct management of property ensures safe and secure communities 3. A lifetime of good health and wellbeing Future planning of the activity ensures a sustainable service over time 4. An environment that is appreciated, protected and sustained for future generations Compliance with RMA and legislative requirements ensures a protected environment 5. Supportive, caring and valued communities Community halls managed and operated by local groups encourage an inclusive community 6. A safe and integrated transport system 7. Strong district leadership and a sense of belonging 8. Safe and accessible recreation facilities Correct management of the community centre ensures a safe facility for the public 9. A community that values and promotes its unique culture and heritage Community halls managed and operated by local groups encourage a unique culture at a community level Levels of Service 14

15 2.5 DEVELOPMENT OF LEVELS OF SERVICE AND PERFORMANCE MEASUREMENT Previous Performance The table below shows achievement against previous levels of service and performance measures for the last three years (information taken from respective Annual Reports). Table 2.5a: Performance Review LEVEL OF SERVICE STATEMENT PERFORMANCE MEASURE 2012 ACHIEVED? 2013 ACHIEVED? 2014 ACHIEVED? Council will deliver the following property services: commercial, corporate, halls, pensioner housing, campgrounds, community centre How the service is delivered to the community shall be monitored through the CSR system Community s willingness to pay for the service will be monitored CSR system in place Monitored through Annual Plan process Yes Yes Yes Yes Council shall manage the property activity to an acceptable standard The property activity will be managed in a safe manner Maintenance, operations, renewal and capital investments are undertaken cost effectively Operational and maintenance activities are undertaken in a safe and healthy manner Yes Yes Yes Yes Yes Yes Customers will receive a prompt and efficient service Not less than 80% of respondents rate the service as 'fairly good' or 'better' in the annual public satisfaction survey Info not readily available Halls 94% Community centre 82% Other facilities not included in survey Halls 92% Community centre 79% Other facilities not included in survey A reducing amount of customer service requests (CSR) over time 6 CSRs (0 in 2011) 45 CSRs (6 in 2012) 57 CSRs (45 in 2013) The increase in CSRs over the last two years is, on the whole, due to Council taking over the management of the community centre. Other results are considered to be good. Note that the result for community facilities is not included as it covers such activities as the library service which is primarily measured on a non-asset management basis Level of Service Review LOS statements were reviewed and created to ensure the core asset management level is monitored and achieved through the LOS and performance measurement framework. The 2011/12 LOS statements have been reviewed and updated as follows. Evaluation of the LOS statements to: amalgamate those that achieve the same outcome Levels of Service 15

16 identify gaps in the achievement of LOS determine the appropriateness of LOS for the current situation. LOS statements have distinguished between the management of the activity (technical) and the delivery of the service (customer). The LOS statements ensure there is a link with identified risks for the activity to: determine whether new/additional LOS are required for the current and future situation. The 2011/12 performance measures and targets have been reviewed and updated as follows. Existing performance measures were evaluated for materiality and cost of monitoring and were adjusted to align with these goals. Gaps in the achievement of performance measures and targets have been identified. The appropriateness of performance measures and targets for the current situation have been determined. Risks objectives identified in the risk framework have been incorporated to ensure treatments are monitored and achieved. Whether any new/additional performance measures and targets are required for the current and future situation has been determined. Each LOS statement has been identified as being either a: Customer Level of Service: Technical Level of Service: How the customer receives or experiences the service What the organisation does to deliver the service. Levels of Service 16

17 Table 2.5b below details the LOS statements. Column 1 (identifier) is a unique identifier of the LOS statement that correlates with the risk identifier number to ensure LOS are linked with risk events and treatments. Column 2 (risk objective) is taken from the Risk Register for this activity and is included to ensure that the LOS are linked to the risks identified for this activity. Column 3 (level of service statement) states the service Council proposes to deliver. Column 4 details the performance measures for each of those LOS, upon which Council will report and Columns 5-7 are the targets that Council will aim for to ensure the performance measures are met. Table 2.5b: Level of Service Statements and Performance Measures IDENTIFIER RISK OBJECTIVE LEVEL OF SERVICE STATEMENT PERFORMANCE MEASURE TARGET 2015 TARGET 2016 TARGET 2017 Eng.PROP.01 Match service provision with the community s desired level of service and ability to pay Council will continue to provide property services to meet the current and foreseeable demand of the community including: Commercial Corporate Halls Staff and pensioner housing Campgrounds and the Wairoa Community Centre The listed facilities will be provided and maintained to enable continued service provision Community s willingness to pay for the service will be considered The provision of the services shall be adequate for current and foreseeable demand Council will have in place, at all times, suitable maintenance contract/s and/or arrangements to enable provision of the services Monitor for complaints of cost of service through Annual Plan process Use census data to assess adequacy of facilities provided Survey key stakeholders/users to determine likely future demand for the services Future Development/Disposal Plans to be prepared for all property facilities Eng.PROP.02 Eng.PROP.03 To ensure that relevant legislation, regulations, consent conditions and bylaws are monitored and enforced such that Council meets its requirements Strategic programming of renewals and Customer LOS Community Outcomes 1,2,3,5,8 Council will comply with current legislation and Council bylaws Technical LOS Community Outcomes 4,8 Council will maintain the facilities to ensure long-term Council shall meet all legislative requirements Council s Public Safety Bylaw shall be enforced Facilities shall meet all relevant safety standards Asset database to be maintained Review current legislation for compliance Council shall provide for monitoring of the bylaw All known breaches of the bylaw shall be addressed as provided for in the bylaw Facilities shall meet all relevant safety standards Asset database to be set up in AssetFinda Detailed condition assessment of all assets Maintain an up-to-date asset database Levels of Service 17

18 IDENTIFIER RISK OBJECTIVE LEVEL OF SERVICE STATEMENT PERFORMANCE MEASURE TARGET 2015 TARGET 2016 TARGET 2017 Eng.PROP.04 Eng.PROP.05 preventative maintenance to ensure long-term sustainability of the service All preventative maintenance, renewals and other programmed and reactive works are completed on time and within budget Users will be satisfied with the overall level of service provided sustainability Technical LOS Community Outcomes 2,3,8 Council will undertake operational, maintenance and renewals activities in a costeffective manner Technical LOS Community Outcomes 2,3,8 Customers will receive a prompt and efficient service Customer LOS Community Outcomes 1,5,8,9 Eng.PROP.06 Emergency planning Council will implement systems/processes to ensure continued service delivery in emergency events Technical LOS Community Outcomes 2,3,8 All maintenance, renewals and other programmed and reactive works are completed on time and within budget Operational and maintenance activities are undertaken in a safe and healthy manner Level of customer satisfaction through annual survey indicates a fairly good, very good or better service Analysis of CSR complaints to enable issues to be addressed Contingency plans shall be implemented for emergency events such as earthquake and flooding where services may be affected or facilities damaged Develop programme to update asset database annually Forward works programme to be set as part of Annual Plan process Works to be within budget +/- 5% No health and safety non-compliances are received or issued Annual review of hazard register 80% satisfaction rating Number of complaints shall reduce Annual meeting with civil defence team Contingency plans shall Contingency plans shall be reviewed be developed Levels of Service 18

19 2.6 IMPROVEMENT PLAN FOR THIS SECTION Recommended improvements in this section are listed below. Wairoa District Council Identify gaps between levels of service, customer expectation and options to close those gaps. The CSR system needs to be better aligned with the performance measures. The monitoring and analysis of CSRs will need to be better documented to link to LOS. All performance measures are reported on annually as part of Council s Annual Report. A halfyear review process should be put in place to review progress towards the performance measures and targets. The costs and LOS statements should be better linked. An appropriate process for accurately allocating these costs needs to be developed and implemented. Timeframes and resources for implementation of these improvements are detailed in Section 8 of the improvement plan for the overall AMP. 2.7 ASSET MANAGEMENT LEVEL This section of the AMP is delivered at a core asset management level: customer groups are defined levels of service and performance measures are in place annual reporting against targets takes place customer request tracking system is in place. Levels of Service 19

20 3 DEMAND 3.1 INTRODUCTION Demand forecasts are generally based on robust demand projections and extrapolation of historic trends such as census data and asset use. For this activity, demand is generally based on factors such as: the number of people using the facilities e.g. the community centre hours booked e.g. community halls occupancy rates for housing. An increase or decrease in demand can significantly affect what assets will be needed as well as LOS and maintenance, operational and renewal requirements of the assets. 3.2 GROWTH/DECLINE Key drivers of demand for the property activity include the following. Decreasing population Changes in demographics such as the ageing population Customer preferences/changes in recreation activity and leisure trends e.g. less use of the community centre Generally less demand for Council-owned property, in particular the community facilities An ageing population may: increase demand for pensioner housing increase demand for some community facilities such as the library decrease demand for other facilities such as the community centre An ageing population may lead to more demand for passive recreation and less demand for the community centre For the existing facilities in Wairoa, it is predicted that there will be little growth in the short to medium term. The issues that will need to be addressed are around: the public s ability to service the activity understanding the demand factors that impact on various aspects of the property services activity the impact of legislative and regulatory requirements uncertainty in forecasting demand such as consumer preferences. While the population is declining and the demand for some facilities may reduce, the level of service required of much of the activity is unlikely to reduce and certainly not proportionately to the population. For example, as the population reduces, Council may expect to see less people use the public swimming pool. The fact that there are less people does not, however, generally mean less power to heat water, or less water used. Rather, it is likely to be the ability to fund services through user charges that will suffer and as such more pressure may come on Council to fund more of the service through rates. These types of issues need to be canvassed more fully in a risk analysis and/or future demand assessment process. 3.3 DEMAND MANAGEMENT A formal demand management plan has not been developed and is unlikely to be needed in the short to medium term. Overall Council s community property and facilities have more than adequate Demand 20

21 capacity and Council will have ample time to react to any increases in usage that are likely to impact on operations. A continual decline in population may, at some point in the future, result in the need for Council to consider the disposal of some property. 3.4 IMPROVEMENT PLAN FOR THIS SECTION The recommended improvements below describe additions to the process to ensure the information has integrity. This gives Council the confidence to use the data to project and report on. Improvements in this section are recommended below. Survey users and monitor use of in particular community facilities such as the community centre, to determine the expected future level of use over the next 10 years. Timeframes and resources for implementation of these improvements are detailed in Section 8 of the improvement plan for the overall AMP. 3.5 ASSET MANAGEMENT LEVEL This section of the AMP is delivered at a core asset management level as: predicted demand is based on robust protection and historic trends. Demand 21

22 4 ASSET DESCRIPTION 4.1 INTRODUCTION Council does not hold a specific asset inventory for property assets. Asset information is generally taken from the fixed asset register (in a spreadsheet format) and historic information such as maintenance and renewals records. A complete asset inventory should be developed for the activity. The property AMP provides a range of services delivered through the provision of property assets. These property assets can be categorised into the following areas: corporate property community facilities housing. Table 4.1: Assets within the Property Activity Group Asset Description Management Corporate Property Council Admin Building Information Centre Archives Building Roger Main Building Council Offices Located on Queen Street Information Centre building located on Paul Street Old Fire Station located on Lucknow Street Used for storage/archives Located on Locke Street Used for storage/archives Managed and maintained by Council Managed and operated by Council staff Maintained by Council Managed and maintained by Council Managed and maintained by Council Library Library, Marine Parade Managed and maintained by Council Wairoa Museum Located on Marine Parade Operated and managed by Friends of the Wairoa Museum Depot and Offices Located in Nuhaka and Tuai Nuhaka facility managed and maintained by QRS Tuai facility unused Campground Community Facilities Located in Wairoa township on southern side of the Wairoa River and at Mahia Beach, these facilities include management housing, campground units, camping areas, a recreation room, a playground and washing/kitchen facilities Leased Maintained by lessee Community Centre Community Centre building Leased by Sport Hawke s Bay Community Halls Memorial Hall, Queen Street Arts Centre, Alexandra Park Little Theatre, Black Street Tuai Hall, Library and Theatre Tuai Play Centre Leased Maintained by lessee other than major maintenance Asset Description 22

23 Group Asset Description Management Community Arts Building, Lahore Street Ruakituri Hall Ardkeen Hall Marumaru Hall Housing Staff Housing Pensioner Housing (all located in Wairoa Township) Other Raupunga Campbell Street, Wairoa Tuai Black Street Hillneath Lambert Lucknow Outram Sommerville Managed and maintained by Council Managed and maintained by Council Sundry Property Various land investments including forestry Managed and maintained by Council 4.2 ASSET VALUATION A formal valuation is due for this activity. The information given in this section is taken from a valuation for insurance purposes and, as such, the following limitations apply: figures (dated 2011) include reinstatement value for buildings, replacing like for like buildings were not broken down into components as they are generally of a relatively simple construction form and do not involve significant mechanical plant or ancillary services not all buildings are included land values are based on fair market value in 2012 new assets are valued at purchase value and are depreciated every year on a straight line basis the valuation figures given do not provide for depreciation. As such, this valuation information should be taken as indicative only. Also, due to the incompleteness, an overall total of asset values is not given. Asset Description 23

24 4.2: Indicative Value Property Assets Corporate Property Community Centre Community facilities Pensioner Flats Asset* Reinstatement Value 2011** Council Offices and garage $2,218,500 Visitor Information Centre $565,500 Archives buildings - Old Fire Station & Roger Main building $980,700 TOTAL $3,764,700 Main building $11,450,700 Learners pool and chlorine shed $108,300 TOTAL $11,559,000 Library $731,000 Wairoa Arts building $152,800 Wairoa Museum $1,271,100 Lighthouse $101,300 War Memorial Hall $1,462,600 Community groups office & garage, Queen St $493,600 Senior Citizens Hall & garage $408,900 Little Theatre $515,200 TOTAL $5,136,500 5 flats - Livingstone (Sommerville St), Outram, Tunnerflint and Lambert (Lucknow St) and Hillneath (Black St) $2,950,700 Housing 4 houses Campbell St, Campground, Tuai and Raupunga $898,100 Campground Marine Parade $623,800 Depots Nuhaka workshop, shed and office $84,500 Community Halls Ruakituri Fire Depot $62,300 Raupunga Fire Depot $92,600 Raupunga office $52,000 Mahia Fire Station $309,000 Tuai Fire Station $232,200 Tuai depot & garage $228,300 TOTAL $1,060,900 Kotemaori $ Ruakituri $526,500 Ardkeen $631,400 Marumaru $668,200 Frasertown $335,700 Solander (including bunk rooms, main hall and toilets) $258,900 Tuai Church $423,800 Tuai Hall, Play Centre and Craft Centre $934,100 TOTAL $4,108,000 Asset Description 24

25 * Some building assets are included in the Parks and Reserves AMP. ** Figures taken from Telfer Young Report Insurance Valuation Wairoa District Council Valuations Dec ASSET CONDITION AND REMAINING LIFE Asset information is limited and there is no formal condition and remaining life information. Currently a reactive approach is taken to determine renewal works. In accordance with Council s data confidence table (included in the Introduction to Asset Management Plans 2015 document), data confidence would score a C Process to collect data established. May not be fully documented but usually undertaken by most staff. It is important for Council to know the condition of its assets and to address issues that can impact on public health and safety. This is important from a planning point of view but is much more important from a liability and public responsibility viewpoint. It is recommended that a programme be developed and implemented to better determine the condition of the assets and to produce a forward works programme. At this stage, it is considered that visual assessments will be adequate with physical inspections as appropriate. Council buildings have been assessed against the latest earthquake design standards and have been found to be compliant with minimum standards. 4.4 ASSET CAPACITY, UTILISATION AND PERFORMANCE Performance and capacity of the asset relates to the capability of the asset to meet defined service criteria. Utilisation relates to current usage of the facilities by the public. The utilisation and performance of the property assets have not been formally assessed and confidence in the performance of the assets is generally based on feedback from users, contractors and through the CSR system. Capacity, performance and utilisation of some of the property and community facilities has been assessed as outlined below. Community Centre: Pensioner Housing: Corporate Facilities: Library: Community Halls: Generally well used. Capacity and performance adequate to meet current and future demand. Occupation levels consistently high. Capacity, utilisation and performance adequate for current purpose now and in the foreseeable future. Well-used facility - capacity and performance good for current and future use. War Memorial Hall generally well used and is suitable for its purpose. Smaller rural community halls are generally run by community groups with varying levels of use. 4.5 IMPROVEMENT PLAN FOR THIS SECTION The key areas for improvement in this section are: incorporate the asset register into Council s asset database with critical assets identified Asset Description 25

26 develop and implement annual condition assessment programme (visual assessment as a minimum) formal valuation to be undertaken improved and more formalised database management process. Timeframes for implementation of these improvements are detailed in Section 8 of the improvement plan for the overall AMP. 4.6 ASSET MANAGEMENT LEVEL This section is delivered at a core asset management level: adequate information is held to complete asset valuations the programme for data improvement is being developed and implemented the condition assessment programme is being developed and implemented. Asset Description 26

27 5 RISK MANAGEMENT Council s infrastructure risk register is a framework that is used to apply analysis techniques with a goal of minimising risk. The risk register is applied at an activity level, recommending treatments with the highest mitigation results. The framework is covered in detail in the Introduction to Asset Management Plans 2014 Review ; however, the property activity specific element is captured in this AMP. 5.1 RISK IDENTIFICATION PHASE The identification phase firstly involved looking at the objectives of the activity. The objectives of the activity are strongly linked to the LOS statements. Table 5.1 below details the objectives (LOS statements) with the associated risk register identifier. Table 5.1: Objectives and Related Risk Register Identifiers Risk Register (RR) Unique Identifier for LOS Eng.PROP.01 Eng.PROP.02 Eng.PROP.03 Eng.PROP.04 Eng.PROP.05 Eng.PROP.06 Objective Match service provision with the community s desired level of service and ability to pay. To ensure that relevant legislation, regulations, consent conditions and bylaws are monitored and enforced such that Council meets its requirements. Strategic programming of renewals and preventative maintenance to ensure long-term sustainability of the service. All preventative maintenance, renewals and other programmed and reactive works are completed on time and within budget. Users will be satisfied with the overall level of service provided. Emergency planning. 5.2 RISK EVALUATION AND TREATMENT PHASE From understanding all the objectives of the activity, a register of risks associated with the objective can be documented. These risks are then assigned a risk level of: extremely high, very high, high, moderate or low. Treatment options are linked to the risk and the objectives and are assessed across all infrastructure activities to ensure integrated prioritisation of resources. Table 5.2 below identifies the highest risks from the risk register, related risk treatments and the status of the treatments. For the list of all property risks see Appendix 2. Risk Management 27

28 Table 5.2: Extreme, Very High and High Risks for the Property Activity Risk Description Unique Identifier Risk Event Treatment Status Extreme Eng.PROP Insufficient enforcement of third parties in relation to usage 1. Establish process/method to identify cause and apportion costs To be developed 2. Establish education plan Very High Eng.PROP Inadequate maintenance and renewals fails to address deterioration of infrastructure resulting in unsafe facilities/conditions 3. Establish incentive plan for public to report issues 4. Establish rolling review of infrastructure to identify issues 5. Establish communication plan to address relationship with police service 1. Establish risk-based (prioritised) asset management plan 2. Establish effective condition assessment programme to reduce uncertainty around life cycle stages of infrastructure 1. This AMP 2. Process to develop has been established and included in this AMP as LOS performance measure Very High Eng.PROP Insufficient knowledge of legislation that relates to the activity (OSH etc.) or failure to monitor for change 1. Review and document requirements 2. Seek external advice 1. Review undertaken as part of this AMP review 2. Further review programme to be developed High Eng.PROP Eng.PROP Insufficient knowledge of community s desires resulting in inappropriate targets Develop consultation process/plan To be developed. Currently consultation limited to statutory processes High Eng.PROP Eng.PROP Insufficient knowledge of what services are currently being delivered to the users Establish review process To be developed. Currently consultation limited to statutory processes. Satisfaction monitored via CSR system High Eng.PROP Insufficient knowledge of what the users can/will pay for desired service High Eng.PROP Insufficient resources to 'hook in to' funding mechanisms (time, cost, expertise) Develop consultation process/plan Resourcing Plan To be developed. Currently consultation limited to statutory processes. Satisfaction monitored via CSR system To be developed Risk Management 28

29 Risk Description Unique Identifier Risk Event Treatment Status High Eng.PROP Insufficient funding for monitoring Review enforcement options To be developed activities Explore possibility of devolving some function(s) to contractors i.e. reporting High High Eng.PROP Eng.PROP Eng.PROP Eng.PROP Lack of technical expertise to provide planning/design resulting in absence of or inappropriate planning/design and knowledge to verify compliance Lack of labour resource to implement required changes and/or maintain standard High Eng.PROP Breakdown in communication between parties results in compliance failure High Eng.PROP Absence of, or inaccurate asset valuation information resulting in inappropriate depreciation values High Eng.PROP Inadequate planning for the implementation of the annual programme High Eng.PROP Inadequate monitoring of staff, consultants and contractors results in maintenance and renewals not being completed Establish resource plan to either obtain knowledge in-house or a readily accessible consultant organisation Utilise longer time frames to allow contractors sufficient time to obtain resources Develop relationship with other labour users in region to synchronise activities Develop active communication/relationship plan In-house professional services has a senior engineer tasked with procurement effectiveness reviews across infrastructure activities In-house professional services has a senior engineer tasked with procurement effectiveness reviews across infrastructure activities To be developed Establish plan for periodic valuation review Revaluation completed 2014 Ensure robust documentation of current plans to act as template Include issue in handover plans Succession planning Establish quality control/review process Set programme for next review in approximately 3 years AMP in place Handover plans N/A at this time In-house professional services along with cadetship programmes have strengthened resilience as far as succession planning is concerned In-house professional services has a senior engineer who is tasked with procurement effectiveness reviews across infrastructure activities Risk Management 29

30 5.3 CRITICAL ASSETS & CONTINGENCY PLANNING Critical assets are generally those that have a high consequence of failure, that have the greatest effect on the customer should they fail or not be available, but do not necessarily have a high probability of failure. Property is not generally considered to be a critical activity. However, public buildings can be considered as critical from a health and safety perspective for example. The following table 5.3 outlines appropriate responses to a range of potential situations that may make community property and facilities (and associated assets) unusable or unsafe. Such a situation may be identified by being reported by staff or the general public or through general monitoring. This contingency plan has been introduced for general guidance and, covering a wide range of facilities, is very broad. It should be developed further and adapted to suit each individual situation that may arise. Table 5.4: Contingency Plan for Property Situation/Event Earthquake damage to public building/s Furniture/equipment damaged and/or unsafe Council to be notified Contingency Plan Building/s to be closed off to the public Survey to be completed and repairs to be identified and completed No public access until building safe Council to be notified Equipment to be closed off to the public Repairs to be identified and completed in accordance with relevant contract 5.4 IMPROVEMENT PLAN FOR THIS SECTION The key areas for improvements in risk management for Council in the short term are: identify specific risks for critical assets develop and publish a Risk Management Manual identified through the risk framework contingency plans to be further developed. Timeframes for implementation of these improvements are detailed in Section 8 of the improvement plan for the overall AMP. 5.5 ASSET MANAGEMENT LEVEL This section is delivered at an intermediate to advanced asset management level: risk-analysis process, including identification of LOS linkages to risk objectives is in place a risk register is regularly updated a formal risk management policy is in place risks are quantified with mitigation/treatment options evaluated risk is integrated into key decision making. 30

31 6 LIFE CYCLE MANAGEMENT PLAN 6.1 INTRODUCTION This section of the AMP outlines operations and maintenance plans and planning for the renewal, upgrade or capital works and disposal of assets for the property activity. Council s involvement with this activity includes management and funding of maintenance and operations of established assets and capital development as required to ensure facilities that meet the needs and safety requirements of the community. The property activity is managed in-house with technical experts engaged on an as-needed basis. 6.2 SIGNIFICANT ISSUES/ASSUMPTIONS A combination of a steadily reducing funding base, low affordability, ageing infrastructure and declining population creates significant challenges for the future. In determining the works programme for the next 10 years, the following assumptions and issues have been identified: LOS is unlikely to reduce and, with a declining population, this may pose funding pressures demographics are likely to show an ageing population which may affect demand for some facilities. 6.3 ROUTINE OPERATIONS/MAINTENANCE PLAN Maintenance of an asset does not increase the asset s service potential or keep it in its original condition. It slows down deterioration and delays the need for rehabilitation or replacement. It is a way of ensuring that an asset continues to deliver the required level of service. Maintenance is generally undertaken through visual inspection and a fit-for-purpose evaluation process. There are three types of maintenance applicable to this activity: Routine: Periodic/Cyclic: Reactive: The regular ongoing day-to-day work that is necessary to keep assets at their required standards such as regular cleaning of facilities through out-sourced cleaning contracts Planned and preventative maintenance such as: regular maintenance of pumps at the swimming pool air conditioning maintenance in buildings Such as minor repairs to damaged facilities and graffiti removal. Maintenance cost data is available and is generally broken down sufficiently to allocate costs across the different property services. The forecast, included in Section 7, is based on historical financial records and contract management records as there is no indication that any increase in maintenance and operations specification is required at this time and hence there is no indication that increased expenditure on maintenance/operations is required. Life Cycle Management Plan 31

32 6.4 RENEWALS/REPLACEMENT PLAN Wairoa District Council Renewals are generally defined as major work which restores, rehabilitates, replaces or renews an existing asset to its original condition/function and is funded from the capital renewals budget and/or depreciation reserves. Upgrades or renewals are normally undertaken on an as-needed basis but their timing is generally predictable based on asset life and condition. Typical works include: maintenance of existing property component assets (power points, ovens, water taps, windows and doors) painting, internal and external. The following process is typically followed in setting renewals/replacements for the next 10 years: 1. visual condition assessments 2. identifying and estimating costs of renewal/replacement works required over next 10 years 3. prioritising of the works based on condition and/or safety 4. setting the programme of works to give even expenditure over the next 10 years. Depending on the estimated cost, works are generally undertaken through: contract with a pre-approved local contractor quotes requested from selected contractors tendering process for larger works/projects. The following key renewal works have been identified for the next 10 years. Fig 6.4 Summary of Scheduled Renewals for Property Renewals Works Timeframe Estimated Cost Pensioner Housing exterior painting $126,000 Community Centre building renewals $1,150,000 Community Centre pool renewals $166, CAPITAL WORKS New works are those works that create a new asset that did not previously exist, or works that upgrade or improve an existing asset beyond its existing capacity. They may result from growth, social or environmental needs. The following key capital works have been identified for the next 10 years. Fig 6.5 Summary of Scheduled Capital Works for Property Capital/New Works Timeframe Estimated Cost Library upgrades including carpeting conditioning, entrance upgrade, storage area and meeting room 2017/18 $41,000 Community Centre Learners Pool $1,800,000 Life Cycle Management Plan 32

33 6.6 DISPOSAL PLAN There are no assets known to require disposal in the next 10 years. Wairoa District Council The population decline and changes in demographics should be monitored in terms of assessing the need to dispose of Council property and facilities. 6.7 IMPROVEMENT PLAN FOR THIS SECTION The trend for decision making is moving towards introducing the principles of the Treasury NIU Better Business Case BBC approach which asks five basic questions. 1. Is there a compelling case for change? 2. Does the preferred investment option optimise value for money? 3. Is the proposed deal commercially viable? 4. Is the spending proposal affordable? 5. How can the proposal be delivered successfully? As such the improvements to the lifecycle management section are: undertake condition rating and use with valuation to update asset registers and better inform renewals planning consider the principles of the Treasury NIU Better Business Case BBC approach in future decision making. Timeframes and resources for implementation of these improvements are detailed in Section 8 of the improvement plan for the overall AMP. 6.8 ASSET MANAGEMENT LEVEL This section is achieving core asset management: formal decision making processes are in place e.g. cost-benefit analysis for major projects and programmes contracts are in place or tendered as required for external service provision core functions are defined demand management is considered emergency response is considered compliance with regulations is considered maintenance records are kept fault monitoring is in place through maintenance contract and CSR system maintenance objectives are in place capital works - projects based on range of sources such as staff judgement and risk prioritisation next three years are fully scoped and estimated for operations, maintenance, renewals and capital works. Life Cycle Management Plan 33

34 7 FINANCIAL SUMMARY Details on historic costs and future projections are included as Appendix HISTORICAL FINANCIAL DATA Table 7.1: Property Services Historical Annual Expenditure Ops and Maintenance Community Centre $12,693 $435,919 $421,536 Ops and Maintenance Other property* $112,439 $140,021 $141,886 Renewals and CapEx - $73,074 $156,250 Total Cost $125,132 $649,014 $719,672 Revenue** -$113,452 -$113,377 -$204,421 Net Cost $11,680 $535,637 $515,251 Note: The figures given are taken from the relevant Annual Report. * Other property includes corporate property, staff & pensioner housing, campgrounds, commercial property and the library. It excludes forestry property owned by Council. ** Revenue excludes that revenue from forestry activities. The increase in costs over the last two years reflects Council s new responsibility for the community centre. 7.2 FINANCIAL PROJECTIONS General Current Council policy is to continue to fund renewals on an as-needed (reactive maintenance and renewals) basis with no increases in expenditure, until further supporting data is available to demonstrate the required additional expenditure. Based on current information, there is no indication that increased overall funding is required at this time. As mentioned previously, maintenance expenditure is regarded as being low and this may affect the level of renewal expenditure in the future. The 10-year financial plan is included in the appendices with the financial projection for corporate property summarised in Section below. This shows annual expenditure to be relatively constant over the 10- year period for operations and maintenance with peaks for the proposed remedial and extension works for Council offices Key Assumptions Made in Financial Forecasts The following key assumptions have been made when developing the financial forecasts. Estimated inflation rates have not been included in the financial data. Costs are based on current day rates. Growth as predicted by Council, is based upon Census 2006 findings. Renewals and capital development assumptions have been made based on the best information available at this time and this may change as knowledge of the assets improves. Maintenance is funded from uniform annual charges and asset renewals is funded from depreciation. Financial Summary 34

35 The condition of some of the assets is not well documented. Visual assessments and local knowledge has been used to date. Financial Summary 35

36 Year Forecast Summary The projected expenditure for the next 10 years for the property activity is outlined in the table below. Table 7.2: 10-Year Expenditure Forecast Summary 2015/ / / / / / / / / /25 Ops/Maint 950, ,804 1,026,305 1,026,348 1,026,090 1,036,712 1,047,692 1,056,069 1,079,240 1,082,882 Renewals 103,000 52,736 51,430 78, , , ,558 42, , ,609 CapEx 1,000, ,000 41, Sub-Total Costs 2,053,014 1,816,540 1,118,735 1,104,961 1,185,504 1,611,981 1,234,250 1,098,449 1,179,306 1,246,491 Income -1,274, , , , , , , , , ,904 TOTAL 778,624 1,531, , , ,164 1,300, , , , ,587 Notes: Operations/Maintenance includes: Renewals includes: CapEx includes: Income includes: routine expenditure on maintaining the assets expenditure on the renewal of an existing asset to the same service standard as existed. (This does not account for residual value of the asset that was replaced) expenditure on creation of new asset or works that upgrade or improve an existing asset beyond its existing capacity. (This does not account for residual value of the asset that was replaced) rent and funding (community centre) Financial Summary 36

37 Figure 7.2: 10-Year Expenditure Forecast Summary Property Projected Expenditure Property $2,000,000 $1,500,000 $1,000,000 $500,000 $- -$500, / / / / / / / / / /25 -$1,000,000 -$1,500,000 Ops/Maint Renewals CapEx Income TOTAL Discussion Operations and Maintenance As shown below, the operations/maintenance cost for the community centre (including the pool) exceeds the total cost of all other property assets. Asset Ops / Maint Cost Corporate $ 2,103, Staff Housing $ 135, Camping Grounds $ 179, Commercial $ 27, Info Centre $ 224, Land, farm, forestry $ 154, Pensioner Housing $ 861, Halls $ 269, Community Centre $ 6,372, $ 10,327, Financial Summary 37

38 P r o p e r t y - T o t a l O p e r a t i o n a l a n d M a i n t e n a n c e C o s t S p l i t Corporate Staff Housing Camping Grounds Commercial Info Centre Land, farm, forestry Pensioner Housing Halls Comm Centre $135, $6,372, $2,103, $179, $27, $224, $154, $861, $269, Overall annual expenditure on the operations and maintenance of property assets remains relatively consistent over the next 10 years as shown below. Property - Ops and Maintenance Split by Year ,200,000 1,000, , , , , / / / / / / / / / /25 Corporate Staff Housing Camping Grounds Commercial Info Centre Land, farm, forestry Pensioner Housing Halls Comm Centre Renewals Renewals are generally limited to exterior painting of pensioner housing and the Information Centre together with building and pool renewals at the community centre. Financial Summary 38