1 Wakefield Regional Council INFRASTRUCTURE AND ASSET MANAGEMENT PLAN for Buildings & Structures Adopted 26 November 2008, Minute 105
2 Document Control Document ID: 59_04_070905_lgasa_iamp template v11 Rev No Date Revision Details Author Reviewer Approver Copyright 2007 All rights reserved. This Infrastructure and Asset Management Plan template was prepared for the Local Government Association of South Australia by the Institute of Public Works Engineering Australia, (IPWEA), Jeff Roorda & Associates (JRA) and Skilmar Systems for the use of South Australian councils only under the LGA s Sustainable Asset Management in SA Program.
3 TABLE OF CONTENTS ABBREVIATIONS... i GLOSSARY... ii 1. EXECUTIVE SUMMARY... 1 What Council Provides... 1 What does it Cost?... 1 Plans for the Future... 1 Measuring our Performance INTRODUCTION Background Goals and Objectives of Asset Management Plan Framework Core and Advanced Asset Management Core and Advanced Asset Management LEVELS OF SERVICE Customer Research and Expectations Legislative Requirements Current Levels of Service Desired Levels of Service FUTURE DEMAND Demand Forecast Changes in Technology Demand Management LIFECYCLE MANAGEMENT PLAN Background Data Physical parameters Asset capacity and performance Asset condition Asset valuations Risk Management Plan Routine Maintenance Plan Maintenance plan Standards and specifications Summary of future maintenance expenditures Renewal/Replacement Plan Renewal plan Renewal standards Summary of future renewal expenditure Creation/Acquisition/Upgrade Plan Selection criteria Standards and specifications Disposal Plan FINANCIAL SUMMARY Financial Statements and Projections Sustainability of service delivery Funding Strategy Valuation Forecasts Key Assumptions made in Financial Forecasts ASSET MANAGEMENT PRACTICES Accounting/Financial Systems Asset Management Systems... 23
4 7.3 Information Flow Requirements and Processes Standards and Guidelines PLAN IMPROVEMENT AND MONITORING Performance Measures Improvement Plan Monitoring and Review Procedures REFERENCES APPENDICES Appendix A Projected 20 year Capital Renewal Works Program Appendix B Planned Upgrade/Exp/New 20 year Capital Works Program... 27
5 - i - ABBREVIATIONS AAAC ARI Average annual asset consumption Average recurrence interval BOD Biochemical (biological) oxygen demand CRC CWMS DA DoH EF IAMP IRMP MMS PCI RV SS vph Current replacement cost Community wastewater management systems Depreciable amount Department of Health Earthworks/formation Infrastructure and asset management plan Infrastructure risk management plan Maintenance management system Pavement condition index Residual value Suspended solids Vehicles per hour
6 - ii - GLOSSARY Annual service cost (ASC) An estimate of the cost that would be tendered, per annum, if tenders were called for the supply of a service to a performance specification for a fixed term. The Annual Service Cost includes operating, maintenance, depreciation, finance/ opportunity and disposal costs, less revenue. Asset class Grouping of assets of a similar nature and use in an entity's operations (AASB ). Asset condition assessment The process of continuous or periodic inspection, assessment, measurement and interpretation of the resultant data to indicate the condition of a specific asset so as to determine the need for some preventative or remedial action. Asset management The combination of management, financial, economic, engineering and other practices applied to physical assets with the objective of providing the required level of service in the most cost effective manner. Assets Future economic benefits controlled by the entity as a result of past transactions or other past events (AAS27.12). Property, plant and equipment including infrastructure and other assets (such as furniture and fittings) with benefits expected to last more than 12 month. Average annual asset consumption (AAAC)* The amount of a local government s asset base consumed during a year. This may be calculated by dividing the Depreciable Amount (DA) by the Useful Life and totalled for each and every asset OR by dividing the Fair Value (Depreciated Replacement Cost) by the Remaining Life and totalled for each and every asset in an asset category or class. Brownfield asset values Asset (re)valuation values based on the cost to replace the asset including demolition and restoration costs. Capital expansion expenditure Expenditure that extends an existing asset, at the same standard as is currently enjoyed by residents, to a new group of users. It is discretional expenditure, which increases future operating, and maintenance costs, because it increases council s asset base, but may be associated with additional revenue from the new user group, eg. extending a drainage or road network, the provision of an oval or park in a new suburb for new residents. Capital expenditure Relatively large (material) expenditure, which has benefits, expected to last for more than 12 months. Capital expenditure includes renewal, expansion and upgrade. Where capital projects involve a combination of renewal, expansion and/or upgrade expenditures, the total project cost needs to be allocated accordingly. Capital funding Funding to pay for capital expenditure. Capital grants Monies received generally tied to the specific projects for which they are granted, which are often upgrade and/or expansion or new investment proposals. Capital investment expenditure See capital expenditure definition Capital new expenditure Expenditure which creates a new asset providing a new service to the community that did not exist beforehand. As it increases service potential it may impact revenue and will increase future operating and maintenance expenditure. Capital renewal expenditure Expenditure on an existing asset, which returns the service potential or the life of the asset up to that which it had originally. It is periodically required expenditure, relatively large (material) in value compared with the value of the components or sub-components of the asset being renewed. As it reinstates existing service potential, it has no impact on revenue, but may reduce future operating and maintenance expenditure if completed at the optimum time, eg. resurfacing or resheeting a material part of a road network, replacing a material section of a drainage network with pipes of the same capacity, resurfacing an oval. Where capital projects involve a combination of renewal, expansion and/or upgrade expenditures, the
7 - ii - total project cost needs to be allocated accordingly. Capital upgrade expenditure Expenditure, which enhances an existing asset to provide a higher level of service or expenditure that will increase the life of the asset beyond that which it had originally. Upgrade expenditure is discretional and often does not result in additional revenue unless direct user charges apply. It will increase operating and maintenance expenditure in the future because of the increase in the council s asset base, eg. widening the sealed area of an existing road, replacing drainage pipes with pipes of a greater capacity, enlarging a grandstand at a sporting facility. Where capital projects involve a combination of renewal, expansion and/or upgrade expenditures, the total project cost needs to be allocated accordingly. Carrying amount The amount at which an asset is recognised after deducting any accumulated depreciation / amortisation and accumulated impairment losses thereon. Class of assets See asset class definition Component An individual part of an asset which contributes to the composition of the whole and can be separated from or attached to an asset or a system. Cost of an asset The amount of cash or cash equivalents paid or the fair value of the consideration given to acquire an asset at the time of its acquisition or construction, plus any costs necessary to place the asset into service. This includes one-off design and project management costs. Current replacement cost (CRC) The cost the entity would incur to acquire the asset on the reporting date. The cost is measured by reference to the lowest cost at which the gross future economic benefits could be obtained in the normal course of business or the minimum it would cost, to replace the existing asset with a technologically modern equivalent new asset (not a second hand one) with the same economic benefits (gross service potential) allowing for any differences in the quantity and quality of output and in operating costs. Current replacement cost As New (CRC) The current cost of replacing the original service potential of an existing asset, with a similar modern equivalent asset, i.e. the total cost of replacing an existing asset with an as NEW or similar asset expressed in current dollar values. Cyclic Maintenance** Replacement of higher value components/subcomponents of assets that is undertaken on a regular cycle including repainting, building roof replacement, cycle, replacement of air conditioning equipment, etc. This work generally falls below the capital/ maintenance threshold and needs to be identified in a specific maintenance budget allocation. Depreciable amount The cost of an asset, or other amount substituted for its cost, less its residual value (AASB 116.6) Depreciated replacement cost (DRC) The current replacement cost (CRC) of an asset less, where applicable, accumulated depreciation calculated on the basis of such cost to reflect the already consumed or expired future economic benefits of the asset Depreciation / amortisation The systematic allocation of the depreciable amount (service potential) of an asset over its useful life. Economic life See useful life definition. Expenditure The spending of money on goods and services. Expenditure includes recurrent and capital. Fair value The amount for which an asset could be exchanged, or a liability settled, between knowledgeable, willing parties, in an arms length transaction. Greenfield asset values Asset (re)valuation values based on the cost to initially acquire the asset. Heritage asset An asset with historic, artistic, scientific, technological, geographical or environmental qualities that is held and maintained principally for its contribution to knowledge and culture and this purpose is central to the objectives of the entity holding it. Impairment Loss
8 - iii - The amount by which the carrying amount of an asset exceeds its recoverable amount. Infrastructure assets Physical assets of the entity or of another entity that contribute to meeting the public's need for access to major economic and social facilities and services, eg. roads, drainage, footpaths and cycleways. These are typically large, interconnected networks or portfolios of composite assets The components of these assets may be separately maintained, renewed or replaced individually so that the required level and standard of service from the network of assets is continuously sustained. Generally the components and hence the assets have long lives. They are fixed in place and are often have no market value. Investment property Property held to earn rentals or for capital appreciation or both, rather than for: (a) use in the production or supply of goods or services or for administrative purposes; or (b) sale in the ordinary course of business (AASB 140.5) Level of service The defined service quality for a particular service against which service performance may be measured. Service levels usually relate to quality, quantity, reliability, responsiveness, environmental, acceptability and cost). Life Cycle Cost The life cycle cost (LCC) is average cost to provide the service over the longest asset life cycle. It comprises annual maintenance and asset consumption expense, represented by depreciation expense. The Life Cycle Cost does not indicate the funds required to provide the service in a particular year. Life Cycle Expenditure The Life Cycle Expenditure (LCE) is the actual or planned annual maintenance and capital renewal expenditure incurred in providing the service in a particular year. Life Cycle Expenditure may be compared to Life Cycle Expenditure to give an initial indicator of life cycle sustainability. Loans / borrowings Loans result in funds being received which are then repaid over a period of time with interest (an additional cost). Their primary benefit is in spreading the burden of capital expenditure over time. Although loans enable works to be completed sooner, they are only ultimately cost effective where the capital works funded (generally renewals) result in operating and maintenance cost savings, which are greater than the cost of the loan (interest and charges). Maintenance and renewal gap Difference between estimated budgets and projected expenditures for maintenance and renewal of assets, totalled over a defined time (eg 5, 10 and 15 years). Maintenance and renewal sustainability index Ratio of estimated budget to projected expenditure for maintenance and renewal of assets over a defined time (eg 5, 10 and 15 years). Maintenance expenditure Recurrent expenditure, which is periodically or regularly required as part of the anticipated schedule of works required to ensure that the asset achieves its useful life and provides the required level of service. It is expenditure, which was anticipated in determining the asset s useful life. Materiality An item is material is its omission or misstatement could influence the economic decisions of users taken on the basis of the financial report. Materiality depends on the size and nature of the omission or misstatement judged in the surrounding circumstances. Modern equivalent asset. A structure similar to an existing structure and having the equivalent productive capacity, which could be built using modern materials, techniques and design. Replacement cost is the basis used to estimate the cost of constructing a modern equivalent asset. Non-revenue generating investments Investments for the provision of goods and services to sustain or improve services to the community that are not expected to generate any savings or revenue to the Council, eg. parks and playgrounds, footpaths, roads and bridges, libraries, etc. Operating expenditure Recurrent expenditure, which is continuously required excluding maintenance and depreciation, eg power, fuel, staff, plant equipment, on-costs and overheads. Pavement management system A systematic process for measuring and predicting the condition of road pavements and
9 - iv - wearing surfaces over time and recommending corrective actions. Planned Maintenance Repair work that is identified and managed through a maintenance management system (MMS). MMS activities include inspection, assessing the condition against failure/breakdown criteria/experience, prioritising scheduling, actioning the work and reporting what was done to develop a maintenance history and improve maintenance and service delivery performance. PMS Score A measure of condition of a road segment determined from a Pavement Management System. Rate of annual asset consumption A measure of average annual consumption of assets (AAAC) expressed as a percentage of the depreciable amount (AAAC/DA). Depreciation may be used for AAAC. Rate of annual asset renewal A measure of the rate at which assets are being renewed per annum expressed as a percentage of depreciable amount (capital renewal expenditure/da). Rate of annual asset upgrade* A measure of the rate at which assets are being upgraded and expanded per annum expressed as a percentage of depreciable amount (capital upgrade/expansion expenditure/da). Reactive maintenance Unplanned repair work that carried out in response to service requests and management/supervisory directions. Recoverable amount The higher of an asset's fair value less costs to sell and its value in use. Recurrent expenditure Relatively small (immaterial) expenditure or that which has benefits expected to last less than 12 months. Recurrent expenditure includes operating and maintenance expenditure. The time remaining until an asset ceases to provide the required service level or economic usefulness. Age plus remaining life is economic life. Renewal See capital renewal expenditure definition above. Residual value The net amount which an entity expects to obtain for an asset at the end of its useful life after deducting the expected costs of disposal. Revenue generating investments Investments for the provision of goods and services to sustain or improve services to the community that are expected to generate some savings or revenue to offset operating costs, eg public halls and theatres, childcare centres, sporting and recreation facilities, tourist information centres, etc. Risk management The application of a formal process to the range of possible values relating to key factors associated with a risk in order to determine the resultant ranges of outcomes and their probability of occurrence. Section or segment A self-contained part or piece of an infrastructure asset. Service potential The capacity to provide goods and services in accordance with the entity's objectives, whether those objectives are the generation of net cash inflows or the provision of goods and services of a particular volume and quantity to the beneficiaries thereof. Service potential remaining A measure of the remaining life of assets expressed as a percentage of economic life. It is also a measure of the percentage of the asset s potential to provide services that is still available for use in providing services (DRC/DA). Recurrent funding Funding to pay for recurrent expenditure. Rehabilitation See capital renewal expenditure definition above. Remaining life
10 - v - Strategic Management Plan (SA Documents Council objectives for a specified period (3-5 yrs), the principle activities to achieve the objectives, the means by which that will be carried out, estimated income and expenditure, measures to assess performance and how rating policy relates to the Council s objectives and activities. Sub-component Smaller individual parts that make up a component part. Useful life Either: (a) the period over which an asset is expected to be available for use by an entity, or (b) the number of production or similar units expected to be obtained from the asset by the entity. It is estimated or expected time between placing the asset into service and removing it from service, or the estimated period of time over which the future economic benefits embodied in a depreciable asset, are expected to be consumed by the council. It is the same as the economic life. Value in Use The present value of estimated future cash flows expected to arise from the continuing use of an asset and from its disposal at the end of its useful life. It is deemed to be depreciated replacement cost (DRC) for those assets whose future economic benefits are not primarily dependent on the asset's ability to generate new cash flows, where if deprived of the asset its future economic benefits would be replaced. Source: DVC 2006, Glossary
11 EXECUTIVE SUMMARY What Council Provides Wakefield Regional Council is custodian of an extensive range of community buildings and structures that it provides to facilitate delivery of services to the community. Some of these assets are provided in partnership with the community organisations that occupy them. This plan contains the following types of buildings and structures: -. Caravan parks (19), dwellings (3), emergency services (9), halls and institutes (10), health (3), monuments (4), museums and galleries (5), office / civic centre (1), public conveniences (9), sport and recreation (142), works depots and sheds (15) and other (including buildings and structures with a replacement value of less than $20,000) (252). It should be noted that some of the buildings and structures included in this plan have been built on Council owned or controlled land by community organisations, e.g. sporting facilities, or by other levels of government, e.g. emergency services buildings. In these circumstances, Council may not intend to renew or replace these buildings when they reach the end of their effective lifecycle, although the occupier may intend to renew these assets. Council therefore intends to further investigate such cases to ascertain whether these buildings and structures should be included in future revisions of this infrastructure and asset management plan. Their exclusion would result in significant amendments to the financial figures and ratios contained in the plan. What does it Cost? There are two key indicators of cost to provide the building and structures service. The life cycle cost being the average cost over the life cycle of the asset and the total maintenance and capital renewal expenditure required to deliver existing service levels in the next 10 years covered by Council s long term financial plan. The life cycle cost to provide the buildings and structures service is estimated at $857,000 per annum. Council s planned life cycle expenditure for year 1 of the infrastructure and asset management plan is $301,000, which gives a life cycle sustainability index of The total maintenance and capital renewal expenditure required to provide the buildings and structures service the in the next 10 years is estimated at $5,476 million. This is an average of $547,600 per annum. Council s maintenance and capital renewal expenditure for year 1 of the infrastructure and asset management plan of $301,000 giving a 10 year sustainability index of Plans for the Future This document is a first generation plan and as such there are a number of areas that contain limited information. However, it is intended that these shortcomings will be addressed in the next review identified of the plan. Council plans to operate and maintain the buildings and structures network to achieve the following strategic objectives. 1. Ensure buildings and structures are maintained at a safe and functional standard as set out in this infrastructure and asset management plan. 2. Continue to maintain operational buildings, e.g. civic centre, works depots, etc., to a standard that facilitates effective service delivery to our community. 3. Continue to maintain public conveniences in good order and to a high state of cleanliness. 4. Continue to support the community committees that effectively manage and maintain our community halls. 5. Continue to support the community organisations that effectively manage and maintain our recreation and sporting facilities. Measuring our Performance Quality Buildings and structures assets will be maintained in a reasonably usable condition. Defects found or reported that are outside our service standard will be repaired. See our maintenance response service levels for details of defect prioritisation and response time. Function Our intent is that an appropriate buildings and structures network is maintained in partnership with other levels of government and community
12 - 2 - stakeholders to develop performance measures and targets that will provide objectives for building and structure asset service criteria, that must consider not only community/customer expectation; strategic goals; and legislative requirements, but technical standards and Council's ability to allocate sufficient resources to meet measures and targets. Buildings and structures assets will be maintained at a safe level and associated signage and equipment are provided as needed to ensure public safety. We need to ensure the following key functional objectives are met: Levels of Service Review current levels of service and assess development requirements. Demand forecast Examine factors and trends influencing demand for an asset and the impact on its management and utilisation. Lifecycle management plan A strategy for the management of the asset from planning/creation, to disposal including maintenance and renewal requirements. Asset Management Practices This details information systems and processes utilised in the decision on management of assets. Plan improvement and monitoring Details performance measures for the plan; the improvement program; and monitoring and review procedures. Safety We inspect buildings and structures while undertaking other inspections and works operations. Defects are recorded and reported to supervisors to prioritise and repair in accordance with our field observation by staff and publics requests. These identified works priorities are scheduled to ensure they are safe for building and structure users. The Next Steps This actions resulting from this asset management plan are detailed in section 8.2 on page 25 of this plan: Financial summary. Details financial commitments to facilitate lifecycle management to the existing levels of service.
13 INTRODUCTION 2.1 Background The Infrastructure and Asset Management Plan for Buildings and Structures has been prepared to demonstrate responsive management of assets (and services provided from assets), compliance with regulatory requirements, and to communicate funding required to provide the required levels of service. The infrastructure and asset management plan should be read with the following associated planning documents: Wakefield Regional Council Strategic Management Plan Wakefield Regional Council Long Term Financial Plan Asset Management Policy This infrastructure and asset management plan covers the following infrastructure assets: Table 2.1. Assets covered by this Plan Asset category Buildings & structures with replacement value of $20,000 or greater: Number of buildings & structures Replacement Value Caravan Parks 19 $1.656 million Dwellings 3 $346,000 Emergency Services 9 $1.026 million Halls & Institutes 10 $8.494 million Health 3 $493,000 Monuments 4 $123,000 Museums & Galleries 5 $905,000 Office 1 $2.107 million Other 16 $1.396 million Public Conveniences 9 $337,000 Sport & Recreation 142 $ million Works Depots & Sheds 15 $691,000 Sub-Total 236 $ million 3
14 - 3 - Asset category Number of buildings & structures Replacement Value Sub-Total (brought forward) 236 $ million Buildings & structures with replacement value of less than $20,000: 608 $2.761 million TOTAL 844 $ million It should be noted that some of the buildings and structures included in this plan have been built on Council owned or controlled land by community organisations, e.g. sporting facilities, or by other levels of government, e.g. emergency services buildings. In these circumstances, Council may not intend to renew or replace these buildings when they reach the end of their effective lifecycle, although the occupier may intend to renew these assets. Council therefore intends to further investigate such cases to ascertain whether these buildings and structures should be included in future revisions of this infrastructure and asset management plan. Their exclusion would result in significant amendments to the financial figures and ratios contained in the plan. Key stakeholders in the preparation and implementation of this infrastructure and asset management plan are: Council Members Community Organisations Council Management and Staff Community Approval of the Infrastructure & Asset Management Plan and custodians of the community assets. Custodians of some community buildings and structures they occupy and maintenance of those assets. Preparation and implementation of Infrastructure & Asset Management Plan and maintenance of the buildings and structures. Service level expectations. 2.2 Goals and Objectives of Asset Management The Council exists to provide services to its community. Some of these services are provided by the use of infrastructure assets. Council has acquired infrastructure assets by purchase, by contract, construction by council staff and by donation of assets constructed by developers and others to meet increased levels of service. Council s goal in managing infrastructure assets is to meet the required level of service in the most cost effective manner for present and future consumers. The key elements of infrastructure asset management are: Taking a life cycle approach, Developing cost-effective management strategies for the long term, Providing a defined level of service and monitoring performance, Understanding and meeting the demands of growth through demand management and infrastructure investment, Managing risks associated with asset failures,
15 - 4 - Sustainable use of physical resources, Continuous improvement in asset management practices. 1 This infrastructure and asset management plan is prepared under the direction of Council s vision, mission, goals and objectives. Council s vision is: To enhance community well-being through strong and progressive leadership in the provision of quality services and the development of economic opportunities and contained and sustained growth of the region Council s mission is: To provide a range of effective services which meet the needs of our community in a fair and equitable manner and within available resources Relevant Council goals and objectives and how these are addressed in this infrastructure and asset management plan are: Table 2.2. Council Goals and how these are addressed in this Plan Goal Objective How Goal and Objectives are addressed in IAMP 2.1 Effective utilisation, ongoing maintenance and improvement of public infrastructure (roads, buildings and facilities) 2.6 Develop a comprehensive Asset Management Plan Addressed in following sections of IAMP; 4.1 Demand Forecast 4.3 Demand Management plan Physical parameters Known service deficiencies Standards and specifications Renewal ranking priority Renewal standards New assets ranking priority 7.1 Financial management systems 7.2 Asset Management systems 7.3 Standards and guidelines including Council policies The development of this plan addresses this objective 2.3 Plan Framework Key elements of the plan are: Levels of service specifies the services and levels of service to be provided by council. Future demand how this will impact on future service delivery and how this is to be met. Life cycle management how Council will manage its existing and future assets to provide the required services Financial summary what funds are required to provide the required services. Asset management practices how Council manages its assets. Monitoring how the plan will be monitored to ensure it is meeting Council s objectives. Asset management improvement plan how the plan will be improved.
16 - 5 - A flow chart for preparing an infrastructure and asset management plan is shown below. Flow Chart for preparing an Asset Management Plan Source: IIMM Fig 1.5.1, p 1.11 CORPORATE PLANNING Confirm strategic objectives and establish AM policies, strategies & goals. Define responsibilities & ownership. Decide core or advanced AM Pan. Gain organisation commitment. REVIEW/COLLATE ASSET INFORMATION Existing information sources Identify & describe assets. Data collection Condition assessments Performance monitoring Valuation Data AM PLAN REVIEW AND AUDIT INFORMATION MANAGEMENT, and DATA IMPROVEMENT ESTABLISH LEVELS OF SERVICE Establish strategic linkages Define & adopt statements Establish measures & targets Consultation LIFECYCLE MANAGEMENT STRATEGIES Develop lifecycle strategies Describe service delivery strategy Risk management strategies Demand forecasting and management Optimised decision making (renewals, new works, disposals) Optimise maintenance strategies DEFINE SCOPE & STRUCTURE OF PLAN IMPLEMENT IMPROVEMENT STRATEGY FINANCIAL FORECASTS Lifecycle analysis Financial forecast summary Valuation Depreciation Funding IMPROVEMENT PLAN Assess current/desired practices Develop improvement plan IS THE PLAN AFFORDABLE? 2.4 Core and Advanced Asset Management ITERATION Reconsider service statements Options for funding Consult with Council Consult with Community ANNUAL PLAN / This infrastructure and asset management plan is prepared as a core asset manaevel. BUSINESS PLAN Future revisions of this infrastructure and asset management plan will move towards advanceels.
17 Core and Advanced Asset Management This infrastructure and asset management plan is prepared as a core asset management plan in accordance with the International Infrastructure Management Manual. It is prepared to meet minimum legislative and organisational requirements for sustainable service delivery and long term financial planning and reporting. Core asset management is a top down approach where analysis is applied at the system or network level. Future revisions of this infrastructure and asset management (CWMS) plan may move towards an advanced asset management using a bottom up approach for gathering asset information for individual assets to support the optimisation of activities and programs to meet agreed service levels. 3. LEVELS OF SERVICE 3.1 Customer Research and Expectations Council has not carried out any research on customer expectations. This will be investigated for future updates of the Infrastructure and Asset Management Plan for Buildings and Structures. 3.2 Legislative Requirements Council has to meet many legislative requirements including Australian and State legislation and State regulations. These include: Table 3.2. Legislative Requirements Legislation Local Government Act 1999 Occupational Health Safety and Welfare Act and Regulations Building Code of Australia Disability Discrimination Act Requirement Sets out role, purpose, responsibilities and powers of local governments including the preparation of a long term financial plan supported by infrastructure and asset management plans for sustainable service delivery. Sets out roles and responsibilities to secure the health, safety and welfare of persons in the workplace. To achieve and maintain acceptable standards of structural sufficiency, safety (including safety from fire), health and amenity in relation to buildings and structures. To eliminate, as far as possible, discrimination against persons on the grounds of disability and to promote recognition and acceptance within the community of the principle that persons with disabilities have the same fundamental rights as the rest of the community. 3.3 Current Levels of Service Community expectations and perception of Council's ability to provide services are impacted significantly by issues related to resource allocation, funding and the possible creation of new assets measured against existing asset funding gap. Expenditure on building infrastructure has been low in past years, but asset condition data and future community surveys may indicate what financial resources are required to maintain infrastructure to a level of service that the community expects.
18 - 7 - The issue of deterioration of the assets resulting from inadequate allocation of resources to the infrastructure maintenance must be considered against the level of revenue Council is able to raise from rates, charges and grants. Limited revenue growth and rising costs to meet increasing maintenance and service charges could result in an inability to bridge the funding gap between revenue and costs. This could be reflected in a further deterioration of assets and infrastructure as well as a reduction in other services and service levels. The development of performance measures and targets for building assets service criteria is required, and must consider not only community expectations, strategic goals, and legislative requirements, but also technical standards and Council's ability to allocate sufficient resources to meet measures and targets. Community Levels of Service relate to how the community receives the service in terms of safety, quality, quantity, reliability, responsiveness, cost/efficiency and legislative compliance. Supporting the community service levels are operational or technical measures of performance developed to ensure that the minimum community levels of service are met. These technical measures relate to service criteria such as condition, accessibility, cost effectiveness, safety and amenity. Service levels can be documented in table format as shown below, but performance targets have not yet been agreed for any of the building assets. Until these are agreed then performance against target cannot be measured. This will be completed in future updates of this plan. Table 3.3. Current Service Levels Key Level of Service Performance Measure COMMUNITY LEVELS OF SERVICE Quality Provide quality building facilities Function Safety Provide building facilities that meet user requirements Provide safe suitable building facilities TECHNICAL LEVELS OF SERVICE Condition Provide appropriate building facilities to meet user requirements Accessibility Cost effectiveness Safety Provide building facilities that are accessible to all users Provide building facilities services in cost effective manner Provide safe suitable building facilities Performance Measure Process Customer service requests / user satisfaction surveys Customer service requests relating to functionality Number of injury accidents Building condition surveys / planned & reactive maintenance Compliance with DDA requirements Annual facilities maintenance costs Insurance claims history Performance Target Not yet agreed Not yet agreed Not yet agreed Not yet agreed Not yet agreed Not yet agreed Not yet agreed Current Performance Not recorded Not recorded Not recorded Not recorded Not recorded Not recorded Not recorded
19 Desired Levels of Service At present, indications of desired levels of service are obtained from various sources including residents feedback to Council Members and staff, service requests and correspondence. Council has yet to quantify desired levels of service. This will be done in future revisions of this infrastructure and asset management plan.
20 FUTURE DEMAND 4.1 Demand Forecast Factors affecting demand include population change, changes in demographics, etc. Demand factor trends and impacts on service delivery are summarised in Table 4.1. Table 4.1. Demand Factors, Projections and Impact on Services Demand factor Present position Projection Impact on services Population 6, % Nil Demographics Median age 41.4 Continue to remain above state average Nil 4.2 Changes in Technology Technology changes are forecast to have little effect on the delivery of services covered by this plan. 4.3 Demand Management Demand for new services will be managed through a combination of managing existing assets, upgrading of existing assets and providing new assets to meet demand and demand management. Demand management practices include non-asset solutions, insuring against risks and managing failures. Rationalisation of existing building assets, including disposal of some buildings, will be considered should demand for some services decrease. Further opportunities, including a demand management plan, will be developed in future revisions of this infrastructure and asset management plan. 4.4 New Assets from Growth At present no new assets have been identified in this plan as being required to meet growth. However, if future revisions of this plan identify new building assets are required to meet growth, acquiring new assets will commit council to fund ongoing operations and maintenance costs for the period that the service provided from the assets is required. These future costs will be identified and considered in developing forecasts of future operating and maintenance costs.
21 LIFECYCLE MANAGEMENT PLAN The lifecycle management plan details how Council plans to manage and operate the assets at the agreed levels of service (defined in section 3) while optimising life cycle costs. Initial capital cost constitutes a significant up-front cost and often dominate the decision-making process when acquiring new assets. However, ongoing recurrent expenditures (including depreciation) usually represent a high portion of the total life-cycle costs of many assets. It is therefore important that they be considered in the financial analysis undertaken to evaluate asset investment options. The way an asset is acquired or created may have a great impact on its future operation, maintenance, or even disposal. There may also be substantial costs associated with disposal at the end of an asset s service life (e.g. cleanup or demolition costs). 5.1 Background Data Physical parameters The assets covered by this infrastructure and asset management plan are shown in Table 2.1 on pages 2 and 3 of the document. The age profile of Council s buildings and structures assets is shown below. Fig 2. Asset Age Profile Asset capacity and performance Council s services are generally provided to meet design standards where these are available. Locations where deficiencies in service performance are known are detailed in Table
22 Table Known Service Performance Deficiencies Location Public conveniences at Blyth, Hamley Bridge and Snowtown Service Deficiency Do not meet requirements for persons with disability Asset condition Maloney Field Services valued council s buildings and structures assets at 30th June 2007 and a condition rating was determined for each building or structure. The resultant condition profile of Council s buildings and structures is shown below. Fig 3. Asset Condition Profile Wakefield Regional Council - Condition Profile (Buildings & Structures) $10,000,000 $7,500,000 Replacement Value $5,000,000 $2,500,000 $ Condition Rating Condition is measured using a 1 5 rating system. 2 Rating Description of Condition 1 Excellent condition: Only planned maintenance required. 2 Very good: Minor maintenance required plus planned maintenance. 3 Good: Significant maintenance required. 4 Average: Significant renewal/upgrade required. 5 Poor: Unserviceable.
23 Asset valuations The value of assets covered by this infrastructure and asset management plan as at 30 th June 2008 is summarised below. Assets were last revalued at 30 th June 2007 and are valued at greenfield rates. Current Replacement Cost $33,388,000 Depreciable Amount $19,499,000 Depreciated Replacement Cost $13,889,000 Annual Depreciation Expense $656,572 Council s sustainability reporting reports the rate of annual asset consumption and compares this to asset renewal and asset upgrade and expansion. Asset Consumption 1.96% per annum Asset renewal 0.47% (2008/09) Annual Upgrade/expansion 0.07% (2008/09) 5.2 Risk Management Plan A comprehensive assessment of risks 3 associated with service delivery from buildings and structures assets has not been completed at the time of preparation of this infrastructure and assets management plan. The risk assessment process, when completed, will identify credible risks, the likelihood of the risk event occurring, the consequences should the event occur, develops a risk rating, will evaluate the risk and develop a risk treatment plan for non-acceptable risks. However, work to date on the buildings and structures infrastructure risk management plan has identified a number of risks generic to certain categories of buildings and these are summarised in Table 5.2. Table 5.2. Risks and Treatment Plans Asset at Risk What can Happen Risk Risk Treatment Plan Rating) All buildings Destruction by fire Medium Check adequacy of insurance, install fire alarms and develop continuity plan (where appropriate) Aged buildings Structural damage High Inspect, monitor and report Aged buildings Obsolescence Medium Planned maintenance program 3
24 Routine Maintenance Plan Routine maintenance is the regular on-going work that is necessary to keep assets operating, including instances where portions of the asset fail and need immediate repair to make the asset operational again Maintenance plan Maintenance includes reactive, planned and cyclic maintenance work activities. Reactive maintenance is unplanned repair work carried out in response to service requests and management/supervisory directions. Planned maintenance is repair work that is identified and managed through a maintenance management system (MMS). MMS activities include inspection, assessing the condition against failure/breakdown experience, prioritising, scheduling, actioning the work and reporting what was done to develop a maintenance history and improve maintenance and service delivery performance. Cyclic maintenance is replacement of higher value components/sub-components of assets that is undertaken on a regular cycle including repainting, building roof replacement, etc. This work generally falls below the capital/maintenance threshold. Maintenance expenditure trends are shown in Table Table Maintenance Expenditure Trends Year Maintenance Expenditure Reactive Planned Cyclic 2006/07 (actual) $24,000 $26,000 $103, /08 (actual) $24,000 $19,000 $130, /09 (budget) $28,000 $30,000 $194,000 Planned maintenance work is therefore 13% of total maintenance expenditure while cyclic maintenance is 74% of total maintenance expenditure over the three year period. Maintenance expenditure levels are considered to be inadequate to meet required service levels. Future revision of this infrastructure and asset management plan will include linking required maintenance expenditures with required service levels. Assessment and prioritisation of reactive maintenance is undertaken by Council staff using experience and judgement Standards and specifications Maintenance work is carried out in accordance with the Building Code of Australia, including various referred Australian Services standards and specifications.
25 Summary of future maintenance expenditures Future maintenance expenditure is forecast to trend in line with the value of the asset stock as shown in Fig 4. Note that all costs are shown in current dollar values. Fig 4. Planned Maintenance Expenditure Deferred maintenance, i.e. works that are identified for maintenance and unable to be funded is to be included in the risk assessment process in the infrastructure risk management plan. Maintenance is funded from Council s operating budget and grants where available. This is further discussed in Section Renewal/Replacement Plan Renewal expenditure is major work that does not increase the asset s design capacity but restores, rehabilitates, replaces or renews an existing asset to its original service potential. Work over and above restoring an asset to original service potential is upgrade/expansion or new works expenditure Renewal plan Assets requiring renewal are identified from estimates of remaining life obtained from the asset register. Renewal proposals are inspected to verify accuracy of remaining life estimate and to develop a preliminary renewal estimate. Verified proposals are ranked by priority and available funds and scheduled in future capital programmes.
26 Renewal standards Renewal work is carried out in carried out in accordance with the Building Code of Australia, including various referred Australian Services standards and specifications Summary of future renewal expenditure Projected future renewal expenditures are forecast to increase over time as the asset stock ages. The costs are summarised in Fig 5. Note that all costs are shown in current dollar values. The projected capital renewal program is shown in Appendix B. Fig 5. Projected Capital Renewal Expenditure Deferred renewal, i.e. those assets identified for renewal and not scheduled for renewal in capital works programs are to be included in the risk assessment process in the risk management plan. Renewals are to be funded from Council s capital works program and grants where available. This is further discussed in Section 6.2.
27 Creation/Acquisition/Upgrade Plan 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. Assets may also be acquired at no cost to the Council Selection criteria New assets and upgrade/expansion of existing assets are identified from various sources such as councillor or community requests, proposals identified by strategic plans or partnerships with other organisations. New and upgrade proposals are inspected to verify need and to develop a preliminary renewal estimate. Verified proposals are then ranked by priority and available funds and scheduled in future capital programs. A creation/acquisition/upgrade plan for buildings and structures assets has not as yet been prepared but will be developed in future revisions of this infrastructure and asset management plan Standards and specifications Standards and specifications for new assets and for upgrade/expansion of existing assets are the same as those for renewal work shown in Section 5.4.2, i.e. work is carried out in carried out in accordance with the Building Code of Australia, including various referred Australian Services standards and specifications. 5.6 Disposal Plan Disposal includes any activity associated with disposal of a decommissioned asset including sale, demolition or relocation. While a disposal plan for buildings and structures has not yet been developed, some assets have been identified for possible decommissioning and disposal and are shown in Table 5.6. These assets will be further reinvestigated to determine the required levels of service and see what options are available for alternate service delivery, if any. Table 5.6 Assets Identified for Disposal Asset Reason for Disposal Timing Residential dwelling at 3 Humphrey St, Balaklava Hamley Bridge Medical Centre Property purchased for possible extension of childcare facility existing building demolished Ownership to be transferred to Hamley Bridge Hospital 2007/ /09 Balaklava CAYHS building To be demolished as part of Balaklava CFS facility upgrade project 2009/10 Former RSL building, Light St, Hamley Bridge Residential dwelling at 2 Scotland St, Balaklava To be demolished as part of Hamley Bridge CFS facility upgrade project Property purchased for future possible off street car park existing building to be demolished 2010/ /11
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