1 BUILDING & FACILITIES ASSET MANAGEMENT PLAN 2012
2 Document Control Document ID: 59_07_070909_nams.plus_amp template v11 Rev No Date Revision Details Author Reviewer Approver 1 Dec 2011 Graphs and Reports uploaded from NAMS.PLUS. LC DD, SR, TH, AL, AA, JM 2 May 2012 Service Level Performance review, text and grammar. LC & SV DD, TH, AL, AA, JM 3 Aug 2012 Updated financials from long term financial plan. Format and grammar edits. LC & SV DD, TH, AL, AA, JM 4 4 Oct 2012 Adopted by Council LC & SV DD, TH, AL, AA, JM Council Copyright 2007 All rights reserved. The Institute of Public Works Engineering Australia.
3 TABLE OF CONTENTS GLOSSARY... i 1. EXECUTIVE SUMMARY... 1 What Council Provides... 1 What does it Cost?... 1 Plans for the Future... 1 Measuring our Performance... 1 The Next Steps INTRODUCTION Background Goals and Objectives of Asset Management Plan Framework 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 Plan New Assets from Growth 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 Summary of future upgrade/new assets expenditure 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 Information Flow Requirements and Processes Standards and Guidelines PLAN IMPROVEMENT AND MONITORING Performance Measures Improvement Plan Monitoring and Review Procedures REFERENCES APPENDICES Appendix A List of buildings by Asset ID as at 30 June
4 - i - 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 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
5 - ii - 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 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.
6 - iii - 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 Cost 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 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.
7 - iv - 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. Recurrent funding Funding to pay for recurrent expenditure. Rehabilitation See capital renewal expenditure definition above. Remaining life 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. 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 Note: Items shown * modified to use DA instead of CRC Additional glossary items shown ** 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).
8 EXECUTIVE SUMMARY What Council Provides Council has responsibility for over 990 building assets across the Tablelands. The asset base has a replacement value in excess of $171 million and is grouped into the following functional categories: Commercial Community Council Aerodromes Public Amenities Recreation Residential Sewerage Waste Transfer Water Some of the buildings Council is responsible for are: 160 aged care units. 6 swimming pools 11 libraries 7 aerodromes 11 visitor information centres 3 art galleries 4 caravan parks 19 community and public halls 73 public toilets What does it Cost? There are two key indicators of cost to provide the Building & Facility asset portfolio. 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 Building & Facility infrastructure is estimated at $8,929,780 per annum. Council s planned life cycle expenditure for year 1 of the asset management plan is $5,503,000 which gives a life cycle sustainability index of To achieve sustainable service delivery, the life cycle cost expenditure needs to be equal to the life cycle cost on average over the life cycle. The life cycle sustainability index is an indicator of whether present consumers are paying for their share of the asset they consume in any particular year. The total maintenance and capital renewal expenditure required to sustain the Building & Facility asset base over the next 10 years at current service levels is estimated at $69,962,420. This is an average of $6,996,240 per annum. Council s maintenance and capital renewal expenditure for year 1 of the asset management plan is $4,026,680 giving a 10 year sustainability index of Plans for the Future Council plans to operate and maintain the Building & Facility asset portfolio to achieve the following strategic objectives. 1. Ensure the Building & Facility assets are maintained at a safe and functional standard as set out in this asset management plan. 2. Integrate future developments and initiatives with key stakeholders to achieve strategic goals. 3. Ensure levels of service are maintained at the standard set by Council. 4. Ensure building projects and programs are evaluated and prioritised based on optimisation methods that achieve a sustainable level of expenditure. 5. Ensure plans are in place to address the Disability Discrimination Act obligations. 6. Maximise the benefits of energy efficient devices so as to reduce future environment and cost burdens. 7. Optimise utilisation rates. Measuring our Performance Quality Building & Facility assets will be maintained in an acceptable condition. Defects found or reported that are outside our service standard will be repaired. Function Our intent is that the Building & Facility assets are maintained in partnership with other levels of government and stakeholders to deliver the service required. Building & Facility assets will be maintained at a safe level and associated signage and equipment be provided as needed to aid public safety. We need to ensure key functional objectives are met: Building & Facility assets are regularly inspected for condition. Intervention works are actioned in accordance with the standards presented in this Asset Management Plan. The main functional consequence of a Building & Facility asset failure is the inability for members of the community to efficiently access related services as planned. Safety Council will inspect all Building & Facilities regularly and prioritise and repair defects in accordance with our inspection schedule to ensure all risks are minimised.
9 - 2 - The Next Steps The actions resulting from this asset management plan are: Establish scenarios to match service level outcomes with available funding. Establishment of a Buildings program of works required to maintain levels of service in accordance with the scenario adopted by Council. Set and report on performance measures to monitor the agreed service levels provided under the adopted long term financial plan. Annual review of performance measures, funding as per long term financial plan, costs and reflect these changes in this Asset Management Plan. Further development and implementation of a condition monitoring program. Revision of Building utilisation rates and assess if it is fit for purpose. Refine and validate asset data to increase confidence in the data.
10 INTRODUCTION 2.1 Background Council is charged by its community and the Local Government Act, to provide a range of services. Some of these are mandatory (by legislation) and some are a result of community need and demand. Building & Facility assets facilitate the prioritisation of these services and functions by providing the infrastructure in which these services are "housed". The purpose of this asset management plan is to demonstrate the responsive management of Building & Facility assets (and the services they provide), how compliant they are with regulatory requirements, and to communicate funding requirements to provide the required levels of service. There are over 990 building assets spread over 440 distinct locations representing approximately 12% ($77M) of Council s total asset base, costing approximately $5.8M per year to operate and maintain. Building assets covered by this plan include are summarised in Table 2.1. Table 2.1. Assets covered by this Plan Asset category Nº Commercial buildings Caravan Parks and contents Shops and commercial centres Community buildings 175 Public halls Community centres Visitor Information Centres Libraries Museums Emergency Facilities Public toilets Cemetery buildings Corporate buildings 207 Administration buildings Depot facilities Aerodromes 6 Site office, hangers, fencing and gates Public Amenities 89 Toilets Recreation 298 Sports grounds and facilities Swimming pools Residential buildings 160 Aged housing units Sewerage buildings 11 Site office and control rooms, pump stations and lab facilities Waste Transfer 17 Reception buildings and recycling facilities Water buildings 51 Site office and control rooms, pump stations and lab facilities TOTAL 1,061 47
11 - 3 - The asset management plan is to be read with the following associated planning documents; Local: State: Planning Scheme Community Plan Asset Management Policy Corporate Plan Long Term Financial Plan Far North Queensland (FNQ) Regional Plan FNQ Infrastructure Plan Key stakeholders involved in the preparation and implementation of this asset management plan are: General Manager Corporate and Community Services General Manager Planning and Development Manager Plant and Facilities Manager Finance Management Accountant Manager Maintenance Services Manager Project Delivery Senior Advisor Infrastructure Planning 2.2 Goals and Objectives of Asset Management Tablelands Regional Council exists to provide services to the Tablelands community. The majority of these services are provided by 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, o Have precise knowledge of what Council owns or has responsibility or legal liability for; o Record and extract information on Building & Facility assets; Developing cost-effective management strategies for the long term, Providing a defined level of service and monitoring performance, o Understand and record the current levels of service in terms of responsiveness and performance; o Understand demographic changes and community expectations and how they may impact on future levels of service; Understanding and meeting the demands of growth through demand management and infrastructure investment, Managing risks associated with asset failures, Sustainable use of physical resources, Continuous improvement in asset management practices. 1 1 IIMM 2006 Sec 1.1.3, p 1.3
12 - 4 - This asset management plan is prepared under the direction of Council s vision, mission, goals and objectives. Council s vision is: A thriving region that embraces our natural, cultural and economic diversity To achieve this vision, Council will: Implement appropriate asset management techniques and practices Optimise resource utilisation and maximise service delivery (ensure that Building & Facility assets are responsibly managed in a financially sound manner, to enable provision of appropriate levels of service delivery to the community, whilst sustaining use of available resources.) Ensure innovative and cost effective means of improving work practices and processes to ensure Buildings & Facilities assets are managed in accordance with best practices principles. Minimise exposure to risk due to asset failures by implementing a risk management plan that identifies, manages, and controls the residual risk associated with Building & Facility assets management. Tablelands Regional Council s goals and objectives for the management of Buildings and how these are addressed in this 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 Delivering efficient management of Building & Facility assets. Ensure the Region's infrastructure is continuously reviewed and maintained to a standard that will maximise their long term benefit to the community. To provide and maintain infrastructure to community requirements within the resources available. To inspect and maintain all Council Building & Facility assets to a safe and sustainable level in accordance with the type and frequency of use and improve as appropriate having regard to future needs and requirements. Develop a 10-year asset management strategy to provide direction for the ongoing process of infrastructure management. Establish a maintenance and capital renewal plan over 10 years in conjunction with appropriate financial planning to ensure the longevity of Buildings & Facility assets for current and future requirements. Identify future needs for renewal and repair in order to provide an appropriate service level in conjunction with community consultation. 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 Monitoring how the plan will be monitored to ensure it is meeting Council s objectives. Asset management improvement plan
13 - 5 - A road map for preparing an asset management plan is shown below. Figure Road Map for preparing an Asset Management Plan Source: IIMM Fig 1.5.1, p Core and Advanced Asset Management This asset management plan is prepared as a core asset management plan in accordance with the International Infrastructure Management Manual (IIMM). 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 asset management plan will move towards 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
14 LEVELS OF SERVICE The factors affecting levels of service can be broken into three broad categories according to their key performance criteria. Customer Requirements: These are customer expectations of the services provided by the utilisation of the asset, which are, in turn, dependent upon the customers ability and willingness to pay. Legislative Requirements: These are those mandatory provisions or standards set by local, state, federal or international bodies that govern asset utilisation, particularly in terms of various issues affecting the general public. Strategic and Corporate Goals: These are the broad framework-based management directives issued within Council. These are expected to be consistent with Council s goals and values stated in policies, strategies, and the Corporate Plan. 3.1 Customer Research and Expectations To date, Council has not issued specific polls or surveys in regard to Building & Facility levels of service; however the combined knowledge of councillors and staff in regard to community expectations for Buildings & Facility service levels does provide a sound basis for initial planning. This experience is derived from many years of history from the four former shire council areas with regard to representation to councillors on Buildings & Facilities, as well as customer enquiries that result in direct works assessment and action if required. 3.2 Legislative Requirements Council has to meet many legislative requirements including Australian and State legislation and State regulations. These influence and in some cases determine the Levels of Service. Key legislative requirements are set out in Table 3.1 below. Table 3.1. Legislative Requirements Legislation Local Government Act, 2009 Building Act 1975, QLD Building Regulation 2006 Building Code of Australia, 2007 All relevant Australian Standards and Codes of Practice Disability Discrimination Act, 1992 Workplace Health and Safety Act 1995, QLD Requirement Sets out role, purpose, responsibilities and powers of local governments including the preparation of a long term financial plan supported by asset management plans for sustainable service delivery. Have consideration of, adhere to and fulfil the requirements of the Building Act. Have consideration of, adhere to and fulfil the requirements of the Building Regulation Code of Practice relevant for all building design and construction including AS Design for access and mobility. Referenced in the Building Code of Australia. Covers design, demolition, painting pest management, electrical installations, plumbing, design and access for mobility and other aspects of building construction and management. To ensure that persons with disabilities have the same rights as the rest of the community (including access to premises). Sets out roles and responsibilities to secure the health, safety and welfare of persons at work.
15 - 7 - Qld Electrical Safety Act 2002 Housing Act 2003 Public Records Act 2002 The purpose of this Act is to prevent people from being killed or injured and property from being destroyed or damaged by electricity. QLD State legislation that establishes the QLD Government's role in providing housing assistance to people with a housing need. This Act sets out requirements in respect to maintaining public records. 3.3 Current Levels of Service Council has worked in partnership with the Far North Queensland Regional Organisation of Councils (FNQROC) to develop a Levels of Service (LoS) framework. This framework has reviewed numerous models and processes utilised by many Australian and New Zealand Councils to formulate a holistic framework that address the needs of councils in the region. The framework has taken inputs from the International Infrastructure Management Manual, Australian Infrastructure Financial Management Guidelines and the subordinate Levels of Service and Performance Measurement Guidelines Manual. The framework looks at community defined levels of service, which are documented in plain English, which are linked to technical criteria which reflect the intent of the category. This process is designed to map the nontechnical attributes of customer's values to technically measurable (quantitative assessment) elements that are required to define gaps in service standards to either target areas of improvement or service reduction. The resulting LoS table describes the community (customer) expectations and/or aspirations which are then defined into measurable elements. The fourth column defines the current status of each element as the current benchmark for assessment. The following columns set targets for the next financial year and the next 10 financial years respectively. These targets are designed to inform the next budget cycle and the Long Term Financial Plan respectively. Infrastructure and Operational Levels of Service It is important to note the differences in Infrastructure and Operational levels of service which are applied to council managed facilities. Being a "Core" level Asset Management Plan, the initial focus is on Infrastructure levels which target the underlying issues of risk, renewal and growth over the asset base. Operational levels of service are often reflective of how an asset is used, not its physical characteristics. For example, a public swimming pool has many service level measurement points which can be separated into Infrastructure and Operational, such as: Swimming Pool Infrastructure Examples - (Function) 8 lane pool; 50 meters in length with a minimum 2 meter deep end (Quality) Water treatment hardware must be capable of real-time chlorine measurement and automated dosing adjustment Swimming Pool Operational Examples - (Function) The opening hours should be 6am to 6pm to facilitate before and after school/work usage (Quality) Seating should be comfortable and scalable to cater for swimming events A number of asset classes have no specific separation between Infrastructure and Operational levels of service as the asset is not "operated", but rather provides a set service. Bridges are a good example of this as they are static and provide a set function which can not be readily changed by operational
16 - 8 - conditions. These assets normally have specific and measurable attributes that reflect their effectiveness and consequently the service levels are focussed on physical attributes only. Council has defined service levels in two terms, Community and Technical levels of service. 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: Service Criteria Quality Function Accessibility Safety Technical measures may relate to Condition of Building Meets user requirements Meets user requirements Statutory compliance Council s current service levels as at 30 th June 2011 are detailed in Table 3.2 below. Table 3.2. Current Service Levels Key Performance Measure Accessibility Function Safety Quality Sustainability Level of Service Performance Measure Current Performance ( ) Provide adequate physical access to facilities. Facility meets user/service requirements. Convenient opening hours (if open to public). Ensure buildings/facilities are safe and do not cause a hazard to customers. Facilities provide a good quality experience for all users. Facilities are managed with respect to future generations. Nº of community facilities upgraded to comply with the Disability Discrimination Act Average Nº of bookings or visits per month. Public halls Swimming pools Caravan parks % of community facilities are inspected as required. % of community facilities routinely maintained. Nº of reported complaints from community facility users. Nº of reported safety incidents (per annum). % of community facilities are cleaned as planned. Nº of community facilities that have 'Energy Management Plans' Performance Target ( ) TBA <10% increase from previous year ,458 2, ,000 3,000 Performance Target ( ) 100% compliance TBA TBA TBA 75% 100% 100% 30% 50%~ 90% TBA <5/yr <5/yr ~5 <5/yr <5/yr ~80% 100% 100% %
17 Desired Levels of Service The process of setting desired levels of service is complex and requires considerable input from numerous areas of council and the community. The current level of service being provided by council is reflective of historic customer expectations and the ability of the community to pay for the services. The resulting level of infrastructure development and service levels in place are a compromise of these two primary factors. In addition, there are several other factors that have impacted current service levels, which include: Private development which included community asset construction Natural disasters which have impacted asset standards and service levels Changes in legislation which has significantly increased the costs of owning and running community assets (water, sewerage, etc) Civil litigation which has impacted asset standards, insurance premiums and community expectations State and Federal Government grants that have been historically beneficial in building new assets, however they have impacted negatively in providing revenue to manage these assets Taking history into account is essential when reviewing current service levels and proposed future service levels given there are often complex reasons why certain aspects of community assets and services function as they do today.
18 FUTURE DEMAND Council s fundamental role is to provide services to the community and its Building & Facility assets is a means to support this. Consequently, future demand for Building & Facility assets is tied to the demand for Council s services. While population growth is a key driver for demand, it is more complex than simply that. Issues such as changing demands for particular services due to other service providers leaving the area being one example and changing community expectations affect the need for building assets. The following sub-sections discuss forecasted demographic trends and documented service strategies will assist Council in understanding the Building & Facility asset portfolio needs across the Tablelands area. 4.1 Demand Forecast There are a number of unique factors that directly impact the demand for Building infrastructure and services. These factors include: Population growth Demographics Development Greenfield and in-fill Increased demand for building renewal and maintenance Increased risk of failure and public liability from ageing infrastructure Level of employment Changes in recreation and leisure trends Change in community expectations The future demand factors on Council s Building & Facility assets have been identified below in Table 4.1. The anticipated impact of the expected growth and demand has not yet been quantified. This will be carried out in future revisions of this Asset Management Plan. Demand factor trends and impacts on service delivery are summarised in Table 4.1 below. Table 4.1. Demand Factors, Projections and Impact on Services Demand factor Present position Projection Impact on services Slight increased demand for Increase to 51,848 in 10 years 46,937 2 provision of Building and Facility Growth expected to increase by 1% pa. Population services and infrastructure. 15% of population over age 60 Percentage over 60 will increase to 30% in next 10 years Increased demand for aged care and community health facilities. According to the OESR Queensland Registry database the Tablelands estimated population increased from 40,800 in 2001 to 46,937 in Changes in Technology Technology changes, more particularly those related to climate change, energy consumption patterns, water usage and subsequent building design improvements will have an effect on service delivery. These impacts will be investigated and quantified in future revisions of this Asset Management Plan. 4.3 Demand Management Plan Demand for new assets will be managed through a combination of managing and upgrading existing assets and providing new assets to meet demand. Demand management practices include non-asset solutions, insuring against risks and managing failures. Planning for Building & Facility assets will be 3 ABS Australian Bureau of Statistics
19 aligned to the Community and Corporate Plans and their strategies as applicable so at the very least they are fit for purpose. Opportunities identified to date for demand management are shown in Table 4.3. Further opportunities will be developed in future revisions of this asset management plan. Table 4.3. Demand Management Plan Summary Service Activity Building infrastructure assets Safety Improvement plan Demand Management Plan Assess current capacity to fund at the current level of service. Monitor community expectations and building user groups/committees capacity to be involved in operation and maintenance activities buildings. Link asset management plans to long term financial plans. Any upgrades to improve user safety - Regular safety audits. 4.4 New Assets from Growth There is no additional Building facilities planned resulting from growth over the next 10 years however there is currently a feasibility study underway to determine the viability for a regional cultural centre on the Tablelands, the outcome of which should be determined by the end of Key projects funded from the $2.8M building and facility budget during the 2012/13 financial year include: Kuranda Visitor Information Centre upgrade Malanda Visitor Information Centre replacement Kuranda Community Precinct refurbishment Dimbulah Swimming Pool refurbishment Mareeba Swimming Pool refurbishment
20 LIFECYCLE MANAGEMENT PLAN The lifecycle management plan details how Council plans to manage and operate the assets at the agreed levels of service (defined in section 3) while optimising life cycle costs. 5.1 Background Data Physical parameters Council has responsibility for over 990 building assets across the Tablelands which are grouped into the following functional categories: Asset category Nº Replacement Value ($M) Commercial buildings 47 $16,497,540 Caravan Parks and contents Shops and commercial centres Community buildings 175 $47,090,247 Public halls Community centres Visitor Information Centres Libraries Museums Emergency Facilities Public toilets Cemetery buildings Corporate buildings 207 $34,923,074 Administration buildings Depot facilities Aerodromes 6 $352,117 Site office, hangers, fencing and gates Public Amenities 89 $6,166,850 Toilets Recreation 298 $48,917,562 Sports grounds and facilities Swimming pools Residential buildings 160 $13,672,250 Aged housing units Sewerage buildings 11 $539,400 Site office and control rooms, pump stations and lab facilities Waste Transfer 17 $845,801 Reception buildings and recycling facilities Water buildings 51 $2,010,548 Site office and control rooms, pump stations and lab facilities TOTAL 1,061 $171,015,391
21 The age profile of Council s 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 Table Known Service Performance Deficiencies Location Various Buildings - Disability access. Various Building & Facilities - Maintenance schedule Various Building & Facilities - Utilisation Service Deficiency A number of facilities fail to provide adequate physical access for disabled users. Lack of a Buildings & Facilities maintenance schedule. Some buildings are under utilised Asset condition The condition profile of Council's Building & Facility assets will be further assessed and graphs produced in subsequent plans. Whilst Council has determined a rating system for determining the condition of its buildings it has yet to inspect all of its structures. As part of the improvement plan it is anticipated this will be completed over the next 2 years.
22 Condition is measured using a 1 5 rating system as outlined below. 3 Rating Condition Description 1 Very Good 2 Good 3 Fair/Satisfactory 4 Poor 5 Very Poor All components operate and well maintained. Only planned maintenance required. Approximately 0-20% of useful life consumed. Minor maintenance required plus planned maintenance. Free of defects affecting performance, integrity and durability. Approximately 20-40% of useful life consumed. Defects affecting durability which require monitoring and/or maintenance. Significant maintenance required to return to acceptable level of service. Approximately 40-60% of useful life consumed. Defects affecting performance and structural integrity. Renewal or upgrade required. Approximately 60-80% of useful life consumed. Unserviceable. Requires urgent attention, life and property at risk. Not suitable for use by customers % of useful life consumed Asset valuations The value of assets as at 30 June 2011 covered by this asset management plan is summarised below. Assets were last revalued at 30 June Assets are valued at Greenfield rates. Current Replacement Cost $171,015,391 Depreciable Amount $94,296,391 Depreciated Replacement Cost $76,719,000 Annual Depreciation Expense $1,904, Risk Management Plan An assessment of risks 4 associated with service delivery from infrastructure assets has identified critical risks to Council. The risk assessment process identifies credible risks, the likelihood of the risk event occurring, the consequences should the event occur, develops a risk rating, evaluates the risk and develops a risk treatment plan for non-acceptable risks. Critical risks, being those assessed as Very High - requiring immediate corrective action and High requiring prioritised corrective action identified in the infrastructure risk management plan are summarised in Table 5.2. Table 5.2. Critical Risks and Treatment Plans 3 IIMM 2011, Table Enterprise Risk Management 2010
23 Asset at Risk What can Happen Risk Risk Treatment Plan Rating (VH, H) All buildings Destruction by fire Medium Check adequacy of insurance, install fire alarms and develop continuity plan Older buildings Structural damage. High Inspection, monitor and report. Building Maintenance Maintenance costs increasing due to inadequate renewal program. High Improve data, determine priorities based on service and risk criteria, develop prioritised program for renewal. 5.3 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. This work generally falls below the capital expenditure threshold. Maintenance expenditure trends are shown in Table Table Maintenance Expenditure Trends Year 5 Maintenance Expenditure Reactive Planned Cyclic Total 2009/10 $2,155,000 (85%) $303,800 (12%) $82,600 (3%) $2,541, /11 $2,589,000 (80%) $386,900 (12%) $251,000 (8%) $3,226,900 Planned and cyclic maintenance expenditure for 2010/11 was 20% of the total maintenance expenditure. Maintenance expenditure levels are considered to be below those required to meet required service levels. Future revision of this 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. Typical maintenance activities include: 5 Maintenance expenditure does not include Water, Waste and Wastewater buildings.
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