Willoughby City Council Asset Management Improvement Strategy

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2 Willoughby City Council Asset Management Improvement Strategy Contents: 1 Executive summary Introduction Purpose Asset Management Framework Purpose of Asset Management Role of Local Government Integrated Planning & Reporting Framework Asset Management Policy Asset Management Plans Link to Council s Community Strategic Plan: The Willoughby City Strategy Basic vs. Advanced Asset Management Current Status of Asset Management Practices Data & information Business Processes Asset Management System Implementation Tactics Improvement & Action Plan Strategy Review References Appendix A Asset Management Framework Appendix B Project Roles & Responsibilities Flowchart Appendix C Maturity Assessment Tables Appendix D Council s Assets Appendix E Renewal & Rehabilitation Modelling Appendix F Life Cycle Gap Analysis & Required Funding Page 2 of 102

3 Document Control Willoughby City Council Asset management Improvement Strategy Rev No Date Revision Details Author Approver 1 1/9/2010 First draft not submitted for formal adoption, as Kellie Adlam - awaiting summary of more mature asset data. 2 21/2/ Second draft updated based on asset data Kellie Adlam - as summarised for Councillor workshop on Tues Feb 21st. 3 15/4/ Third draft for adoption by Asset Management Kellie Adlam Nick Tobin Strategy Group and then Councillors 4 12/6/ Draft Adopted Kellie Adlam Nick Tobin Page 3 of 102

4 1 EXECUTIVE SUMMARY The purpose of this Strategy is to establish an action plan to achieve strategic, ongoing improvement of asset management practices throughout the organisation for the vast pool of assets under the care and control of Council a total asset portfolio with a replacement cost of at least $599.5M. Achieving optimal asset management practices involves all of the following aspects of council operations: strategic planning for service provision; long-term financial planning; maintenance activites and capital works; prioritisation of asset improvement, acquisition and disposal; monitoring of asset performance and service delivery; risk management; and corporate systems. The term asset management is used to describe the process by which councils manage physical assets to meet current and future levels of service. Under the Asset Management Standard PAS 55, asset management is defined as: the systematic and coordinated activities and practices through which an organisation optimally manages its physical assets and their associated performance, risks and expenditures over their lifecycle for the purpose of achieving its organisational strategic plan (Division of Local Government 2006). This strategy has been based on the template provided in the International Infrastructure Management Manual (IIMM). The document is exists in the context of the asset management framework, forms an integral part of the resourcing strategy within the Integrated Planning and Reporting Framework, and relates to several other Council plans and policies, as indicated. Progress made to date by Council in asset management are explored in detail in Section 5. These are explored within the four main improvement areas identified by the IIMM, which are also assessed on an annual basis by external consultant. The results of the assessment show that the greatest level of maturity in asset management is in the collection of data and information, and more specifically relates to road pavements, footpaths and kerb and gutter. All four improvement areas and all nine principal asset classes have shown continuous improvement over the assessment period. Section 6 provides a comprehensive action plan, including timeframes and responsibilities for all tasks, for continuing to improve asset management practices. Some gaps in current resourcing have been identified and these are indicated in the action plan. The appendices provided in this strategy, whilst lengthy, provide a snap shot of Council s asset stock in terms of current value and condition, target levels of service provision, projected expenditure and overall financial sustainability. All asset information has been summarised from Council s most recent and more detailed asset management plans. This strategy will be reviewed on a yearly basis until such time as Council s asset management practices are deemed to be advanced/mature by an external party, from which time the strategy will be reviewed every four years in conjunction with Council s Delivery Program and Asset Management Policy & Plans. Asset Management Plans may also be subject to review on an annual basis. Whilst the Asset Management Plans will produce information for a ten year planning horizon, modelling of future asset expenditure will, wherever possible, be based on a greater time period such as years. This is because major asset renewals due to occur just outside the ten year planning horizon often need to be budgeted and planned for several years in advance. Council has developed an overarching Community Engagement Strategy, which was completed in November and is due to be renewed in. The strategy addresses various approaches to engagement from information share to consultation. Importantly any meaningful engagement with the community around asset practices and service provision can only occur if the community is well informed of the services provided by Council. To ensure our stakeholders know about our current status in Asset Management and service provision, available resources and priority issues it is necessary to first produce asset management plans. An engagement program specific to asset management has been drafted in line with the Community Engagement Strategy. Page 4 of 102

5 2 INTRODUCTION In order to provide various services to the community, Willoughby Council is responsible for a vast pool of assets and is therefore faced with the challenge of funding their management in the most efficient way possible. Limited funding, community pressure and legislative changes have meant that Council needs to review its asset management practices and devise a strategy for their continuous improvement. The total replacement cost of Council s asset civil infrastructure asset portfolio is approximately $599.5M and is spread amongst the principal asset classes as shown in Figure 2.1. It should be noted that Council is responsible for several asset classes which have not yet been valued at Fair Value and these are therefore not included in Figure 2.1, including retaining walls, LATM devices, street furniture, signage, plant and fleet, artworks and library books. Information on these asset classes and others will continue to be collected. $139.7 $18.3 $16.5 $1.9 $94.3 $10.3 $59.1 $179.6 $79.8 Road Pavements Kerb and Gutter Footpaths Bridges Stormwater Buildings Passive Rec (Parks) Sportsgrounds Playgrounds Figure 2.1 Distribution of replacement values by asset class ($Millions) Current maintenance and renewal expenditure may be adequate to maintain assets so that an acceptable level of service may be provided. In some cases, however, the level of funding that is appropriate in the short term may fall short in the longer term resulting in a loss of service for the community. In other cases a short fall already exists and strategies need to be devised to address real and potential short falls. Long term planning based on detailed knowledge of current and future asset performance, as well as strategic analysis of the service provision needs of the community, are essential for the long term financial sustainability of local government. Asset management refers to many activities that are already undertaken within Council, such as road pavement maintenance, park landscaping and the provision of high-need services such as cultural centres. Asset management, therefore, is not a new concept but rather something that has been undertaken implicitly for as long as services have been provided by Councils. Improvement in asset management involves formalising the knowledge about asset performance, maintenance levels and community expectations in order to optimise both expenditure and service provision over a much longer time scale. This long term planning requires much more detail about assets and their relative services than has previously been available. 3 PURPOSE The purpose of this Strategy is to establish an action plan to achieve strategic, ongoing improvement of asset management practices throughout the organisation, by: adopting a framework within which asset management takes place; evaluating current status of asset management practices; endorsing intended future directions (within available resources). Achieving optimal asset management practices involves all of the following aspects of council operations: Page 5 of 102

6 strategic planning for service provision; long-term financial planning; maintenance activites and capital works; prioritisation of asset improvement, acquisition and disposal; monitoring of asset performance and service delivery; risk management; and corporate systems. A whole of organisation approach is therefore essential for asset management practices to improve. A corporate strategy for improvement in asset management will ensure that cost-benefit analyses are reconciled against Council and community needs, enabling Council to deliver the best possible service from its asset base within the limits of available funding. 4 ASSET MANAGEMENT FRAMEWORK 4.1 Purpose of Asset Management The term asset management is used to describe the process by which councils manage physical assets to meet current and future levels of service. Under the Asset Management Standard PAS 55, asset management is defined as: the systematic and coordinated activities and practices through which an organisation optimally manages its physical assets and their associated performance, risks and expenditures over their lifecycle for the purpose of achieving its organisational strategic plan (Department of Local Government 2006). Optimised asset management promises the following advantages: An inventory of all assets controlled by Council and their location Up-to-date condition information through regular inspection regimes Delivery of appropriate levels of service to the community A history of all works undertaken on assets Records of all asset-related expenditure Life-cycle costing of assets, from acquisition to disposal Risk management Prioritisation of capital works, asset acquisition and asset disposal Long-term financial planning for all asset-related expenditure Linkage between the Willoughby City Strategy, asset planning and management In summary, effective asset management means maximising the service provided to the community by all Council assets over the asset s life, given the funding available. 4.2 Role of Local Government Councils in NSW are to operate in accordance with the Local Government Act. The Act provides a legal framework that assists us in providing effective, safe and efficient infrastructure that supports community need. In the instances when an asset is not within the control or jurisdiction of Council, such as RTA controlled roads and Sydney Harbour Foreshores Authority for harbour foreshores, Council will work in partnership with the relevant controlling body to provide advice about the service levels. 4.3 Integrated Planning & Reporting Framework In 2009 the NSW State Government introduced the Integrated Planning and Reporting framework. The framework requires that all NSW Councils prepare a community strategic plan, resourcing strategy, delivery program and operational plan (see Figure 3.1). Page 6 of 102

7 Willoughby Council s over-arching strategic plan is the Willoughby City Strategy, Together Towards, Tomorrow, which is due to be renewed in. This plan provides us with a long term vision for the future and sets the foundations for the planning of key services. The City Strategy acknowledges that there are a wide variety of services and programs that are important to the community. As Council has limited resources it is imperative that we appropriately prioritise our activities. This includes ensuring that we resource our activities in accordance with good governance principles. With this in mind Council will often have to make difficult decisions about what we can and cannot deliver in any given financial year. Council s Delivery Program and our annual Operational Plan provide the details of what Council has prioritised for action based on the outcomes identified in the City Strategy and available resources. The resourcing strategy is perhaps one of the most challenging and important components of the new model. It requires that we produce an asset management plan (min 10 years), long term financial plan (min 10 years), and a workforce plan (min 4 years) in order to ensure that we are adequately resourced to deliver our services. The asset strategy therefore does not exist in isolation and must inform and be informed by the other resourcing considerations. The Asset Management Improvement Strategy should be reviewed every four years in line with the development of Council s Delivery Program. While in its early years, however, it is anticipated the strategy will be updated annually until fully integrated within the planning framework. Page 7 of 102

8 ASSET MANAGEMENT FRAMEWORK Asset Management Policy WILLOUGHBY CITY STRATEGY Asset Management Improvement Strategy RESOURCING STRATEGY Asset Management Plans DELIVERY PROGRAM WORKFORCE PLAN OPERATIONAL PLAN LONG TERM FINANCIAL PLAN Figure 4.1 Asset Management Framework showing the relationship between Policy, Improvement Strategy and Plans. Note that this framework is embedded within the overall framework of the Integrated Planning and Reporting model (dotted lines). See Appendix A for details on the various documents comprising the Asset Management Framework. 4.4 Asset Management Policy In September 2009 Council adopted an Asset Management Policy, the purpose of which is to provide Willoughby City Council with a framework for managing its large portfolio of assets. The policy identifies key roles and responsibilities around asset management, and established principles for strategic asset management practices throughout the organisation. The principles established by the Policy are translated into actions, whose purpose is to maximise efficiency in asset management practices. While this Improvement Strategy provides us with our current status and directions for asset management over the next four years the policy provides the over-arching approach and framework within which the strategy will be actioned. A full copy of the Asset Management Policy is provided on Council s website. Page 8 of 102

9 4.5 Asset Management Plans Council developed first drafts of Asset Management Plans (first generation) for each of the major asset classes at the end of 2010, whose progress was gradually adopted in principle by Council in early, as the Plans were tabled in groups of two or three. Second generation drafts have now been completed based on more advanced data and modelling techniques. These plans outline actions and resources to provide a defined level of service in the most cost-effective way (Department of Local Government, 2009). For each class of asset the Plan provides, where available, the following information: Dimensions and attributes of assets Condition (physical, capacity, fitness-for-purpose) Levels of service Risk analysis Financial summary Future demand forecasts Goals for future service delivery through assets Actions to achieve desired service delivery Funding for future maintenance (10+ years planning) Funding for future capital works (10+ years planning) Decision-making methodologies and supporting documentation The Asset Management Plans produce information for 20 year planning horizon, despite the fact that long term financial planning must be based on a minimum of ten years. This is because major asset renewals due to occur just outside the ten year planning horizon often need to be budgeted and planned for several years in advance. Development of the Asset Management Plans thus far has occurred in conjunction with budget allocation as part of an iterative process, since the two are mutually dependent. 4.6 Link to Council s Community Strategic Plan: The Willoughby City Strategy This Strategy, by seeking to maximise efficiency in asset management, addresses the key challenge in section 4.2 of the Willoughby City Strategy, ensuring sustainable practices in the provision of infrastructure. More specifically, the Improvement Strategy is integral to achieving the following outcomes: Efficiently operated and managed infrastructure assets Sustainable provision and use of infrastructure Many other outcomes of the Willoughby City Strategy, in all key strategic directions, will be helped by improved asset management practices. The specific applications of these outcomes to planning in individual asset classes is indicated within each respective Asset Management Plan. Community and cultural life: Public spaces are attractive and inclusive and offer a variety of recreational and creative experiences Available relevant services and facilities for all members of the community Council s works and services programs are current and appropriate to the recreational needs of the community Affordable and accessible open space and recreational facilities for all members of the community Existing open space, recreation areas and sportsgrounds are protected and enhanced Safe buildings, public domain, open space areas and facilities Page 9 of 102

10 Natural environment: Homes: Willoughby City Council leads by adopting sustainable practices 3.1 Housing demand and diversity (all outcomes) Transport, Mobility and Infrastructure: Increased use of active and alternative transport 4.2 Infrastructure (all outcomes) Economic Activity Civic leadership 5.2 Central business districts (all outcomes) A Council that is open and honest and represents its constituents An engaged, participatory community with knowledge of local community services, activities and events Council maintains a strong and sustainable financial position Council services are delivered to a high quality standard and are responsive to community needs 4.7 Basic vs. Advanced Asset Management The International Infrastructure Management Manual (IIMM, 2002) differentiates between basic and advanced asset management. Basic asset management practices permit Councils to transition to a longer-term, strategic approach to planning for asset management and to meet the minimum legislative requirements without the need for computerised systems or detailed asset data. Basic asset management is typically characterised by: A time-averaged, life cycle approach; Asset management plans based on currently available or sampled data; Assumptions that existing levels of service are sufficient; Identification of opportunities for improvement in current practices; and Cash flow projections based on local knowledge. The transition from basic, above, to advanced asset management relies upon a comprehensive analysis of existing weaknesses in data, systems and practices, and a plan for improvement in those areas. This Asset Management Improvement Strategy provides both the gap analysis and the strategies to address the gaps in an incremental fashion. As asset management practices become more advanced, planning should be based on the following: Well-defined target levels of service, developed in consultation with the community; Accurate and detailed asset data with high confidence levels; Predictive modelling based on asset deterioration; Optimised decision making techniques; Impacts of other existing Council plans; and Reviews of relevance of implementation of asset management practices to community strategic plan. Page 10 of 102

11 Gaps and improvement in asset management practices are measured in four broad categories which are addressed in the below order throughout the following section: 1. Data & information 2. Processes 3. Information systems 4. Asset management plans 5. Implementation tactics 1. Data & information 3. Systems 2. Business processes 4. Asset management plans 5. Implementation tactics Page 11 of 102

12 5 CURRENT STATUS OF ASSET MANAGEMENT PRACTICES This section provides an analysis of overall progress in asset management followed by a detailed discussion of all aspects of the project. Council has engaged external asset management expertise since 2008 to provide guidance and regularly assess improvements in asset management practices. Council s overall progress has been measured for each major asset class on a percentage scale of maturity where 0% indicates that Council is unaware of the need for, or current status of, each constituent task and a value over 85% represents excellence in that area. A number of criteria are considered when measuring maturity in asset management, and these are listed in Table 5.1. Table 5.1 Assessment scale used to measure asset management maturity Rating Unaware Aware Syst. Approach Competence Excellence Frequency Emphasis Formality Systems Results Never do this Occasionally do this Sometimes done on an as needed basis for critical programs and activities Often do this on many programs Usually do this; omitted only in exceptional circumstances Always do this; standard operating procedure Not emphasised Receives minimal emphasis; some efforts under way Moderately emphasised; try to adhere to this Generally emphasised; something that is done and checked Strongly emphasised; used to measure and reward by Heavily emphasised; one of the principles by which business is done No formal process No system exists No results seen Done informally only; ad hoc procedures; minimal documentation Semi formal process; some routine procedures exist Formal process exists; modestly documented; good but still evolving Formal, documented process; well tested and well followed Strict, formal process exists; well documented; not deviated from Manual system exists; plans for automated systems are in place Automated systems exists; meets basic user needs Good system in place; widely available; meets all key user needs Strong system in place; meets nearly all user needs State of the art system in place Minimal results; long way to go Some results; still below expectations Good results; getting there Excellent results; still some room to improve Unparalleled results a total success The improvement areas that constitute the assessments, which are carried out annually, include all of the broad categories introduced in the previous section except for the asset management plans themselves ( governance is considered to adequately represent implementation tactics): 1. Data and information; 2. Processes and plans; 3. Systems & tools; 4. Governance; Across all asset classes and improvement areas, Council has achieved maturity ratings that are, on average, 70% of the target ratings. A summary of the results of the maturity assessment are provided here, whilst the tasks that constitute each improvement area are discussed in detail throughout the remainder of this section. The latest maturity tables are provided in Appendix C Maturity Assessment Tables. Figure 5.1 displays Council s maturity in each improvement area for each year from 2010 to. The maturity in each improvement area is calculated by dividing the total assessment score by the total target score to obtain a percentage (refer to Appendix C Maturity Assessment Tables for target scores). The figure shows that Council s maturity in data and information has been consistently higher than the other improvement areas. Within this category, the asset registers for most asset classes have been assigned a score of 90 (excellence) from a target of 95, while overall knowledge of assets has been assigned 80 (high competence) from a target of 85. Stormwater, buildings, open space and other assets received lower scores (systematic approach through to competence) and will be targeted for improvement in the future. Page 12 of 102

13 It is logical that each improvement area would show slightly reduced maturity, in the order in which they are displayed in Figure 5.1, as it reflects the order in which progress is likely to be made in the project. Whilst business processes are generally subject to scrutiny first, it is increased quality of data and information which facilitates further improvements in those business processes. System implementation cannot reliably progress until business processes in the relevant areas are improved to a certain level, and governance measures rely on those systems and tools. There is, of course, significant feedback between each of the improvement areas throughout the project. Figure 5.1 Council s maturity in asset management from 2010 to for each improvement area, expressed as a percentage of the total target score. 100% 80% 60% 40% 20% 0% Data & information Processes Systems & tools Governance 2010 The greatest progress in recent years has been seen in the processes area, which is a direct result of much of the asset management planning that has taken place. Systems and tools were assessed as relatively mature quite early in the project due to existing corporate systems related to asset management, whilst progress in this area has been slow due to the limited implementation of Council s asset management system (AMS). The comparatively low maturity in governance is not presently of great concern as this is expected to be the last area to exhibit improvement following the compilation and implementation of asset management plans. A break-down of total maturity scores by asset class gives a clearer indication of where Council s gaps in knowledge and processes lie, and is provided in Figure 5.2. In the figure, the scores for each asset class include all four of the improvement areas from Figure 5.1. Road pavements, footpaths, and kerb and gutter assets exhibit the highest overall maturity scores with some improvement still in documentation of service levels, demand analysis and works management processes. Larger gaps exist for buildings, stormwater and open space asset classes, whose main areas of weakness are focussed around asset data, objective planning processes and works management processes respectively. Figure 5.2 Council s maturity in asset management from 2010 to for each asset class 100% 80% 60% 40% 20% 0% Road pavements Footpaths Kerb & gutter Bridges Buildings Stormw ater Open Space Miscellaneous 2010 The following sections will summarise in detail Council s progress to date within the four improvement areas identified above. Page 13 of 102

14 5.1 Data & information Council has collected detailed inventories and, where relevant, condition data for the following asset classes: Buildings; Land; Road pavements; Footpaths (within road reserves); Kerb & Gutter; Bridges (including culverts and minor structures); Stormwater; Open space assets (including playground equipment and sportsgrounds). Of these, buildings, road pavements and bridges have been recorded at the component level. Road pavements consist of up to three components: seal, base and formation. Buildings may consist of up to eight components: envelope, floor, roof, floor covering, fit-out, mechanical services, fire systems and vertical transport. Bridge-like structures that fall into the categories of either major bridge or major culvert, of which Council is responsible for 21 and 8, respectively, may consist of up to 41 or 12 different components, respectively, whereas minor structures are not componentised. In all cases componentised assets are condition rated, valued and depreciated at the component level, since constituent components may vary in replacement costs, consumption patterns and useful lives. The approximate location of all stormwater conduits and pits is known with a moderate degree of certainty, however CCTV inspection footage to fully confirm the location, attributes and condition of stormwater conduits has been collected for only 52% of the network so far. This is, nonetheless, considered to be a high percentage when compared to many other Councils, and provides a reliable sample size from which to extrapolate condition information to conduits that have not yet been inspected on the basis of conduit size. This extrapolation allows Council to achieve long term financial planning for the stormwater network despite the lack of a complete inventory. Fair value reporting for all of the above asset datasets has been completed based on a formally documented process detailed in Council s Asset Valuation Methodology. One exception exists for data within open space which has not yet been reported at Fair Value since data collection had only very recently been completed by the time of compilation of this Improvement Plan. Assumptions regarding materials, useful life, replacement cost and degradation patterns have, however, been collected in consultation with external Valuers (in a method consistent with Council s existing valuation methodology) and will be applied to the recently collected data so that open space assets may be reported at Fair Value from June 30,. Data regarding fleet and plant assets have not yet been collected as part of the asset management project, however Council s fleet management system is currently used to maintain most of this data, so it can still be accounted for from a financial reporting perspective. An inventory of IT equipment exists but has not yet been integrated into the wider asset management project. The same applies to library books. The attributes collected for each asset class vary depending on the usefulness of that data in financial valuations, day-to-day operations, inspections and works prioritisation. The attribute data collected so far has been carefully scoped and in some cases refined over the years through direct use where regular works and inspection programs are already in place (stormwater and footpath assets, for instance). It is possible that further attributes will be as asset management processes become more advanced, however it is more likely that some attribute data will turn out to be unnecessary. Council has purchased an Asset Management System (AMS) which will become the corporate system for all asset inventory data. Until such time as the system is fully implemented, however, Council s Geographic Information System (GIS) serves as the repository for all asset data, which is actively used and maintained in that system, and verified by Council s GIS coordinator. Go live of asset inventories in Council s GIS relies on further integration between Council s GIS viewing software and the AMS, which is discussed further in Section 5.3 alongside interfaces between the Page 14 of 102

15 AMS and other Council systems. A complete data audit will also need to take place in the future before handover can occur. Regardless of whether asset data is maintained in Council s GIS (now) or AMS (in the future), datasets reside on Council s virtual servers that are subject to Council s existing IT backup schedule. This occurs on a nightly basis. A series of additional asset classes have been identified that will be subject to data collection, condition rating and valuation as time permits and on a risk-focussed priority basis. These include, but are not limited to: Retaining walls and sea walls; Footpaths within open space; Bushland assets; Artworks and sculptures; Guard rails, safety fencing, pram ramps and LATMs; Street furniture and LATM streetscapes. Condition assessments are performed during collection of asset attribute data and in many cases is kept up to date with regular inspections. For example road pavements, footpaths, kerb and gutter, bridges and stormwater assets are inspected under an established schedule, and defect information is historicised rather than overwritten. Backups are taken of road pavement data before updated condition information is loaded to the pavement management system. Defect information for footpaths and kerb and gutter is held in Council s GIS in a cumulative fashion so that historical defects are marked as repaired rather than removed from the file. Bridge condition data is obtained via formal reports which are registered in Council s document management system. Individual stormwater CCTV inspections are retained in an excel database where the most recent inspection results are used to update the stormwater attributes. Prior to, building inspection data was loosely maintained in a works order system, but a historical record of condition ratings did not exist except for the high-level evaluation carried out in 2008 by Valuers for compliance with fair value financial reporting. Beginning in a third party was engaged to collect detailed data and condition information for Council s major buildings in stages. To date this data collection is ongoing and has not yet been repeated for any buildings, however it is intended to be the beginning of an ongoing inspection regime that is yet to be finalised. Currently inspection information for open space assets is not retained, with the exception of playground equipment where quarterly inspection reports are commissioned from third party consultants. In the future all inspections, regardless of the source of information, will be entered into Council s AMS and will therefore all be historicised and accessed from a single location. Hierarchies have been established within each asset class where asset data has been collected to date. Specific details regarding these hierarchies can be found within the relevant asset management plans. These hierarchies often represent the first level of works prioritisation and may be combined with other factors as asset management practices become more advanced for each individual asset class. It is also possible for Council s defined acceptable levels of service to differ within a single asset class based on hierarchy. Predictions of the future expenditure for each asset class have been based on Council s asset valuation methodology, since this methodology already takes current condition, degradation, replacement cost and expected life into account. Rather than establishing life cycle costs on an individual asset basis, these have been integrated into the long term financial planning for assets. The predictions were generally divided into four types of expenditure: 1. Operational & maintenance; 2. Renewal of existing; 3. Upgrade/expansion; and 4. New assets. Page 15 of 102

16 Whilst operational and maintenance expenditure are considered as distinct, Council s current financial reporting system means that their separation is impractical. In addition, for some asset classes such as footpaths, drawing a line between of maintenance and renewal costs is difficult and the two are often considered together as rehabilitation costs. Formalisation of thresholds separating capital from maintenance for these ambiguous works is underway and will minimise complications in the future. Of the above four expenditure types only the second, renewal of existing, was varied based on target levels of service (read on for further details), while the other three types of expenditure remained fixed within a given asset class. A lack of knowledge about how level of service and asset condition affect maintenance costs prevented Council from varying the first expenditure type, above, and a lack of approved objective prioritisation systems and service provision scenarios prevented the third and fourth types from being varied. In the future it is hoped that all four expenditure types will be linked to levels of service. Renewal expenditure in financial projections was varied, as mentioned immediately above, based on levels of service and therefore presented in three scenarios, which are listed in Table 5.2. These scenarios are likely to be reshaped in the next generation of asset management plans so as to better align with the logic contained within Council s long term financial plan. Table 5.2 Scenarios used for financial projections of renewal expenditure Scenario name Assumptions Scenario 1 Base Case Scenario 2 Meeting levels of service Scenario 3 Exceeding levels of service Funding levels remain unchanged from the current trend, except for inflation Funding is sufficient to meet the minimum level of service deemed acceptable. Funding is sufficient to meet a slightly higher than acceptable level of service In both the first and second scenarios, projections of asset expenditure and condition were modelled based on an intervention point that was considered acceptable. It is important to note that the definition of acceptable is currently an informed estimate and may change as a result of community consultation in the near future. A single intervention point was applied to entire asset classes in some cases, whilst in others the intervention point was varied depending on asset hierarchy and even component type. The target level of service could therefore differ greatly from one asset class to the next, however in all cases the draft level of service provision was deemed acceptable. The third scenario was modelled based on a level of service that exceeded acceptable for the sake of comparison, and to demonstrate the magnitude of the costs to achieve a higher level of service provision. The replacement costs used in both Fair Value reporting and financial projections were either provided by third party consultants or calculated internally in consultation with relevant contractors, neighbouring Councils, manuals and, where available, benchmark data. 5.2 Business Processes Whilst documentation of Council s business processes and implementation of systems is incomplete and continually progressing, a large number of crucial business processes have been entrenched in Council s day-to-day mode of operation which ensure sound management of existing assets in accordance with the needs of the community. This section identifies existing business processes and potential areas for improvement. First and most importantly, regular consultation with the community takes a variety of forms and, whilst often informal, plays an important role in Council s service provision. From a reactive perspective, Council has a widely used system for customer service requests which gives an approximate picture of the areas that most concern members of the community where programs might be put in place to effect a shift away from reactive works. All of the branches within Council that are involved in service provision to the community have direct contact with the community and take on board a large amount of feedback. Sportsground maintenance provides one example where sporting groups are very active in making known their expectations and communicating them directly to the relevant Council staff. Similarly there is an opportunity for Council staff to educate these groups somewhat in how their services are provided. Page 16 of 102

17 As such, it is a fairly valid assumption that the current level of service provision by Council is acceptable. Based on the existing number and condition of assets provided, Council has therefore drafted target levels of service for all asset classes which have formed the basis for predicting future expenditure. Existing informal community consultation needs to be supplemented by more formal means so that appropriate levels of service can be confirmed at a more technical level. Similarly, maintenance of Council s assets and operational costs associated with provision of services are assumed to be sufficient unless indicated otherwise by the relevant staff, since those staff are generally made aware of the community s expectations. In the current version of expenditure projections, therefore, maintenance expenses are held constant except for inflation. In some asset classes where planned capital works will significantly increase the asset portfolio, projected maintenance costs have been increased accordingly over time. In reality however, maintenance costs are higher for assets that have been allowed to deteriorate further towards end of life. This means that a higher level of service provision ought to produce lower maintenance costs, however in many cases this is likely to be complicated by greater asset usage as a result of the improved quality. In the future, maintenance and operational costs need to be linked to the level of service provision. Council s Operational Procedures Manual describes safe work method statements, risk assessments, work procedures and traffic plans, and therefore is an essential manual for all maintenance, renewal and capital work. It is the responsibility of the Works Service Branch and was last reviewed in March This comprehensive document is currently undergoing review by the Human Resources Branch to ensure version control is possible for future updates and that safe work method statements are adhered to as closely as possible. This involves transferring the document electronically to Council s document management system in consultation with the Works Services Branch. Manuals regarding condition assessment, levels of service, objective prioritisation and asset valuation are all at various stages of completion, but exist as first drafts as a minimum for all asset classes. These are all held within Council s document management system and can be obtained by contacting the relevant Branch. Condition assessment manuals include a definition of Council s 0-5 condition rating, a list of aspects to be considered when inspecting the various asset types, as well as photographs to clarify how condition ratings should be applied. These are intended to reduce, if not remove entirely, the subjectivity associated with asset assessment. More advanced asset classes such as footpaths and roads have progressed beyond a single condition rating and take a number of factors into account to produce an overall condition. Currently these manuals are restricted to physical condition assessment, however in the future attempts will be made to assess asset functionality, capacity and accessibility which are crucial for decision-making around medium-term planning of major upgrades and new works. Condition ratings will serve for both asset valuations and long term financial planning of maintenance and capital works. Service level manuals seek to document community expectations as currently understood by Council staff (and soon to be formally refined through Council s community engagement strategy), as well as more technical measures of service provision. These include response times and triggers for reactive maintenance, intervention levels for renewal and objective prioritisation scoring systems for future projects. Response times have been based on Council s existing customer service charter in the first instance, where the majority of request types relating to assets require a response within 14 days. Depending on the specific problem (or trigger ), these have been refined for the various asset classes, with an interim make safe time added for safety issues requiring immediate attention. Until Council s AMS is implemented, it will not be clear whether these refined response times are achievable. Similarly, it is currently unknown whether the draft intervention points discussed in the previous section are achievable, although they have been drafted based on staff experience. Objective prioritisation scoring systems are in active use for footpath assets, where the condition rating and a risk and need score that varies throughout the LGA are combined in an algorithm to determine overall priority of works. This is displayed on a map which is provided to the Works Services Branch monthly. For other asset classes, a series of questions and answers have been devised that contribute to an overall, weighted score. So far the system has been tested and found to align fairly well with Council priorities in the playground area, but has yet to be tested for parks and recreation, and for buildings. These prioritisation systems will be formalised in the future and submitted to Council for adoption, probably following the period of community engagement. Page 17 of 102

18 A period of transition will apply to the move away from reactive maintenance and towards the use of the above described prioritisation systems. It is expected that expenditure on reactive maintenance will lessen over time but is likely to continue to account for a small portion of the budget for most asset classes. Demand analysis for services such as passive and active recreation, child care and youth services have taken demand into account for some time. As part of compiling Council s asset management plans, even those Branches that were not directly concerned with demand analysis were given the opportunity to comment on projected demographic changes, and the potential impacts on those asset classes. A more advanced approach, however, would be appropriate for the future. Council s principal consultant in asset management has provided examples of services, such as libraries, where combining benchmark figures regarding unit area of floor space per capita with current and projected usage data can help Council plan more specifically for future population increases or changes in demographics. Currently usage data of that kind is not available for most asset types to enable such an analysis. This sort of data would be particularly useful for identifying opportunities for asset rationalisation based on under-use, and for planning strategically for new service provision before existing services reach their full capacity. As part of the asset management planning process, long term capital works programs were compiled over 20 years. This included project descriptions, funds and estimated timing. For many asset classes it was the first time projects had been considered beyond the recently implemented four year planning requirement. Whilst it is acknowledged that most of the detail beyond four years is quite uncertain, it is beneficial to have an understanding of the total quantity of outstanding works and the feasible time period over which they can be completed. In addition, any large projects lying outside the four year period, or even the minimum ten year period, may need to be planned and/or budgeted for well in advance. For these reasons it is preferable to accept the uncertainties associated with long term planning and continue to work with a twenty year planning horizon. Improvements to Council s capital works planning processes will require linking the capital program with target levels of service and demand analysis, implementing the draft objective prioritisation scoring systems and incorporation of asset additions and disposals into the current renewal modelling. The design and project management processes associated with major works have not been reviewed as part of this asset management improvement strategy, but ought to be included as part of the overall assessment in future revisions. Prior to, Council s budgets for maintenance and renewal of assets remained relatively fixed from one year to the next except for inflation, while funding for new and upgrade capital works was generally allocated on a project-by-project basis. Most of the latter were kept to an approximate limit that remained relatively constant over time, with some exceptions where government grants were available. Since, the budgets for some asset classes have been based around the asset management planning process, and the uptake of this approach is expected to increase over time. A limiting factor in the short term is the total funding available, which in some cases prevents major budget increases that may be to reduce the funding gaps that have been identified. Funding for road pavements and footpaths was shown to be adequate based on 20 year planning, however kerb and gutter, bridges, playgrounds and, in particular stormwater and sportsgrounds were shown to be significantly under-funded. Strategies to improve this situation include pursuing grants, working with investors, applying for loans such as the Local Infrastructure Renewal Scheme, increasing rates and, if funding is still insufficient, redistributing existing funds based on target levels of service so that the burden is shared more equally amongst asset classes. The life cycle costing that has been carried out to date (i.e. renewal modelling) has assumed a single path of action that is, all assets are replaced or repaired when they have degraded to a specified intervention point. Whilst this is a very advanced approach for this stage in the process, as it considers individual assets in terms of their current and projected physical condition, it is not an optimised strategy. Focussing on treatments for high priority assets earlier in their lives and allowing lower priority assets to degrade slightly, or any combination of the two, might provide a more efficient long term strategy, particularly under limited funding. Achieving these optimised strategies will take several years and will rely on constant refining of asset hierarchies, intervention points, treatment Page 18 of 102

19 types and costs. Software based on Council s current approach to renewal modelling is being investigated that may greatly reduce the manual effort to optimise funding distribution within a single asset class (e.g. running a large number of scenarios in the background based on parameters specified by the user, and displaying the lowest cost long term solution). Accounting for assets within Council is undergoing a shift away from straight-line depreciation as a result of fair value reporting requirements that were introduced in stages from 2008 onwards. Since valuations are now based on asset consumption and degradation patterns, the asset registers and associated valuation records need to be the responsibility of the relevant branches, such as Open Space, Property Maintenance & Construction and Engineering Services. All major asset classes for which data collection, including condition ratings, has been completed are reported at fair value. The fair value and depreciation information for these classes is provided by staff within Engineering Services and the Asset Management team to Financial Services for inclusion in financial statements. As part of this transition process, a series of meetings have taken place between Engineers and Accountants, where the asset valuation methodology and the reporting procedures are explained, respectively. These are continuing, and as part of these sessions capital thresholds and revaluation schedules are being determined, which will be formally documented in Council s asset valuation methodology at the end of the process. These are considered interim measures that may change slightly with the introduction of a works management system that is integrated with Council s financial system, as part of the AMS implementation. The greatest temporary challenge appears to relate to asset acquisition and disposal, which will similarly be addressed with implementation of Council s AMS. A regular inspection schedule exists for several asset classes. This practice has been entrenched for some time for road pavements, playgrounds and open space generally, and has recently become more prominent for other asset classes such as footpaths and buildings. This is an area that requires improvement in the future, and schedules will need to be refined over a period of several years whilst Council seeks to establish a balance between the frequency with which up-to-date inspection data will be used and an inspection schedule that is feasible. The minimum frequency will be dictated by fair value reporting legislation, which requires complete revaluation every 5 years for most entire asset classes. Well-defined works management systems are used by approximately half of the relevant supervisors. This includes road pavement works, footpath and kerb & gutter works, stormwater works and building works. The systems have been developed due to a need to both historicise completed works and communicate those works to the relevant administration staff so that their attributes and spatial information can be updated by administration staff. These are basic systems at present that should translate very easily into an AMS when implementation of the works management module takes place. The main variation to existing business processes will involve the selection of precise assets rather than descriptions of approximate descriptions of works locations. Asset classes where work order processes currently do not exist will need to undergo a significant period of consultation to determine where works orders might provide useful historical and financial information and where the extra administrative load might instead prove inhibitive. Approaches to works orders will be investigated to maximise efficiency for these areas (predominantly within the open space branch) and will include automatic work order creation based on customer service requests, inspection results, or defined schedules, pre-filled work order templates for common jobs and standing work orders to group multiple small jobs. Scheduled work orders provide a particular advantage to the organisation because existing works and inspection schedules would all be captured in a central location First generation plans were completed at the beginning of for each of the asset classes listed at the beginning of 5.1. A second iteration of asset management plans (i.e. second generation) is currently being compiled with projected expenditure that has already been completed for all asset classes. The financial and condition data associated with these plans has already been presented to Councillors at a dedicated workshop on February 21 st and is contained in Page 19 of 102

20 Appendix E Renewal & Rehabilitation Modelling. A detailed assessment of the Plans themselves, other than the fact that they are progressing, seems unnecessary here, since they are merely the compilation of all of the information discussed in detail throughout this document. Council has engaged an external auditor in collaboration with a number of other Councils in the area, and a high-level report is already pending on the integration between Council s asset management plans and the long term financial plan. It is anticipated that Council s asset management plans will be the subject of a more detailed audit later in the year. Review of all documents constituting the asset management framework has been set at a yearly interval until such time as Council is considered mature in its asset management practices (i.e. reached target levels of maturity in the assessment tables), after which time all documents are expected to fall into a four-yearly revision cycle in line with other aspects of the integrated planning and reporting framework. It is anticipated that minor interim revisions of asset management plans will be within that four year period. Thus far the yearly revision schedule has been both achievable and appropriate. Monitoring of improvement in asset management practices will principally take place through the maturity assessment tables in, whilst improvements in service provision and asset effectiveness are unlikely to be tracked with ease for most asset classes until Council s AMS is completely implemented. At present a form of monitoring is possible for road pavements, stormwater, footpaths and kerb and gutter because inspection data is archived, but reporting and analysis will be greatly facilitated by a fully functioning AMS. In line with DLG recommendations, Council has prepared an overarching Community Engagement Strategy which addresses various approaches to engagement, from information sharing to consultation. Importantly any meaningful engagement with the community around asset practices and service provision can only occur when: Council can clearly demonstrate the tangible link between a defined level of service and the associated cost of delivery; and The community is well informed of the type and nature of services provided by Council in light of available resources. As such, the specific nature of community engagement around asset management will be determined throughout as a direct consequence of financial projections and renewal modelling outputs, and subject to prior approval of Council. 5.3 Asset Management System Council is currently implementing Hansen 8 as its corporate Asset Management System (AMS). Once fully implemented, this software will be used for: Storage of asset inventory data such as: - Location - Dimensions/quantity - Condition - Valuations (including depreciation) Asset-related service requests & inspections Work management - Issue of work instructions - Historical record of completed works - Associated costs Risk management Life-cycle analysis Expenditure projections Asset data for all major asset classes except open space and stormwater is held in Hansen 8. Datasets for all asset classes are also held in Council s GIS and are therefore available to view spatially. A GIS interface will synchronise the two systems (GIS and Hansen8) and eventually Page 20 of 102

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