BRIMBANK CITY COUNCIL 2013-2023 Long Term Financial Plan Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 1
Contents Long Term Financial Plan... 3 1. Executive Summary... 3 2 Strategic Planning Framework... 5 3 Long Term Financial Plan Objectives... 6 4 Strategic Financial Direction... 7 5 Summary of Key Principles... 8 6 Key Strategic Outcomes... 13 7 Appraisal of Current Position... 16 8. Challenges Specific to Brimbank City Council... 17 9 Rating Structure... 21 10 Borrowing Strategy... 25 11 Asset Management... 29 12 Service Provision and Planning... 33 13 Strategic Financial Plan... 36 14 Benchmarking... 41 15 Glossary... 45 Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 2
Long Term Financial Plan 1 Executive Summary The purpose of the Long Term Financial Plan (LTFP) is to guide future strategies and actions to ensure that Council continues to operate in a sustainable manner. The LTFP is designed as a high-level summary document that outlines the future planning of Council s financial outcomes particularly in relation to key components such as rate levels, service levels to the community, major infrastructure asset replacement/renewal, loan borrowings and cash reserves. The plan is driven by the content of a range of strategic documents prepared by the Council including: Brimbank Community Plan 2009-2030 which was adopted in March 2009; Council Plan 2013-2017 which sets out the Council s objectives, goals and desired outcomes in financial terms; and Asset Management Plans (AMPs). The LTFP is a guide for future action and encourages Council to consider the impact that decisions made today will have on Council s long-term sustainability. Council has a legislative requirement to comply with the principles of sound financial management as detailed in Section 136 of the Local Government Act (LGA), 1989. These are to: manage financial risks faced by the Council prudently, having regard to economic circumstances; pursue spending and rating policies that are consistent with a reasonable degree of stability in the level of the rate burden; ensure that decisions are made and actions are taken, having regard to their financial effects on future generations; and ensure full, accurate and timely disclosure of financial information relating to the Council. Financial risks are a key focus of the plan as prescribed in the LGA in particular: The level of Council debt; Commercial or entrepreneurial activities; Management and maintenance of assets; Management of current and future liabilities; and Changes in the structure of the rates and charges base. The overall objective of Council s LTFP is to Achieve a prudent balance between meeting the service needs of the community and remaining financially sustainable; Rates and fees are prudent and based on sound analysis that are both manageable and sustainable; Loan borrowings are able to be serviced; Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 3
Maintain a positive cash position; Maintain a positive liquidity ratio; Achieve and maintain an underlying operational surplus; and Progressively reducing the renewal gap and increasing capital expenditure. The 2013-23 LTFP is a balanced plan that aims at imbedding all the growth that has taken place over the last three years; it is financially responsible while maintaining services to the community and ensuring that financial sustainability is maintained for future generations. The following table provides details of financial ratios: Refer to Section 15 Glossary of this report for definitions of financial ratios. The LTFP is a dynamic document and it is anticipated that it will be regularly updated as part of Council s annual strategic planning and annual budget process and as major changes occur. The LTFP has been independently reviewed on the basis of: the initiatives proposed in the Plan and the financial means of addressing them; the sustainability of the Plan; and methodology. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 4
2 Strategic Planning Framework The LTFP does not operate in isolation from Council s Strategic Planning Framework but rather complements this work and acts as a resourcing tool to enable Council to achieve the objectives outlined in the Community Plan 2009-2030 and Council Plan 2013-2017. The diagram below depicts Council s Strategic Planning Framework: Long Term Financial Plan Need for financial sustainability Strategic Planning Community Plan Council Plan Council Business Plan Strategic Resource Plan Operational Planning Divisional Plan Annual Business Plan Defining activities/initiatives (Annual Business Plan) Allocation of Financial resources Annual Budget Performance Monitoring Operational Output Performance Reports Outputs achieved Within budget Financial Performance Reports Performance Reporting Annual Report of Operations & Performance Statement Service Unit Performance Financial accountability Financial and Standard Statements Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 5
3 Long Term Financial Plan Objectives The key objective of the LTFP is financial sustainability in the medium to long term, while achieving Council s Strategic Objectives as specified in the Community Plan and the adopted Strategic Resource Plan included in the Council Plan. The objectives of this LTFP are as follows (not prioritised): The achievement of meeting the service needs of the community (both now and future) and remaining financially sustainable for future generations; Progressively addressing the funding gap and increase capital expenditure through the life of the LTFP as outlined in the Asset Management Plans; Ensuring that rates, fees and charges are manageable and sustainable; Providing a stable level of rates structure; Loan borrowings are able to be serviced and maintained at prudent level; Maintaining a strong cash position, ensuring Council remains financially sustainable in the long term; Maintain a positive liquidity ratio; Achieving an underlying operational surplus; Continuing to pursue funding for strategic capital funds from the State Government and Federal Government ; and Ensuring decisions are made having regard to their financial effects on future generations. In addition to the specific objectives outlined, it is also recognised that sound financial management can be demonstrated in the diagram below, based on the hierarchy of needs approach: Long Term Defined levels of services and infrastructure renewal/maintenance and replacement Medium Term -Underlying operating surplus -Determining levels of services to be provided -Reducing the asset renewal gap Short Term Sutainability - Working capital - Cash liquidity - Debt levels - Minimum capital expenditure Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 6
4 Strategic Financial Direction The LTFP establishes the strategic financial framework for Council to meet the funding and investment challenges that lie ahead in the next 10 years and is prepared to ensure that the affordability of activities included in the Council Plan are considered and budgeted for. Council will annually review its borrowing strategy, asset management plans and strategies, capital investment, capital works program, the range and level of services provided, the rating strategy and the revenue raising relative to user fees and charges and grants. Brimbank City Council faces a number of diverse and complex strategic challenges including: renewing and maintaining existing assets; continuing to provide an appropriate range of services to a changing community; maintaining a sound financial position; addressing the need for capital expansion; and affordability. The LTFP will assist in addressing these challenges by informing planning. The other key related issue is the risk and liability that Council and the community face if Council does not invest in asset renewal at an adequate rate (at minimum at a desired rate equal to Council s annual depreciation charge). The diagram below details the key strategic areas covered by the LTFP/Strategic Resource Plan (SRP) and the integration required between Council s financial strategies. Debt Strategy Asset Management Plans Rating Strategy Capital Works Projects and funding Long Term Financial Plan Grants and Fees Operational Expenes Each of these elements is detailed in the LTFP. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 7
5 Summary of Key Principles 5.1 Financial ratios The LTFP will be based on the financial indicators that the Victoria Auditor General uses to ensure Local Government remains financially sustainable. These indicators are as follows: Underlying result Council generates enough revenue to cover operating costs and depreciation. Liquidity Council has sufficient working capital to meet short-term commitments; Self-financing Council generates sufficient operating cash flows to invest in asset renewal and repay any debt it may have incurred in the past; Indebtedness Council is not overly reliant on debt to fund capital programs; Capital replacement Council has been replacing assets at a rate consistent with their consumption; and Renewal gap Council has been maintaining existing assets at a consistent rate. The Victorian Auditor General (VAG) uses trend analysis of actual figures for the previous five years and a trend analysis using forecast figures for the following three years as listed above. Council s LTFP financial risk assessment will be based on medium to low risk. For further details refer to Section 14.3 Risk Assessment for Financial Sustainability Indicators as per VAG rating. The use of the above indicators will assist Council to ensure that it is able to meet current and future expenditure as it falls due and be able to absorb foreseeable changes and financial risks that materialise, without significantly changing their revenue and expenditure policies. Financial sustainability should be viewed from both short-term and long-term perspectives. Short-term indicators relate to the ability of Council to maintain positive operating cash flows in the near future, or the ability to generate an operating surplus in the next financial year. Long-term indicators focus on strategic issues such as the ability to fund significant asset replacement or reduce long-term debt. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 8
5.2 Borrowing Ratios The LTFP also takes into consideration other financial ratios to determine the level of borrowings. These are as follows: Ratios % Debt servicing Debt commitment Debt exposure Indebtedness Financial Indictors Debt servicing cost to total revenue. Debt servicing cost and redemption cost to rate revenue. Total indebtedness to total realisable assets. Comparison of non-current liabilities to own sourced revenue. 5.3 Other Principles The LTFP includes the following assumptions: 5.3.1 Asset Management Capital expenditure will increase which will reduce the current renewal gap. Details are as follows: Gradual improvement to Council s Sustainability Index from average of.77 to 0.8 for years 1, 2, 3, 4 and 5; Further improve to 0.9 in years 6, 7, 8 and 9; Achieve the ideal sustainability index of 1.0 from year 10 onwards. Asset Sustainability Index Provides a measure as to whether Council s asset base is being adequately maintained. It expresses as a percentage the proportion of the total asset value consumed (depreciation) to the amount spent in preserving the asset (capital replacement/renewal). Details of renewal and maintenance expenditure to achieve the asset sustainability index is provided in Section 11 Asset Management 5.3.2 Government Cost Index Local Government Cost Index calculates any change in costs to deliver goods and services provided by Victorian councils. To deliver the same level and range of services as in 2012, it will cost Local Government 3.9% more in 2013. This is largely due to a basket of Council services being affected by the growth in construction, material and wage costs, rather than changes in common household goods and services as measured by Consumer Price Index (CPI). Over the past five years the Local Government Cost Index has averaged around 4.2%, while CPI has averaged 2.8% for the same period. On the basis of Council s current Enterprise Bargaining Agreements (EBA) and future EBA, additional staff to deal with growth and incremental increases, the LTFP has assumed that employee costs will increase by an average of 6.0% Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 9
Council materials and services are expected to increase by 4.0% each year, while actual cost increases may in fact be greater than 4%, i.e. utilities. It is proposed that these cost increases will be offset by productivity gains as part of Council s continuous improvement. Payments to contractors have been adjusted in accordance with the term of the contract. 5.3.3 Asset Realisation The LTFP includes the sale of the Sunshine Municipal Office (6-18 Alexandra Avenue, Sunshine), replacement of plant and equipment and various other properties. This was based on funding the capital works program. Council will review the Asset Realisation on a periodic basis to determine if any assets are surplus to Council s requirement. 5.3.4 Operating Revenue and Expenditure Council s 2012-13 forecast operating expenditure and revenue are $169.2 million and $162.8 million respectively. The graphs below provide the breakdown of expenditure and revenue. '000's 25,000 22,500 20,000 17,500 15,000 12,500 10,000 7,500 5,000 2,500 0 2012-13 Forecast Expenditure By Services Other costs include finance, street lighting, revenue collection, procurement/tendering, media and communications, human resources and corporate operations. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 10
2012-13 Forecast Expenditure $'000 70,000 60,000 50,000 40,000 30,000 20,000 10,000-67,540 58,154 30,000 3,669 1,100 2,157 190 2012-13 Forecast Revenue 150,000 114,634 $'000 100,000 50,000 25,072 7,152 5,817 4,712 9,397 2,457-5.3.5 Rates and Charges Rates and charges are to increase by: 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21 2021-22 2022-23 6.8% 6.8% 6.0% 6.0% 5.0% 5.0% 5.0% 5.0% 5.0% 5.0% Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 11
5.3.6 User fees The key principles for determining the level of user fees has been to ensure that any increases are: kept to a minimum or in line with market levels; not charged more than actual expenditure; are in compliance with the National Competition Policy; and are in accordance with Council s Social Justice Charter. 5.3.7 Finance Costs Finance costs relate to committed interest charged and proposed loan borrowings based on estimated interest rate of 5.5%. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 12
6 Key Strategic Outcomes The following table highlights the outcomes, strategies and key actions of the LTFP. Details Outcome Strategy Action Financial Sustainability That Council is able to meet current and future expenditure as it falls due and also have the ability to absorb foreseeable changes and materialising risks without significantly changing revenue and expenditure policies. That Council achieve an underlying surplus in the Income Statement excluding nonrecurrent grants, capital contributions and Non-monetary assets. Council liquidity ratio is equal to or greater than 1:1. That the cash position be sufficient to fund daily cash requirements as well as provide opportunities for funding of new acquisitions and short term contingencies. That Council continue to undertake service reviews. That Council pursues recurrent grant funding and capital funding aligned with Council Plan objectives. That Council continues to monitor cost shifting and service cost increases. That Council procure goods and services in accordance with Council Procurement policy and procedures. That Council continue to implement a combination of zero based and incremental budgeting. Council selffinancing ratio is equal to or greater than 10%. Long Term Borrowing Strategies Loan borrowings are able to be serviced and provide services for current and future generations. Any new loan borrowings are to be used to fund capital investments where the community benefits are long term or there is a financial return to meet That Council retains its debt servicing ratio at or below 5% over the life of this LTFP. That Council retains its debt commitment ratio at or below 10% over the life of this LTFP. That Council retains its Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 13
Details Outcome Strategy Action principal and interest. indebtedness ratio at or below 40% over the life of this LTFP. That Council liquidity ratio is equal to or greater than 1:1.. Rating & Other Revenue Strategies To provide a reasonable degree of consistency, equity and stability in the level of the rates burden and user fees and charges. The rating strategy provides adequate funds to: achieve an underlying surplus prior to capital income and developer contributions in the income statement. achieve a sustainable cash flow; and fund capital works and reduce the renewal gap over a period of time in accordance with Council asset management plans. That Council retains Capital Improved Value (CIV) as its valuation base. That Council retains the rating structure of seven differential rates and conduct a biennial review. Subject to compliance with legislative requirements. That Council review its municipal charge on a biennial basis to ensure an equitable contribution towards the administration/governance costs of Council. That Council benchmark its discretionary user fees and charges with other equivalent Councils on a biennial basis to ensure comparability to its benchmark partners. Asset Management & Capital Works Program Assets will be fit for purpose to provide the desired level of service to the community. Any capital works proposals must have a business case which includes a lifecycle costing and meet the objectives of the Council Plan. That Council complete/update That Council have a 10 year capital works program in accordance with Asset Management Plan s and ensure that adequate and affordable provision is made for the creation of new assets and the renewal of existing assets. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 14
Details Outcome Strategy Action Asset Management Plans (AMPs) for all classes of assets with a focus on ensuring that the assets are fit for purpose and provide the required level of service to the community. That capital expenditure on asset renewal projects is given priority over capital expenditure on new assets. That Council continues to conduct condition audits every 2-3 years on all of the classes of assets. That Council renewal gap ratio is 1:1 by 2020. That Council continues to achieve a capital replacement ratio of greater than 1.0. Service Provision & Planning Council generates sufficient surpluses from operations to continue to provide the existing level of services and meet community demands and expectations. Council continues to consult with the community to determine the desired service levels will be reached including a combination of improved revenue raising, rationalization and review of existing service levels. That Council annually determines the range and level of services provided through the annual budget process incorporating an analysis of the organisational and financial capability. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 15
7 Analysis of Current Position Council s budgets over the last three years have reflected a strong focus on improving the amenity, liveability, social connectedness and governance of the City both practically and strategically. Past budgets have invested significantly in accelerating these outcomes and have successfully established all services on the ground. Over the last three years, Council has made good advances in the planning and delivery of the district-based community facilities, creating a network of public infrastructure, community facilities and services that deliver on the district based approach. The 2012-2013 Budget builds upon the strategic directions set by Council and is closely aligned with the Council Plan. Council has prepared a Strategic Resource Plan (SRP) for the four years 2012-2013 to 2015-2016 as part of its ongoing financial planning to assist in adopting a budget within a longer term framework. The SRP takes the strategic objectives and strategies as specified in Council Plan and expresses them in financial terms for the next four years. In preparing the SRP, the Council has also been mindful of the need to comply with the following principles of sound financial management as contained in the Local Government Act 1989. The following table summarises the key adopted financial results for the next four years as set out in the SRP for years 2012-2013 to 2015-2016. Details Actual 2011/12 $ 000 Budget 2012/13 $ 000 Forecast 2013/14 $ 000 Forecast 2014/15 $ 000 Forecast 2015/16 $ 000 Result for the Year $8,877 $202 $7,327 $10,438 $12,007 Underlying Result $3,162 *$-6,728 $657 $1,608 $2,357 Cash Balances $42,951 $25,920 $28,481 $26,599 $38,477 Cash Flow From $41,051 $32,344 $41,456 $45,871 $48,937 Operations Capital Expenditure $50,280 $60,011 $47,000 $48,800 $44,201 Debt Servicing Ratio 0.62% 0.80% 1.10% 1.35% 1.39% Debt Commitment ratio 5.31% 5.12% 6.5% 6.0% 4.9% Liquidity Ratio 169.5% 112.7% 118.3% 113.5% 135.4% Indebtedness 15.4% 21.0% 27.1% 28.7% 31.6% Self-Financing 25.6% 20.1% 23.5% 24.4% 24.50% Capital Replacement 1.8 2.0 1.5 1.5 1.4 Refer to Section 15 Glossary of the report for definitions of the above table. *Underlying deficit relates to Council receiving in advance for the Financial Assistance Grant of $6.9 million in 2011-2012 which relates to 2012-2013. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 16
8 Challenges Specific to Brimbank City Council 8.1 Office Accommodation Since the amalgamation of the Sunshine and Keilor municipalities in 1994, Council staff are housed in various locations across the municipality, some owned and some leased. The facilities at these locations are at capacity and are no longer suitable for Council s current operations, providing no opportunity for consolidation of Council s total accommodation needs. Maintenance, leasing and energy costs are increasing. As the buildings age, they require additional expenditure just to maintain basic Occupational Health and Safety standards. Additionally, staff need to travel between offices and services are fragmented between the two main buildings at Keilor and Sunshine. Council has been considering options for the provision of a consolidated and improved civic office accommodation and has worked closely with Sweett Group over recent years to prepare a business case and provide on-going strategic advice. A business case have been developed indicating that the best financial outcome is to develop offices on Council owned land. The options under consideration are: Options Total cost over 20 years Net Present Value 1. Refurbish existing facilities, lease additional space, and new library and community spaces. 2. Pre-committed lease back from private market, and new library and community spaces. 3. New integrated civic building and multi-deck car park owned by Council. ($91,443,222) ($49,690,430) ($103,574,232) ($53,730,570) ($56,737,981) ($51,589,078) Council resolved to: Identify the Sunshine Library Site as the preferred site for the development of staff accommodation. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 17
Call for Expression of Interest for development of staff accommodation to include the provision for the Sunshine Library and improved community space. Refer to the Business Case of the Sunshine Library, Community Spaces and Office Accommodation to Council s 2013-2014 budget deliberations. Actively seek tenant partners for the proposed development. Consult with the Keilor community regarding the future community use of existing Keilor offices. 8.2 Former Sunvale Primary School Site The Sunshine Primary School at 20 Neil Street, Sunshine, was closed in September 2009. The closure has resulted in the Sunvale site being declared surplus to the Department of Education and Early Childhood Development s requirements. The site is 2.03 hectares; with a western portion zoned Public Use Zone (Education Purposes) with an area of approximately 1.1 hectares and an eastern portion zoned Residential 1 with an area of approximately 0.93 hectares. The land is located within the boundary of the Sunshine Town Centre. Council s open space and playground policy and plan, Creating Better Parks, states that Council will lobby the Department of Education to obtain a new park in the Sunshine area in any future sales of the Sunvale Primary School land. The Sunshine Structure Plan (2012) identifies the former Sunvale Primary School Site as having potential for open space and residential land use. The structure plan includes actions to continue to advocate for the creation of a new open space on the site and (undertake additional strategic work to inform potential future use and redevelopment of the site. Council resolved to make an offer to the Department of Education and Early Childhood Development to purchase that part of the Sunvale site currently zoned Public Use Zone (Education Purposes approximately 1.1 heactares ), subject to finalisation of an independent valuation that reflects the use of the site for public open space and related purposes. Council also resolved to seek funding from the State and Commonwealth governments for development of the Sunvale site for public open space in the context of additional housing development forecast to occur in the Sunshine Town Centre. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 18
8.3 Infrastructure Renewal Over the life of the LTFP Council is responsible for community infrastructure replacement which is valued at approximately $1.8 billion. Funding to adequately maintain and renew ageing infrastructure is estimated to have an annual shortfall of $14.9 million. Details are as follows: Asset Group Infrastructure Gap (estimated average) Roads, Kerb & Channel Footpaths & Shared Paths Facilities Open Space Drainage $3.4 million $1.2 million $7.3 million $1.5 million $1.5 million To address the infrastructure renewal gap and prevent it from growing, Council has significantly increased its capital works programs and will have to continue this process in the future. 8.4 Service Expenditure The table below provides examples of expenditure increases due to expanding services or funding increases failing to increase with service costs and increases in demand. Services 2009/2010 2010/2011 Actual Actual % 2011/2012 % Actual Libraries & Learning 5,141,293 5,710,361 11% 6,218,097 9% Community Wellbeing 475,476 602,849 27% 698,603 16% Kindergarten Services 332,491 411,496 24% 438,204 6% Youth Services 694,315 1,133,599 63% 1,333,001 18% Family Services 1,001,069 1,273,391 27% 1,380,180 8% Community Strengthening Unit 1,616,910 1,896,780 17% 2,289,045 21% Community Programs 1,541,408 1,700,297 10% 1,887,771 11% Home Care Services 3,253,690 3,423,382 5% 4,305,991 26% Environmental Health / Immunisations Services 156,753 248,072 58% 269,622 9% School Crossing Supervision 1,015,698 1,038,456 2% 1,187,010 14% Waste Services 9,450,570 12,087,340 28% 13,535,164 12% Total 24,679,673 29,526,023 28% 33,542,688 12% Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 19
8.5 Legislative Changes Changes to legislation can often mean additional cost to Council such as the fire service levy and the Superannuation Guarantee Charge (SGC) increasing from 9% to 12% by 2019. Details of the estimated cost to Council are as follows: 1 July SGC % Estimate cost to Council 2013 9.25 $132,000 2014 9.50 $280,000 2015 10.00 $594,000 2016 10.50 $944,000 2017 11.00 $1,335,000 2018 11.50 $1,768,000 2019 12.00 $2,249,000 Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 20
9 Rating Structure Council has developed a Rating Strategy to be formally adopted as part of the budget process. The general rating framework is set out in the Local Government Act 1989 (LGA). The rating strategy will address Section 3C(2f) of the LGA to ensure the equitable imposition of rates and charges. The rating structure comprises of two key elements. These are: Property values; and User pays components to reflect usage of services provided by Council. Striking a proper balance between these elements provides equity in the distribution of the rate burden across property owners. Brimbank City Council makes a further distinction within the property value component of rates based on the purpose for which the property is being used. That is, whether the property is used for residential, business, farming or vacant land. This distinction is based on the concept that each property type should make a fair and equitable contribution to rates, for example, taking into account the benefits that businesses derive from the local community. The rating structure utilises the Capital Improved Value (CIV) of each rateable property in determining rates charged as it provides the most equitable distribution of rates across the municipality. There are no current plans to change the basis of CIV; however Council reviews its rating structure on a biennial basis. The rating structure comprises seven differential rates which are as follows: 1. Residential 2. Residential Flats/Units 3. Retirement Village 4. Commercial/Industrial 5. Vacant Land 6. Farm 7. Cultural & Recreational Land The Retirement Village rate is set at 92.5% of the Residential rate before inclusion of the municipal and environmental charges. Cultural & Recreational land is set at 50% of the Commercial/Industrial rate. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 21
All of these rates are structured in accordance with Section 161 of the Local Government Act 1989. 9.1 Pensioner Rebate Brimbank s rating structure also provides a pensioner rebate of $25.00. Details of the current number of estimated growth and the forecast pensioner rebate are detailed in the following table. Details 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21 2021-22 Residential Properties Properties Rebated 66,280 67,241 68,216 69,205 70,209 71,227 72,259 73,307 74,370 75,449 25.56% 25.57% 25.58% 25.59% 25.61% 25.62% 25.63% 25.64% 25.66% 25.67% Concessions 16,938 17,192 17,450 17,712 17,977 18,247 18,521 18,799 19,081 19,367 Cost to Council $423,450 $429,800 $436,250 $442,800 $449,425 $456,176 $463,025 $469,975 $477,025 $484,175 9.2 Municipal Charge The Municipal Charge, raised in accordance with Section 159 of the Local Government Act 1989, is applied to each rateable property to allow Council to recover part of its administrative cost. Legislation requires that this amount cannot exceed 20% of the total rates raised (including rates, municipal charge and environmental charges). Council municipal charge is currently at 4% of total general rates. Administrative costs including finance, asset management, information systems, corporate records, human resources and governance will be supported by this income. 9.3 Environmental Charge All rateable and non-rateable residential assessments including residential flats/units and retirement village units are charged an environmental fee based on either a 140 litre or 80 litre bin. The 240 litre domestic garbage bin is no longer available to residents. The residents who currently have the 240 litre bins have the option to downsize at anytime and charges will be adjusted from the date of change over. An optional Green Waste service is available to all residential properties. The charge will be determined by the size of the Green Waste bin requested, limited to either a 140 litre or 240 litre Green Waste bin. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 22
9.4 Rates Rates and Charges revenue is an integral part of the Council s revenue base, the value of which is determined through Council s desire to achieve the strategies articulated in its various adopted Plans. General Rates and Charges currently comprise approximately 68.4% of total operating revenue, and this is projected to remain constant throughout the plan period; however it would be desirable to reduce this strong dependence on rate income. Rate rises above CPI are required to produce viable operating results to fund: Asset management and maintenance; Capital renewal works; Long term borrowings; and New infrastructure. The graph below depicts the average rates and charges for residential outer metropolitan councils: Average rates, municipal charge & garbage charge for 2012-13 Nillumbik $2,122 Manningham Wyndham Yarra Ranges Cardinia Hume Greater Dandenong Melton Casey Brimbank Whittlesea Knox Mornington Peninsula $1,738 $1,705 $1,690 $1,661 $1,596 $1,578 $1,577 $1,523 $1,501 $1,462 $1,424 $1,249 Source 2012-13 Victorian Local Government Rates Survey Overall, the average rates for the 13 outer metropolitan councils are $1,602 compared to Brimbank average rates of $1,501 which is 6.7% below the average rate. Within the outer region of Melbourne, Brimbank City Council has the tenth lowest rates followed by Whittlesea, Knox and Mornington Peninsula. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 23
The LTFP includes the following rates and charges increases: 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21 2021-22 2022-23 6.8% 6.8% 6.0% 6.0% 5.0% 5.0% 5.0% 5.0% 5.0% 5.0% To fund the objectives in the LTFP, the above rate increases are required taking into consideration: The average Local Government Cost Index of 4.2%; Council s current and future EBA, additional staff to deal with growth and incremental increases of approximately 6.0% per annum; Addressing service growth/demands; Increased loan borrowings to fund the unfunded superannuation liability and the large capital works program to partly reduce the renewal gap; Reduction in return on investments; and Maintaining long term financial sustainability. The graph below provides details of rates and charges increases from 2006-2007 to 2012-2013 and proposed rates and charges increases for the next 10 years. 8.00% 7.00% 6.00% 5.00% 8.00% 6.50% 5.04% Rates and Charges 6.09% 6.65% 6.80% 6.80% 6.00% 6.00% 5.00% 5.00% 5.00% 5.00% 5.00% 5.00% 4.00% 3.70% 3.00% 2.00% 1.00% 0.00% 0.00% 2006-07 2007-08 2008-09 2009-10 2010-11 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21 2021-22 2022-23 Refer to Rating Strategy 2013-2015 for further details. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 24
10. Borrowing Strategy Determining the appropriate debt level is a complex and difficult task. Each Council is different and the level of debt that is appropriate for Brimbank City Council may not be acceptable for another council. In developing the LTFP, borrowings were identified as an important funding source for the capital works program, and the cost of infrastructure should not be borne entirely by present ratepayers but be contributed to by future generations that will also derive a benefit. Current loan borrowings in the Strategic Resource Plan are only for capital works and not to finance recurrent expenditure or finance operating activities. 10.1 Unfunded Superannuation Liability It is proposed to include loan borrowings for the unfunded superannuation liability which Council was notified of on 31 July 2012. The Brimbank City Council portion of this state-wide liability is $17.1 million including contribution tax and Work Cover. The superannuation authority, Vision Super, has provided the following options for payment: 1. By equal annual instalments over a 15 year period from 1 July 2013. In this option interest will accrue at the rate of 7.5% per annum (compared to loan borrowings of approximately 5.3%), the long term earning rate recommended by the Actuary; 2. As a lump sum; and 3. By any combination of the above two. For Brimbank City Council choosing option 1 over 15 years would amount to a total repayment of $26,548,322 which comprised of: the unfunded liability of $14,275,529; interest costs of $8,290,544; and contribution tax of $3,982,249. In comparison by Council adopting a loan borrowing strategy for unfunded superannuation it would amount to a total repayment of approximately $21,775,700 which is a saving of approximately $4,772,600 over 15 years and $7,191,500 over 10 years. 10.2 Borrowing Assessment The use of loan borrowings as a funding source for the budget and LTFP warrants careful consideration. The application of loan borrowings as a funding source is best applied within a financial strategy framework where the use of loan borrowings is governed by a set of principles which are further reinforced by a set of financial ratios which ensure that debt levels are retained within manageable levels. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 25
Prior to undertaking any borrowings Council needs to assess its capacity to pay, so that the community is not burdened with unnecessary risk. The basis for determination of the utilisation of loan borrowings is as follows: Renewing, replacement or new infrastructure to meet specific community needs agreed to by the Council; Meet the Council Plan 2012-2016 strategic objectives; All loan borrowings are able to be adequately serviced over the life of the loan; The term of any loan will not exceed the expected life of the asset being funded; All loan borrowings will be in accordance with Section 144 of the Local Government Act 1989; Growth rate in the municipality or changing demographics; In determining the amount of loan borrowings Council will also consider any financial effects placed upon the future generations; and Generate financial return to meet repayments. The following ratios are to be used in determining the amount of borrowings: Ratios % Financial Indictors Threshold Adjusted working Current assets to current liability 140%-150% capital ratio Debt servicing Debt servicing cost to total revenue 5% Debt commitment Debt exposure Indebtedness Debt servicing cost and redemption cost to rate revenue Total indebtedness to total realisable assets Net operating cash flows/underlying revenue 10% 40% 40% The basis for using the above ratios is that it determines that the loan borrowings are able to be funded so that the community is not burdened with unnecessary risk. Definition of Ratios Adjusted working capital Current Assets / Current Liabilities This ratio expresses the level of current assets the Council has available to meet its current liability. Current liabilities have been reduced by Long Service Leave entitlements as Council does not have an unconditional right to defer settlement of the liability for at least 12 months after 30 June each year, but is not likely to fall due within 12 months after the end of the financial year. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 26
Debt Servicing Ratio Debt servicing cost /Total Revenue This ratio expresses the amount of interest paid as a percentage of Council s total revenue. Debt Commitment Debt servicing cost and redemption cost / rate revenue This ratio expresses the percentage of rate revenue utilised to pay interest and redeem debt principal. Debt Exposure Ratio Total indebtedness / total realisable assets This ratio enables assessment of Council's solvency and exposure to debt. Total indebtedness refers to the total liabilities of Council. Total liabilities are compared to total realisable assets which are all Council assets not subject to any restriction and are able to be realised. The ratio expresses the percentage of total liabilities for each dollar of realisable assets. Indebtedness Ratio Net operating cash flows/underlying revenue This ratio provides comparison of non-current liabilities (mainly loans) to own sourced revenue. The higher the percentage, the less able to cover non-current liabilities from the revenues Council generates itself. 10.3 Future Loan Borrowings The following table provides details of debt over the life of the LTFP, with borrowings increasing in the initial years of the ten year plan. Year New Borrowings $'000 Principal Paid $000 Interest Paid $'000 Balance 30 June $'000 2013-14 30,000 6,938 1,515 51,418 2014-15 5,000 6,463 2,718 49,955 2015-16 10,000 4,895 2,668 55,060 2016-17 4,000 5,628 2,925 53,432 2017-18 - 4,694 2,883 48,739 2018-19 - 4,808 2,618 43,930 2019-20 - 5,089 2,337 38,841 2020-21 - 5,386 2,040 33,455 2021-22 - 5,701 1,725 27,754 2022-23 - 6,035 1,392 21,719 For the 2013-2014 year Council will borrow $30.0 million to fund the capital works program. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 27
Other future borrowings are also to fund the increasing capital works program particularly the Community and Civic Centre project, of which the cost would be borne across current and future generations and reduced the renewal gap. Details of the renewal gap are as follows: Gradual improvement to Council s Sustainability Index from average of.77 to 0.8 for years 1, 2, 3, 4 and 5; Further improve to 0.9 in years 6, 7, 8 and 9; Achieve the ideal sustainability index of 1.0 from year 10 onwards. The following table provides details of the loan borrowing financial indicators. Year Debt Servicing Ratio Debt commitment ratio Adjusted Working Ratio Indebtedness Debt exposure 2013-14 1.0% 7.0% 160.3% 35.2% 7.0% 2014-15 1.5% 6.9% 155.2% 32.0% 6.7% 2015-16 1.3% 5.4% 156.0% 32.5% 7.2% 2016-17 1.4% 5.7% 160.3% 30.5% 6.9% 2017-18 1.3% 4.8% 166.2% 27.2% 6.3% 2018-19 1.1% 4.4% 171.0% 23.2% 5.6% 2019-20 1.0% 4.2% 174.3% 19.4% 4.9% 2020-21 0.8% 4.0% 174.0% 15.9% 4.2% 2021-22 0.6% 3.8% 168.9% 12.5% 3.5% 2022-23 0.5% 3.6% 173.5% 10.2% 2.7% Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 28
11. Asset Management Asset Management is an essential component of the LTFP as it provides an indicator of the necessary financial commitment which would adequately sustain Council s asset base in future years. To achieve long-term financial sustainability, effective asset management processes are essential. 11.1 Infrastructure Assets Over the life of the LTFP the Council has an estimated replacement value of $1.8 billion in infrastructure assets which have built up progressively over the last 50-60 years. Some of these assets are approaching the end of their useful life and will need considerable capital investment to ensure their continued service. The following table provides details of Council s infrastructure assets and their replacement values: Asset Category Current Replacement Value $ 000 Value % Buildings 171,104 9.5 Land 390,024 21.8 Bridges and culverts 23,095 1.3 Drains 281,268 15.7 Footpaths 149,949 8.4 Roads 613,924 34.2 Car parks 20,304 1.1 Sport facilities 43,883 2.5 Dams 461 - Road reserve assets 2,055 0.1 Traffic management 62,502 3.5 Fences 3,803 0.2 Paths 15,794 0.9 Irrigation systems 2,434 0.1 Playground equipment 5,240 0.3 Other structures 6,826 0.4 Total 1,792,665 100 Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 29
The specific details of these major asset categories are: Description Details Inventory (as of 2 January, 2013) Bridges & Major Culverts Complete inventory listing of Council owned bridges and major culverts from the RAMP asset register. Some of these assets may have a shared responsibility with other relevant authorities. 36 Bridges & 24 Major Culverts Open Space Includes access ways, parks and reserves. 1,187 ha Drainage Pipes Total length (km) of drainage assets. 1,195 km Drainage Pits Includes all GPT s and litter basket types. 42,293 units Roads Buildings Car parks Footpaths Includes all surface pavement types, including a small number of unsealed roads. This register is currently being revised as part of the triennial road inventory and condition audit. Includes community centres, municipal offices, pavilions, sheds, gazebos and animal pounds. Includes indented, disabled and parallel parking spaces. This register is currently being revised as part of the triennial road inventory and condition audit to also include car parks outside PAC s. This register is currently being revised as part of the triennial footpath inventory and condition audit. 892.6 km 300 851 bays 1,569 km 11.2 Renewal Gap In terms of considering the full extent of Council s asset management funding gap, it is essential that Council ultimately considers both the renewal funding gap and the maintenance funding gap, as shortfalls in maintenance funding actually accelerates the need to renew assets. One of the challenges for Council is the fact that a substantial portion of its assets were constructed in the period during 1960 to 1980. As a consequence the majority of infrastructure assets are now approaching 30 to 50 years old and in many cases will become a renewal issue over the coming 10 to 20 year period. Details of the renewal gap are as follows: Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 30
The table above highlights the current estimated annual infrastructure gap for the 10 years. The sustainability index, which measures the extent to which the consumption of an asset is being adequately maintained and replaced, indicates that assets are being consumed faster than the rate of investment. Based on the current level of maintenance and renewal funding, over the next 10 year projected period, the average infrastructure gap is estimated to be at around $14.9M per annum. This figure is in current dollar value as at 30 June 2012, and does not allow for inflation in the projections. The LTFP aims to achieve the following objectives: Gradual improvement to Council s Sustainability Index to 0.8 for years 1,2,3, 4 and 5; Further improve this to 0.9 in years 6, 7 and 8; Achieve the ideal sustainability index of 1.0 from year 9 onwards; and Maintenance and renewal budget estimates are based on NPV as of June 2012 with an assumed cash discount rate of 3.5%. The graph below highlights the projected maintenance budget allocation required every year for all asset classes. The Projected Renewal Budget is an estimate of the annual budget allocation every year to renew existing assets which have been included in the LTFP. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 31
The table below provides renewal and maintenance expenditure to achieve the above sustainability index. Forecast Forecast Forecast Forecast Forecast Forecast Forecast Forecast Forecast Forecast 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21 2021-22 2022-23 $'000 $'000 $'000 $'000 $'000 $'000 $'000 $'000 $'000 $'000 67,190 70,485 88,918 80,297 74,845 78,555 80,320 82,530 84,800 86,338 11.3 Capital Works Program The 10 year capital works program accompanying this LTFP identifies numerous individual projects requiring funding for the first five years of this plan. The timing and delivery of these projects may be subject to a partnership with other levels of government. The aggregated gross capital works budget over the life of the LTFP will be approximately $533.70 million in present value. Details are as follows: Forecast Forecast Forecast Forecast Forecast Forecast Forecast Forecast Forecast Forecast 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21 2021-22 2022-23 $'000 $'000 $'000 $'000 $'000 $'000 $'000 $'000 $'000 $'000 50,992 50,817 62,350 56,571 50,200 51,200 51,700 52,700 53,700 53,700 The significant increase in the capital works program for the two years in 2014-2015 and 2016-2017 relates to the construction of Council office development to include the provision for the Sunshine Library and improved community space at Hampshire Road, Sunshine. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 32
12. Service Provision and Planning Council s budgets over the last three years reflected a strong focus on improving the amenity, liveability, social connectedness and governance of the City, both practical and strategic. Past budgets have invested significantly in accelerating these outcomes and have successfully established all services on the ground. Council has also made significant advances in the planning and delivery of district based community facilities, creating a network of public infrastructure, community facilities and services that deliver on the district based approach. 12.1 Operating Expenditure /Revenue The 2012-2013 operating expense and revenue budget are $169.2 million and $162.8 respectively. Council s provisions of services include: Children, youth and family services; Leisure, cultural and community strengthening; Library services; Roads, footpaths, drains and building maintenance; Parks and open space; Waste and recycling; Environmental health and immunisation; Planning and building services; Community regulations; and Ageing and inclusion. 12.2 Growth of Council The population forecasts indicate that it will increase over the next 10 years. The salient statistics are: the population of Brimbank will be 196,082 in 2014; it will increase by 3,749 to 199,831 in 2019; and it will increase by a further 3,238 to 203,069 by 2024. The total population increase for the period 2014 to 2024 is expected to be 6,987. 1 Figures 1 and 2 show the changes in the age groups every five years. The major changes are: Decreases every five years in the number of residents in the 0 to 4, 18 to 24, and 25 to 34 year age groups. Increases every five years in the age groups after age 35, with marked increase in the 35 to 39, 60 to 69 and 70 to 84 year age groups. Figure 1 Number of residents in each age group at 2014, 2019 and 2024 1 The.id Consulting foreacasts were accessed on 17 th December 2012 at the Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 33
45,000 40,000 35,000 30,000 25,000 20,000 15,000 10,000 5,000 0 0-4 5-11 12-17 18-24 25-34 35-39 50-59 60-69 70-84 85 and over 2014 13,545 18,109 15,473 19,542 29,709 40,678 23,902 19,201 13,537 2,388 2019 13,102 18,362 15,474 19,378 28,933 41,508 23,989 20,241 16,201 2,642 2024 12,981 18,061 15,848 19,291 28,845 41,713 24,367 20,694 18,475 2,794 Figure 2 Change in number of residents in each service age group every five years 6,000 5,000 4,000 3,000 2,000 1,000 0-1,000-2,000 Change 2019 to 2024 Change 2014 to 2019 0-4 5-11 12-17 18-24 25-34 35-39 50-59 60-69 70-84 85 and over -121-301 374-87 -88 205 378 453 2,274 152-443 253 1-164 -776 830 87 1,040 2,664 254 12.3 Private dwelling changes 2014-2024 The forecasts indicate that there will be over 5,500 new private dwellings in Brimbank between 2014 and 2024. The largest increases in the number of new dwellings are forecast to occur in: Sunshine (1,058), St Albans East and West (8255), Sunshine North and West (660), Taylors Lakes (West) & District (540), and Delahey (530). Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 34
The table below provides details of private dwelling changes: Table 1 New structural private dwellings in Brimbank 2012-2024 Year Dwelling commencements during the year Structural private dwellings at end of year 2014 690 69,023 2015 604 69,627 2016 512 70,139 2017 482 70,621 2018 484 71,105 2019 559 71,664 2020 579 72,243 2021 544 72,787 2022 438 73,225 2023 358 73,583 2024 338 73,921 Increase 2014 to 2024 5,588 Based on the forecast population growth being relatively stable it is assumed that the range of service delivery will change over the life of the LTFP and will operate within Council s current operating expenditure. Overall, the growth will be serviced in line with Council s continuous improvement, innovation and efficiency. The service level will be reviewed annually through the annual budget process. Population changes and household formation rates in Brimbank may change, particularly due to external factors including migration rates and economic conditions. The take-up of new forms of higher density housing may also increase over the period of the LTFP. The population forecasts applied as part of the LTFP will be regularly reviewed, along with building construction data and other measures of population change. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 35
13 Strategic Financial Plan There are a number of dynamic variables that may influence the outcomes expressed in this LTFP. They include: Rating levels and supplementary rate income; Government grant revenue - both recurrent and capital; Asset revaluations and quantum of depreciation charges; Asset disposals; Borrowing capacity; Mix of funding between capital works/special projects and new initiatives; Technological changes; Economic conditions and cost increases; Industrial relations wage rates; Changes in population and household formation/location and Level of services and growth factor applied to expenditure items. The financial outcomes of the LTFP process are documented in Key Financial Statements in Attachment 1 of this report. The long term budgeted financial statements are the heart of the LTFP. The four key financial statements are; Standard Income Statement; Standard Balance Sheet Statement; Standard Cash Flow Statement; and Standard Capital Works Statement. This method of analysis is most appropriate for the Local Government sector, and is endorsed by the working party that developed the Best Practice Guide for Reporting Local Government Budgets in Victoria document. The working party group includes the Accounting Profession (Chartered Accountants), Local Government Practitioners, Local Government Finance Professionals (FinPro), Local Government Professionals (LGPro) and the Municipal Association of Victoria (MAV). The methodology is also in conformity with the Australian Equivalent of the International Financial Reporting Standards (AEIFRS) for not for profit organisations such as local governments. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 36
13.1 Key Financial Indicators The following table summarises the key financial results for the new 10 years. * Victoria Auditor General financial sustainability indicators Legend for financial risk assessment Refer to Section 15 Glossary of this report for definitions of financial ratios. 13.2 Financial Assumptions In constructing the LTFP, a number of assumptions and variables have been used. This section details the approach to financial modelling used in the assumptions that have been applied. 13.2.1 Rates and Charges Rates and charges rises above CPI are required to produce viable operating results, which in turn generates funds for asset management, namely asset maintenance, new infrastructure and capital renewal works, and for long term borrowing management. The LTFP is based on the following increase for rates and charges: 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21 2021-22 2022-23 6.8% 6.8% 6.0% 6.0% 5.0% 5.0% 5.0% 5.0% 5.0% 5.0% The LTFP also assumes an ongoing level of supplementary rates of approximately $1.0 million per annum. Brimbank City Council 2013-2023 Draft Long Term Financial Plan Page 37