LIMERICK REORGANISATION
IMPLEMENTATION GROUP (LRIG)
Limerick City Council
Limerick County Council
IMPLEMENTATION PLAN
to the
MINISTER FOR THE ENVIRONMENT,
COMMUNITY AND LOCAL GOVERNMENT
DECEMBER 2012
Table of Contents
Foreword
3
1.0
4
Background
1.1
Initial Report and Recommendations – March 2012
4
1.2
Progress Report and Recommendations – July 2012
4
2.0
A New Model of Local Government in Limerick
6
2.1
The Challenges and Opportunities for Local Government in Limerick
6
2.2
Organisation Structure for Joint Service Delivery
6
2.3
3.0
Implications of Local Government Reform for the New Management Structure
Progress to Date
7
9
3.1
Methodology
9
3.2
The Work Programme to November 2012
9
3.3
Overview of Key Developments to Date
4.0
10
3.3.1
Economic Development in Limerick
10
3.3.2
Limerick – National City of Culture 2014
12
3.3.3
Regeneration
12
3.3.4
Financial Planning
13
3.3.5
Governance Arrangements
13
Pointing the Way Forward
15
4.1
Corporate HQ and Identity for the new Limerick Local Authority
15
4.2
Developing the Service Delivery Model
15
4.3
Strengthening the Project Management Arrangements
15
4.4
Completion of Service Unit Plans
16
4.5
Development of a Workforce Plan
16
4.6
Legislation to Underpin the Establishment of the New Authority
17
4.7
Economic Development and the Rebranding of Limerick
17
4.8
Regeneration
17
4.9
Joint Arrangements with Clare County Council
18
4.10
Financial Planning
18
5.0
Conclusions and Recommendations
19
APPENDIX 1
Terms of Reference
231
APPENDIX 2
Legislative Issues
23
Foreword
The vision for local government reform of the Minister for the Environment, Community and Local
Government recently published in Putting People First – Action Programme for Effective Local
Government “sees local government leading economic, social and community development, as well
as delivering efficient services that are good value”1. The merging of Limerick City and County
Councils presents a unique opportunity to create an organisation and structures that allow the new
Limerick Local Authority to proactively respond to the current and future challenges and
opportunities in Limerick.
This Implementation Plan aims to outline key developments to date and to set out the road map
for the reorganisation and transformation of local government in Limerick. It is designed to provide
an overview of the strategy and a framework to ensure the successful merger of Limerick City and
County Councils by June 2014. It presents an outline of the new Limerick Local Authority’s role in
relation to economic development and its mission in relation to sustaining and creating jobs. The
vision for the new authority also affirms the need for the authority to embrace change, modernise,
transform and adapt to new financial circumstances and deliver even better services with scarcer
resources.
I wish to record my thanks to past and current members of the Limerick Reorganisation
Implementation Group, the project support team and the management teams and staff of both
local authorities for their work and commitment in the preparation of this Plan. I also acknowledge
the contribution and constructive engagement which the Implementation Group has had in the
course of its work with a wide range of stakeholders in Limerick, including the elected members of
both local authorities, third level institutions, business community, communities in the
regeneration areas, staff and trade unions.
Denis Brosnan
Chairman
Limerick Reorganisation Implementation Group
December 2012
1
A statement by the Minister for the Environment, Community and Local Government, Mr. Phil Hogan
on the publication of “Putting People First – Action Programme for Effective Local Government”,
Department of the Environment, Community and Local Government, Dublin, October 2012.
3
1.0
Background
1.1
Initial Report and Recommendations – March 2012
In March 2012, the Limerick Reorganisation Implementation Group (LRIG) presented its Initial
Report to the Minister, which was prepared in accordance with the requirements of its Terms of
Reference (See Appendix 1). The purpose of this Initial Report was to:
 Identify and explore the key issues and challenges involved in merging the two Limerick
local authorities and the Limerick Regeneration Agencies, in the transition phase and post
the establishment of the new authority;
 Identify early priorities and “early wins” in the area of joint service delivery in advance of
the new authority being established;
 Identify the changes in legislation required to enable effective interim joint service delivery
arrangements and the establishment of the new authority;
 Identify the next steps in the reorganisation process.
The main recommendations of the LRIG in this Initial Report were that:
1. The Department of the Environment, Community and Local Government (DOECLG)
immediately advance the process for the selection of a Manager/CEO Designate to lead the
new authority and to act as the Manager of the two existing local authorities until June
2014;
2. The DOECLG progress the drafting and enactment of the necessary legislation to provide for
the establishment of the single authority by June 2014;
3. The Department progress with the preparatory work required in advance of the
establishment of an Electoral Area Committee to make recommendations on the number of
elected members and the formation of electoral areas for the single authority in 2014;
4. The senior management structure for the new authority should be comprised of a
Manager/CEO, 6 Director of Services and 1 Head of Finance, including dedicated
Directorates for Regeneration and for Economic Development;
5. Pending the establishment of the new authority, an Office for Regeneration be set up and a
Director of Services be appointed with responsibility for this office who will report to the
Manager/CEO designate of the new authority;
6. A dedicated project team be established to assist in the preparation of the Implementation
Plan and to oversee the introduction of joint service provision.
1.2
Progress Report and Recommendations – July 2012
A Progress Report was submitted to the Minister in July 2012 with an update on developments in
relation to the Initial Report recommendations and other matters related to the amalgamation. A
number of themes and recommendations, building on the priorities documented in the Initial
Report, were identified by the LRIG in its Progress Report including:
 A new more efficient and unified service delivery model is being developed;
4
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A new senior management structure involving a reduction of 40% in senior grades;
Substantial savings to be realised on pay and non-pay administrative costs;
Cost savings of €6.1m are required to be identified by January 2015 in order to reduce
commercial rates in Limerick City to the County level;
Further savings as a result of economies of scale and other local government reform
measures;
A detailed Workforce Plan is to be prepared which will match the new local authority’s
organisational needs with human and financial resources;
The HQ of the new authority is likely to be located in Limerick City Hall;
A number of initiatives are proposed to rebrand Limerick in order to create a new and
positive image for Limerick based upon its rich cultural and sporting heritage;
The amalgamation will provide an unprecedented opportunity to set economic
development at the centre of local government reform and will place the focus on Limerick
City as a driver for economic development in the Mid-West Region;
The new Limerick Local Authority will lead the revitalisation of Limerick city centre,
including the redevelopment of strategic derelict sites;
An independent consultant will work with the elected members of both local authorities to
prepare a report on governance arrangements for the new local authority; and
A new Directorate for Regeneration will be established.
It was envisaged that a comprehensive Implementation Plan detailing the operational and other
measures leading to the establishment of the single authority in 2014 would be completed and
submitted to the Minister in November 2012.
5
2.0
A New Model of Local Government in Limerick
2.1
The Challenges and Opportunities for Local Government in Limerick
The key issues and challenges facing Limerick were also highlighted in the Mid-West Task Force Final
Report. The Limerick Reorganisation Implementation Group identified similar issues and challenges
in its Initial and Progress Reports to the Minister for the Environment, Community and Local
Government, in March and July 2012 respectively. In particular, the LRIG highlighted matters in
relation to:
1.
2.
3.
4.
5.
6.
The identification of a City with a population of around 100,000;
The development of a new service delivery model for local government in Limerick;
Defining the role of the new authority in relation to Enterprise and Employment;
Revitalising Limerick City Centre;
Regeneration Areas in Limerick City;
Financial challenges in bring about a saving of €15m in the long-term and €6.1m in the shortterm to bring about the equalisation of rates between the City and County;
7. Corporate identity issues.
An analysis of alternative models of local government in Ireland and internationally was carried out.
The results of this analysis informed the development of a service delivery model and structures that
best met the needs of the new authority. In outlining the proposals for the merger, the LRIG also took
into consideration the recent proposals for local government reform published by the Minister for the
Environment, Community and Local Government in Putting People First - Action Programme for
Effective Local Government.
The LRIG is in agreement with the Minister’s reform proposals that the new local authority should play
a lead role in:
 Economic development and job creation through a new dedicated Strategic Policy Committee for
Economic Development a specific Director of Services for Economic Development;
 The regeneration of Limerick City;
 Efficient delivery of services and increased responsiveness to stakeholder needs through the
appointment of a Customer Services Officer and customer service initiatives;
 Developing a high performance organisation with a competency based framework at its core.
2.2
Organisation Structure for Joint Service Delivery
The organisation structure for the new Limerick Local Authority as first envisaged by the LRIG was
outlined in the Initial Report to the Minister. This structure comprised of a Manager, 6 Directors of
Services and 1 Head of Finance.
Following the appointment of Mr Conn Murray as the Manager of the Limerick Local Authorities in
August 2012, further consideration was given to the appropriate management structure for the new
6
authority. The management structure put in place since early November 2012 for joint service
delivery, together with the proposed structure post-2014, are shown in Fig. 1 below.
2.3 Implications of Local Government Reform for the New Management Structure
Putting People First - Action Programme for Effective Local Government notes that “In keeping
with public service reform generally, local government structures will be streamlined and
strengthened. The disparate array of 114 local authorities at present will be replaced by 31 City
and County Councils, with integrated districts.”
Key features of the local government reform proposals set out in Putting People First - Action
Programme for Effective Local Government include the following:
 ”The new municipal districts will cover each entire county and will be built as far as possible
around the main towns and their natural hinterlands, unlike the current isolated town
authorities.
 A single county-wide administrative structure will deal with operational functions and elected
members will decide relevant matters at municipal district and County levels, respectively, with
no duplication or overlapping of functions.
 Councillors will be simultaneously elected to the municipal districts and the County Council
instead of current separate town and county councils.
 The areas of the municipal districts will be drawn up on the basis of a review by an independent
statutory committee, which will report by early 2013.
 Current weaknesses and anomalies, for example, Town Councils’ lack of powers and resources;
town and county duplication; boundary issues; inconsistency between municipal and
nonmunicipal towns, will be removed.”
The implications of these proposals will be reflected in the establishment of suitable merged
management, administration and staffing structures for the new Limerick Local Authority.
7
Post-2014
Nov. 2012
Manager
/C.E.O.
Office of
Regeneration
Director of
Services
Director of
Services
Director of
Services
Director of
Services
Director of
Services
Director of
Services
Director
of Services
Director of
Services
Head of
Finance
Home &
Community
Culture &
Sport
Economic
Development
& Planning
Travel &
Transport
Environment
Water &
Emergency
Services
Human
Resources
Corporate
Services &
Change Man
Finance
& ICT
Director of Services
Director of Services
Director of Services
Home, Community,
Culture & Sport
Economic
Development,
Planning,
Travel & Transport
Environment and
Emergency Services
Director of
Services
Corporate Services
&
Human Resources
Fig. 1: Management Structure for Joint Service Delivery – November 2012 and Post-2014
Head of Finance
Finance & ICT
3.0
Progress to Date
3.1
Methodology
The LRIG was required to oversee the planning and implementation of the reorganisation process in
respect of the merger of Limerick City and County Councils. At an operational level, work on
developing and implementing plans rested with the Joint Management Team of the two local
authorities. The Joint Management Team was supported in its work by the Director appointed to the
LRIG in January 2012. Through a series of workshops and meetings, the Joint Management Team
adopted a methodology and approach to indentifying and exploring the options in relation to the new
organisation structure and service delivery model. The key stages in the process are identified in the
Fig. 2 below.
Decide what role and functions the
new authority should perform
STEP 1
Define Role
& Responsibilities
STEP 2
Develop
Structure
Develop structure to address
challenges for local government in
Limerick and to effectively deliver
services and functions
STEP 3
Assign
Resources
Assign staffing and other resources
Fig. 2: Process for Identifying and Exploring Options in Relation to the Structure, Role and
Responsibilities of the New Local Authority
3.2
The Work Programme to November 2012
The Management Team members engaged in a series of workshops and planning exercises designed to
contribute to the development of joint service delivery arrangements for the transition phase and for
the New Local Authority in 2014.
In particular, work has been progressed on:
 Developing the Strategic Vision and Values for the new local authority;
 Developing Service Unit Plans:
o Agreeing which services best fit with the functional areas within the new structure
o Determining appropriate staffing structures for the functional areas within the new structure;
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Reviewing the policies, procedures, processes and practices of the existing local authorities and
developing those which are best suited to be adopted for the new local authority;
Determining the organisational and staffing arrangements to continue the work of the
Regeneration Agencies post June 2012;
Communicating and consulting with staff and Trade Union representatives.
3.3
Overview of Key Developments to Date
In the paragraphs below, an overview of key developments to date is provided.
3.3.1 Economic Development in Limerick
The Ministers Reform Proposals:
The Minister for the Environment, Community and Local Governments reform proposals in Putting People
First - Action Programme for Effective Local Government provide for the following in relation to the
economic development and job creation in terms of local government reform:
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“There will be an enhanced role in economic development and enterprise support.
A new dedicated Strategic Policy Committee for Economic Development will be created in
each local authority and a specific director of services for economic development will be
created in many local authorities.
Local economic development strategies will be adopted as part of the City and County
development plan.
Local authorities will build on the 2,000 initiatives already in train to develop innovative best
practice approaches for mainstream application across the local government sector.
New Local Enterprise Offices (LEO’s) will be integrated with local authority business support
units to create a one-stop-shop for business support.
There will be closer alignment of local and community development supports with local
government.”
The reform proposals also envisage:
 “The formulation of regional spatial and economic strategies by the regional assemblies;
 A systematic and proactive approach to ensure that general functions and services support
enterprise and economic development; and
 Intensifying those actions in the sectoral strategy that require the involvement and
collaboration of local government.”
Implications of Developments in relation to Shannon Airport and Shannon Development:
The Group notes the recent Government decision to grant full independence to Shannon Airport
on 31st December 2012. The Airport will combine with a restructured Shannon Development to
form a new publicly-owned commercial company. The new entity will include Shannon
Development’s extensive land bank and will be tasked with developing an international aviation
centre of excellence.
10
It is understood that Shannon Development’s enterprise functions will transfer to Enterprise
Ireland and the IDA and that a plan for delivery of enterprise supports in the Region by those
agencies will be developed. The tourism functions of Shannon Development, including Regional
Tourism Offices, will transfer to Fáilte Ireland. This new entity will continue to support the
property needs of IDA/EI clients in the area.
The LRIG considers that it is critically important that the Shannon Development strategic industrial
zoned lands at the National Technology Park at Plassey and the Raheen Industrial Estate in Limerick
City Environs are transferred to the ownership of the Local Authority or the IDA. The transfer of
these zoned industrial lands to the local authority in Limerick would greatly enhance the local
authority’s capacity and remit to attract investment and to provide a proper “one-stop-shop” in
relation to the facilitation of new medium to large FDI and indigenous industries. The
development of these lands would not form part of the core business of the new Airport Company,
whose role is envisaged to be concentrated on revitalising Shannon Airport and the development
of the large land bank adjacent to the airport for aircraft-related enterprise.
The LRIG also considers that the other outlying Shannon Development owned lands in County
Limerick, including in NewcastleWest, Kilmallock and Askeaton, be transferred to the local
authority. These lands have little or no strategic importance to the IDA or the new Shannon
Airport Company but could be used by the local authority and other local enterprise agencies (new
LEO, Leader Companies, etc.) to accommodate small to medium enterprises.
Measures in place in the Limerick Local Authority in Relation to Economic Development:
The following measures have been put in place to enhance the Limerick Local Authorities role in
Economic Development:
 A new Economic Development and Planning Directorate has been established;
 A new Director of Services with responsibility Economic Development and Planning has been
appointed;
 A management and administrative structure for Economic Development based on four business
units has been developed (See Fig. 3 below);
 The preparation of an Economic Development and Spatial Implementation Plan is well
advanced and will be brought before both Councils in early 2013.
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Director of Services
Economic Development and Planning
Planning and
Development
Urban Centre
Management and
Development
Business Support Unit
LARGE
Marketing
/ Rebranding
MICRO/MEDIUM
Fig. 3: Economic Development and Planning – Management Structure
3.3.2 Limerick – National City of Culture 2014
The LRIG developed a proposal for the granting the inaugural National City of Culture designation
to Limerick in 2014. This proposal met with a positive response from the Minister for Arts,
Heritage and the Gaeltacht and in July 2012 Minister Deenihan officially announced that he had
granted the National City of Culture designation to Limerick in 2014. It is intended that the
designation of Limerick – National City of Culture 2014 will act as a catalyst to deliver real and
credible changes, economically, physically, socially and emotionally, leading to a long lasting
renewal.
The Management Structure for the Limerick – National City of Culture 2014 initiative has been
agreed and is set out in Fig. 4 below. Key members of the Management Group are now in place.
Management Group
Finance Group
Operational Groups (7 no.)
Marketing Group
Fig. 4: City of Culture – Management Structure
3.3.3 Regeneration
The statutory remit of the Limerick Regeneration Agencies ended in June 2012.
An Interim Director of the Office of Regeneration was appointed in April 2012 and charged with
responsibility for the transfer of all functions, assets and liabilities of the Regeneration Agencies to
the new Office of Regeneration in the Limerick Local Authority under the control of the new
unitary manager. This transition was successfully completed and the Office of Regeneration has
been organised and configured so as to bring about significant financial savings. These savings can
now be reinvested in the regeneration communities and infrastructural projects in the
12
regeneration areas. The Interim Director’s remit was extended in November 2012 to also include
the Home and Community functions of both Limerick local authorities.
Fig. 5 below sets out the Management Structure for the Office of Regeneration.
Director of Services
Office of Regeneration
North-side
Regeneration
Office
Central
Administration
Project Management
and Technical
South-side
Regeneration
Office
Fig. 5: Regeneration – Management Structure
3.3.4 Financial Planning
The amalgamation of the two Limerick local authorities presents a set of unique financial
challenges which must be addressed. There is a need to maximise the potential for savings from
combining services, ending duplication in services, economies of scale, together with results from
the workforce planning exercise and the application of best practice in organisational and
operational standards. The most pressing challenge is to put measures in place which will bring
about a sustainable convergence of the commercial rate between the City and County Councils at
the earliest possible date.
Progress has already been made in 2012 with a significant reduction in senior management grades
in both local authorities and in the Regeneration agencies which has resulted in financial savings in
staff costs in excess of €500,000.
Work is ongoing on analysing the financial position of both local authorities in order to identify
where cost savings and efficiencies may be achieved. The Group acknowledges that it will take
time for significant savings to accrue from payroll and non-payroll costs.
3.3.5 Governance Arrangements
The LRIG has met on a number of occasions with the Joint Committee of Elected Members from
both the City and County Councils for the purpose of briefing them on developments and progress
being made in relation to its Terms of Reference. One of the key concerns of the Elected Members
is the governance arrangements for the new Limerick City and County Council.
13
The LRIG provided the Elected Representatives with independent expert assistance to advise and
facilitate their discussions on matters relating to the governance of the New Authority. This work
is ongoing and will assist the Elected Members in the preparation of a submission to the Local
Electoral Area Boundary Committee.
Mr. Phil Hogan, T.D., Minister for the Environment, Community and Local Government, announced
on 15th November 2012 that he has established a Local Electoral Area Boundary Committee. This
Committee will review and make recommendations on local electoral area boundaries in the
context of the results of census 2011 and the Action Programme for Effective Local Government.
The Minister has asked the committee to report to him as soon as possible and in any event no
later than 31 May 2013.
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4.0
Pointing the Way Forward
The following provides an outline of the next steps to be put in place in advancing towards the
establishment of a single local authority for Limerick.
4.1
Corporate HQ and Identity for the new Limerick Local Authority
The LRIG was charged by the Minister with responsibility “to ensure that the status, identity,
character, and heritage of the city of Limerick are maintained and enhanced within the unified
authority.” The LRIG recommends that:
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The name of the new council should be the “Limerick City and County Council”;
A new Limerick City Metropolitan District be established encompassing an area with a
population of around 100,000;
In defining the Limerick City Metropolitan District, the history and traditions associated with
the office of Mayor of Limerick City be retained;
The Corporate HQ for the new authority be located in City Hall;
The Minister should enable the establishment of a single motor vehicle licensing authority for
the new Limerick Local Authority.
4.2
Developing the Service Delivery Model
Directors of Services have now been appointed with City and County wide remits for joint service
delivery up to June 2014. In order to make further progress on merging of Management and
Administrative Structures the following are identified as priority areas for action:
 Establishment of a dedicated project team to monitor and ensure delivery of the
Implementation Plan;
 Re-examination of the Service Unit Plans and assessment of the implications of the local
government reform proposals for municipal areas for the service delivery model;
 Preparation of a detailed Workforce Plan;
 Completion of the review of policies, procedures, processes and practices;
 Adoption of a set of policies, procedures, processes and practices appropriate to the needs of
the new Limerick Local Authority;
 Maintain ongoing communication and consultation with staff and trade unions;
 Advance the preparation of a Corporate Plan for the new Limerick Local Authority.
4.3
Strengthening the Project Management Arrangements
It is intended to strengthen the project management arrangements with the appointment of a
Change Leader. The Change Leader will work with a dedicated team to support the delivery of
tasks as set out in the Implementation Plan. In particular, the Change Leader will work with the
Management Team in order that:
 Functional area plans are prepared and implemented;
 A Workforce Plan is developed and implemented;
 A Financial Plan for the amalgamation is prepared.
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4.4
Completion of Service Unit Plans
Considerable progress has been made in defining the strategic objectives and priorities for the
service units for the Directorates within the new authority Structure. Some preliminary
conclusions from the Service Unit Planning exercises are:
 The current combined total staffing of Limerick City and County Councils is 1,100 serving a
population of 190,000;
 Preliminary assessments have been made of the appropriate staffing structures and numbers
for the new local authority;
 There is a need for a further thorough examination of the proposed staffing for the new
authority in order to:
o Identify the areas from which staff can be redeployed to strategic service areas;
o Identify the potential for payroll savings in the short, medium and long term.
The completed Service Unit Plans will inform and assist in the making of key decisions in relation to
a number of issues including the following:
 The final staff structure of the service units and functional areas;
 The determination of most appropriate policies , procedures etc.;
 The location of these service units in the new Limerick Local Authority.
4.5
Development of a Workforce Plan
The continued reduction of staffing levels due to the embargo on recruitment is providing on-going
cost savings and the preparation of the Workforce Plan will assist in aligning the human resource,
service provision and financial requirements of the new local authority.
From November 2008 to November 2012, the combined staffing of Limerick City and County Local
Authorities has been reduced by over 20%. It is expected that by 2020 there will be a further 20%
reduction in the staff of the merged local authorities.
It is intended that Workforce Plan for the new organisation will be prepared and based on a
comprehensive assessment of:
 The current supply of staff by grade level, age profile and competency level from the existing local
authorities;
 Projected turnover including retirements to 2020;
 An assessment of the current and future organisational needs to 2020;
 The recommendations and guiding principles of the DOECLG/CCMA on Workforce Planning;
 Proposals for the redeployment of staff, incentivised early retirement, redundancy, etc. for staff
who are surplus to the needs of the new local authority post-merger;
 The policy in relation training and development to ensure that the current and future
organisational and staffing needs are met.
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4.6
Legislation to Underpin the Establishment of the New Authority
New or amended legislation will be required to merge the existing two local authorities and
establish a single authority. A list of relevant legislation and related issues has been provided to
the Department of Environment, Community and Local Government (DECLG) and work is
underway to progress the various issues with them and other relevant government departments.
It is imperative that the legislation required is drafted and enacted in a timely manner in order to
ensure that it is in place well in advance of the local elections in 2014. New electoral areas need to
be defined as soon as possible. A copy of the list is provided at Appendix 2.
4.7
Economic Development and the Rebranding of Limerick
As indicated above significant progress has been made in relation to Economic Development and
Rebranding challenges of Limerick. It is also recommended by the LRIG that the following
measures be put in place to further enhance the local authorities’ role in Economic Development:
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A new non-statutory High Level Economic Group be established comprising of key business
leaders, representatives from state agencies and other key stakeholders as appropriate who
can assist in delivering investment and jobs to Limerick;
The Limerick Communications Office be restructured and a greater targeted resource should be
assigned to the marketing of Limerick.
The establishment of the Local Enterprise Office under the local authority will enhance supports to
small to medium enterprises in Limerick and require a close working relationship between the
Limerick local authority and Enterprise Ireland.
The two local authorities, together with the City and County Enterprise Boards, have suitably
qualified and experienced staff who will deliver many of the functions and services required under
the new Economic Development and Planning Directorate. However, there are certain skill sets
and competencies needed in the areas of marketing and innovation which are not readily available
from existing staffing resources and an opportunity is currently presented with the break up of
Shannon Development to transfer a small number of key Shannon Development personnel to work
with the Limerick local authorities in these areas. The transfer of Shannon Development personnel
to develop and deliver marketing and innovation functions would enable the new Limerick Local
Authority to build a coherent and cohesive path for Limerick to take its place as the leader and
driver of economic development in the mid-West.
4.8
Regeneration
The Office of Regeneration has significantly advanced the work of developing the Regeneration
Implementation Plan for the delivery of the social, physical and economic regeneration strategy for
the Limerick Local Authority. The Office will have an important role to play in the overall
economic revitalisation of the city over the next number of years. With a significant capital budget
committed from central government towards the physical, social and economic development of
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the regeneration areas, it is essential that the Office of Regeneration and the Economic
Development and Planning Directorate work in tandem to oversee and deliver the overall strategy
for the economic revitalisation of the city. In addition, the Office of Regeneration will incorporate
a ' Community Benefit Policy' in its procurement strategy to ensure the socio-economic gains
associated with the revitalisation and redevelopment of the city are reflected in the regeneration
areas and other socially disadvantaged areas of the city.
4.9
Joint Arrangements with Clare County Council
The amalgamation of the Limerick local authorities provides an opportunity to examine the
provision of local authority services in the areas adjacent to Limerick city within the functional area
of Clare County Council which the Local Government Committee recommended for transfer to the
new Limerick local authority. The provision of local authority services by the new Limerick local
authority under a service level agreement in that part of Clare will be investigated further with
Clare County Council.
4.10 Financial Planning
It is necessary to prepare a Financial Plan for the amalgamation which assesses the financial
resources and cost savings required up to and for a limited period post-merger and provides for
the sustainable convergence of the Rate on Valuation between the City and County Councils. This
Financial Plan will:
 Identify and make budgetary provision for the costs of the merger;
 Identify the potential and the options to secure savings/efficiencies arising from removal of
duplication in services and processes, economies of scale, results of Workforce Planning and
application of best practice in organisational and operational aspects;
 Prepare a detailed Financial Plan to identify measures required to bring about the equalisation
of rates.
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5.0
Conclusions and Recommendations
In conclusion, the LRIG notes the following:














A new service delivery model for local government in Limerick has been identified and is
being developed;
An interim structure for joint service delivery up to June 2014 has been put in place and
Directors of Services assigned;
Economic Development is placed central to the purpose and structures of the new local
authority. A dedicated Director of Services for Economic Development and Planning has
been appointed and appropriate structures put in place;
A new Local Enterprise Office is to be established under the Economic Development
Directorate which will act as a “one-stop-shop” for the micro-enterprise and small
business sector;
The Office of Regeneration has been established to ensure that the work of the
Regeneration Agencies is carried forward and built upon within the new joint local
authority structures. A Director of Home, Community and Regeneration has been
appointed;
A Joint Committee of Elected Members from both Councils has been established and has
advanced proposals on possible electoral arrangements;
Legislation has been enacted to enable dual management arrangements;
A new dual Manager of Limerick City and County Councils has been appointed;
The ‘Opera Centre’ site in Limerick City Centre has been acquired by the City Council with
funding provided by the DOECLG and the development of this strategic site will be central
to revitalising the City Centre;
A Economic and Spatial Plan for Limerick is at an advanced stage of preparation by
consultants GVA/AECOM and will form the blueprint for the economic revitalisation of
Limerick and the redevelopment of the City Centre;
Work is ongoing on the development of service unit plans and the review of policies
procedures and practices to be aligned to the needs of the merged local authority;
A Workforce Plan for the new local authority is being developed;
A detailed Financial Plan is being prepared to identify measures required to bring about
the equalisation of rates;
The Minister has established a Local Electoral Area Boundary Committee to determine
Local Electoral Areas, Municipal/Metropolitan District Areas and number of elected
members for the new Limerick local authority.
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The main recommendations of the LRIG are as follows:






The name of the new council should be the “Limerick City and County Council”;
A new Limerick City Metropolitan District be established encompassing an area with a
population of around 100,000;
In defining the Limerick City Metropolitan District, the history and traditions associated
with the office of Mayor of Limerick City be retained;
The Corporate HQ for the new authority be located in City Hall;
The Minister should enable the establishment of a single motor vehicle licensing authority
for the new Limerick Local Authority;
A new non-statutory High Level Economic Group should be established comprising of key
business leaders, representatives from state agencies and other key stakeholders as
appropriate who can assist in delivering investment and jobs to Limerick.
This Implementation Plan outlines the significant progress made to date and the actions now
required to facilitate the successful amalgamation of the two Limerick local authorities and the
formation of the new Limerick City and County Council by 2014.
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APPENDIX 1
Terms of Reference
Arising from the Government decision to implement the main recommendations of the Limerick Local
Government Committee, involving the creation of a new single local authority to replace the existing Limerick
City and County Councils in 2014, with proposed interim joint management arrangements, the Minister for the
Environment, Community and Local Government has established an Implementation Group consisting of the
following members: 




Chair - Mr Denis Brosnan (Chair of the Limerick Local Government Committee and the Mid West Task
Force);
Mr Vincent Cunnane (Chair of the Joint Economic Development Committee of the Limerick City and
County Development Boards);
Mr Ned Gleeson (County Manager, Limerick County Council) – Mr Glesson retired in April 2012 and was
replaced by Mr Gerard Behan (Acting County Manager, Limerick County Council) until the Appointment of
Mr Conn Murray as Manager of Limerick Local Authority in August 2012;
Mr Tom Mackey (City Manager, Limerick City Council) - Mr Mackey retired in February 2012 and was
replaced by Mr Kieran Lehane (Acting City Manager, Limerick City Council) until the Appointment of Mr
Conn Murray as Manager of Limerick Local Authority in August 2012;
Mr Ned O’Connor (former County Manager, South Tipperary County Council).
The Group has a general mandate to oversee planning, preparatory work and initial implementation of the
reorganisation process. Without restricting its scope or flexibility pursuant to its general mandate, and subject to
any additional matters that the Minister may require, the functions of the Group will include oversight of, and
ascertaining delivery in relation to, the following matters: 1. Detailed planning and identification of early actions for the amalgamation of the local authorities and
the Limerick Regeneration Agencies, including analysis of income, expenditure, assets, liabilities, staff
(numbers/grades and identification of any surpluses), services, procedures and other relevant matters in
the two authorities and the Agencies, and identification of requirements for organisational
rationalisation and integration and such other preparatory, transitional, procedural or administrative
measures as may be necessary in relation to the existing authorities or their functions, in preparation for
the establishment of the unified authority and the effective performance of its functions
2. Establishment of effective co-ordination/project management arrangements to oversee and deliver
successfully the restructuring process.
3. Rationalisation of the provision of services not already subject to joint arrangements in preparation for
merger of the authorities, including consolidation of particular services and establishment of joint
arrangements, as appropriate, in respective authorities, with a view to ensuring orderly transition to the
unified authority.
4. Organisational rationalisation and integration as soon as possible, including the early establishment of a
joint management team and deployment of staff within the two authorities in line with the
integration/consolidation of services; in particular, integration of corporate functions and rationalisation
of local authority offices and other facilities.
5. Action necessary to ensure that cost reductions and efficiencies are maximised and arrangements to
measure and monitor their achievement, having regard to the stated target of potential savings of €15m,
including savings necessary to ensure that the level of the commercial rate in the City is reduced to the
current County level following the establishment of the single authority.
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6. Arrangements to support continued effective performance of functions by the elected councils of the
two authorities, service to the councils by management and staff in the context of organisational
changes, and arrangements to prepare for the effective operation of the unified council, including such
matters as committees, procedures and representation on other bodies.
7. Information of, and consultation with, the elected councils, as appropriate, in relation to the
reorganisation process, including provision of regular reports to the proposed joint committee of the
elected councils.
8. Measures to ensure adequate balance between the two authorities in the reorganisation process and in
their management generally prior to establishment of the unified authority.
9. Action to achieve alignment and convergence between the objectives and policies of the two authorities
as part of the transition towards a single authority in 2014 in the context of the overall development of
the Limerick gateway
10. Arrangements locally, to be determined in consultation with the Limerick Regeneration Agencies and in
accordance with overall arrangements to be developed by the Department, to bring the administration
of the two Agencies under the aegis of the local authority management as soon as is practicable to
ensure the programme is not delayed, but not later than the end of their current 5 year mandate in
2012.
11. Arrangements to merge relevant bodies linked with or related to local government, such as the separate
County and City Development Boards, Joint Policing Committees and County and City Enterprise Boards,
and relevant measures to support the alignment of local government and local/community development
in line with overall policy in that regard.
12. Identification of measures to maximise the capacity of local government to contribute to the economic
development of Limerick and the Mid-West Region and in particular, to enhance the role of Limerick City
as a generator of growth and a strong and dynamic focus for development of the wider region,
supported by extension of the City boundary to include urbanised or partially urbanised areas in Limerick
county as recommended by the Limerick Local Government Committee, resulting in increase in the City
population to around 100,000 (2006 census).
13. Proposals on ways to ensure that the status, identity, character, and heritage of the city of Limerick are
maintained and enhanced within the unified authority.
14. Establishment of appropriate joint arrangements with Clare County Council under local government law
to ensure the most effective discharge of functions in the areas which the Local Government Committee
recommended for transfer to the new Limerick authority and arrangements to ensure good
communication and coordination generally between the relevant authorities.
The Group will ensure that Government policy on local government, the public service, the public finances and
other relevant matters are reflected, as necessary, in the implementation process and that due account is taken
of relevant analysis and recommendations in relevant reports such as the Local Government Efficiency Review.
The Implementation Group will provide progress reports to the Minister, as appropriate, with the initial report to
be provided not later than 31 October 2011 which should include identification of matters that need to be
provided for in legislation.
The Group will adopt an Implementation Plan, having regard to the foregoing and any other matters considered
appropriate, to set a clear agenda and guidance for the continuation and completion of the reorganisation
process under transitional management arrangements from early 2012 leading to the establishment of the single
authority in 2014.
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APPENDIX 2
Legislative Issues
There are many legislative issues which must be addressed in order to bring about a unified local
authority to govern Limerick. These issues would include the restructuring of both the
administrative and political structures to replace the existing ones. The process to make the
transition from two local authorities to one local authority should be appropriately phased over a
suitable time period and must be fully in place in time for the local elections in 2014. To enable
this new legislation is required together with amendments to, and clarification on, existing
legislation.
The timeframe for the formation of the new single authority is relatively short and legislation can
take a considerable length of time to draft and be passed by the Oireachtas. The Department of
the Environment, Community and Local Government must take the lead in ensuring that the
required legislation is enacted as soon as practicable. It is therefore imperative that the
Department commences work without delay on reviewing the legislation required for the new
authority and drafting the legislation in order to bring it into effect in a timely manner.
Legislation is required to abolish the two existing local authorities and to establish the new single
authority. It is assumed that this legislation will transfer existing responsibilities and functions
from the existing authorities to the single authority and deal with all transitional arrangements.
While two separate entities exist, there will be a requirement to continue separate legal
arrangements such as the acquisition and disposal of property, reserved functions, entering into
contracts, and the making of Managers Orders and delegated functions. A further example would
be the requirement to maintain two Development Plans and two Development Contribution
Schemes until post-June 2014.
Clarification is required as to the most appropriate legal
arrangements which should be put in place as an interim measure to facilitate the joint provision of
some services in advance of 2014.
A summary of some of the legislative provisions which must be clarified, amended or provided for is
presented in Table 1 below. It is recommended that the Department address these issues as a
matter of urgency.
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Existing Primary
Legislation
Issue to be Addressed
None

Legislation required to abolish existing authorities and to establish new
single authority.
Local Government Act,
2001

Amendment required
Development Boards.
Finance Acts
 New licensing authority to be established for Motor Tax functions.
providing
for
merger/abolition
of
County
 Valuation formula used by the Valuation Office in calculation property
value differs between Limerick City and County. Clarification needed on
how this will be addressed.
Limerick City
Management Act, 1934

Vacant property commercial rate refunds differ in City (50%) compared to
County (100%). This needs to be addressed.
Housing Acts

Measures required to allow housing mortgages issued against each
authority to be registered against the new authority without entailing
significant legal costs for re-registering.

Assessment of Housing Needs Regulations need to be amended reflecting
change to single authority.
Garda Síochána Act

Amendment required for merging Joint Policing Committees.
Planning Acts

Legislation required to allow Development Contributions collected in one
authority to be expended in other.
Table 1:
Summary of Legislative Issues - Establishment of Single Authority
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