Falkirk Council
Development Services
Corporate Asset Management Strategy
2011 – 2014
Falkirk Council
Corporate Asset Management Strategy 2011 – 2014
Contents
1.0
Introduction
2.0
Background
3.0
Asset Management Planning in Falkirk Council
4.0
Approach to Asset Management
5.0
Asset Management Plans (Status per each asset class)
6.0
Capital Planning and Investment and Asset Management
7.0
Conclusion
Appendices:
1.
2.
3.
Asset Management Overview
Summary General Services Capital Programme – 2011/12 – 13/14
Summary Housing Capital Programme – 2011/12 – 13/14
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1.
INTRODUCTION
In order to ensure continuing provision of quality, affordable services more particularly during a period
of significant financial constraint, it is essential that the Council has in place a sustainable strategy for
management of assets.
Efficient stewardship of these valuable resources can make a significant difference to enhancing frontline service delivery on best value terms.
Asset Management is an important element of the Council’s policies and assists delivery of its service
objectives. The Asset Management Strategy will play a vital role in helping the Council to address the
pressures it will experience in the coming years to reduce expenditure and direct resources towards the
maintenance of frontline services.
Effective management of assets will also contribute towards the development of the area’s economy,
assisting in the regeneration of the area and attracting investment. It will assist the Council to manage
its assets more sustainably and help it to makes it contribution to the national target of reducing carbon
emissions by 34% by 2020. It is important that the assets managed by the Council help to foster
cohesion in local communities, enabling services to be accessible, good quality and delivering the
highest standards of service.
The Council’s Corporate Plan (2008-11) included a commitment to improve overall performance by
means of a variety of measures including maintaining and enhancing our asset base by implementing
‘Better Assets, Better Services’, the 2007/2010 Corporate Asset Management Plan.
This new strategy seeks to build on the achievements of the 2007/10 plan and to take forward a series
of further activities across each of the six main asset types covered by the strategy.
These are –
1.
2.
3.
4.
5.
6.
Property
Open Space
Roads Infrastructure
Housing
Fleet
ICT
The strategy supports the aims of the Corporate Plan and the Strategic Community Plan and
summarises our aims and objectives for our assets with a view to ensuring that they are used in an
efficient and effective manner. This is summarised diagrammatically in Appendix 1
It also provides details of our future investment strategy as it relates to assets.
In turn supporting this overarching Asset Strategy, is a detailed asset management plan for each of the
key asset types noted above.
These plans which are outlined in section 5, follow a broadly similar structure although reflect the
varying nature of the differing asset types in their approach.
They do however encompass the vital common theme of providing a critical review and appraisal of
current asset performance informing decision making in relation to stewardship of assets.
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2.
BACKGROUND
2.1
Context
Asset Management planning within the Council over the past 3 / 4 years has been taken
forward within the parameters set down by ‘Better Assets, Better Services’ the Council’s
Corporate Asset Management Plan for the period 2007/10.
Much work has been done across all key assets classes in endeavouring to develop a more
coherent and integrated strategy for pro-actively managing assets on a cost effective basis and
in ensuring that these are both fit for purpose and enhance opportunities to deliver quality,
affordable services.
This work requires now to be further built upon and taken forward against a background of
significant and increasing financial constraints.
Consideration of sustainability issues including energy management, carbon reduction
management are integral to the approach being developed across all of the six asset
management plans
It will be essential for the Council to demonstrate that it has in place an integrated asset
management / capital planning system with the capability to inform and guide key asset
investment (and disinvestment) decisions within an overall framework of systematic option
appraisal and investment and service prioritisation.
Further developing this approach will also be key in the context of preparations for the
forthcoming ‘Best Value 2’ audit.
The overall approach to a systematic review of property assets will be consistent with the aims
of the Forth Valley Strategic Asset Management Plan being developed in conjunction with the
Council’s public sector partners
2.2
Key Asset Management Criteria
The previous Corporate Asset Management Plan recognized the requirement for systematic
appraisal of assets against key performance criteria.
A substantial amount of work has been carried out in terms of collection and analysis of
relevant asset performance data as indicated below. This is being used to inform asset
management decision making and performance monitoring and reporting.
2.2.1
Condition
It is essential that there is an understanding of the condition of all assets informed
either by means of sampled or full surveys. A grading methodology is used to
categorise condition of assets.
2.2.2
Suitability
This measure effectively reflects fitness for purpose of an asset and encompasses
views of those involved in front line service delivery, and taking into account the
needs of service users. It goes beyond condition and is concerned with how well or
otherwise the asset is suited to its current purpose.
2.2.3
Sufficiency
This measure reflects both demand for and sustainability of an asset. Sufficiency is
concerned with asset use now and in future. It is a crucially important indicator as it
helps to identify both under utilised assets for possible disposal or reconfiguration
and situations where there is a developing risk of over-utilising, this assisting in
forward planning. It is primarily concerned with asset capacity compared to asset
use.
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2.2.4
Revenue Costs
The appropriate ‘benchmark’ costs of operating a given asset are obviously vitally
important. An asset management plan needs to include and reflect an understanding
of the revenue costs of running the asset. Comparing this data to, for example,
condition rating for an asset will assist in deciding the relative merits or otherwise of
continued asset use on beneficial terms.
2.2.5
Accessibility
This covers two distinct areas. The first is linked to the Disability Discrimination
Act and the extent to which the asset is accessible to service users and people with
disabilities. The second is concerned with accessibility more generally e.g. specialist
equipment that can only be utilised by suitably trained staff.
2.2.6
Value
A list of values of assets acts as a reliable inventory check and provides accurate,
appropriate valuation information to assist in decision making.
The above information provides essential data informing performance monitoring, effective options
appraisal and decision making aligned to the Council’s capital planning arrangements.
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3.
ASSET MANAGEMENT PLANNING IN FALKIRK COUNCIL
3.1
Aims and Objectives
The overall aim is to ensure that the Council’s assets contribute effectively to service
delivery, are fit for purpose, suitable and sustainable.
Building on, and taking forward the achievements of the previous Corporate Asset
Management Plan, ‘Better Assets, Better Services’, our objectives have been re-aligned in
order to best reflect work done to date (for example, the relocation of Education Services HQ
to Sealock House, of Corporate and Neighbourhood Services to the Forum and Social Work
Services to Rossvail and Denny Town House) and the action required to take forward
effective asset management over the period covered by this plan.
The strategic objectives of the Corporate Asset Management Strategy 2011-2014 are as
follows:-
3.2
•
To maintain and enhance a flexible portfolio of assets best equipped to meet
changing service needs and evolving methods of service delivery during a period of
significant financial constraint.
•
To continue to critically review and challenge the need to hold specific assets in each
key asset class.
•
To regularly review and rationalise assets to ensure they are used effectively and
deliver value for money.
•
To utilise assets in a sustainable way to support the Council’s strategic policies,
including regeneration, to contribute to a dynamic local economy and in improving
our environment.
Financial Resources
3.2.1
The Council’s revenue budget for maintenance for 2011/12 is c£23m (including
HRA).
The Council has a capital investment programme of £28m per annum for expenditure
on General Fund Services.
The Council’s HRA Capital Investment Programme is £25m per annum to 2015. This
is complemented by investment of £19m per annum from the HRA Revenue
Maintenance budget
3.2.2
The current (summary) capital investment plans of the Council are included as
Appendix 2 to this document.
Capital investment is funded from Scottish Government grants, grants from other
bodies (such as SportScotland) borrowing and receipts from the sale of assets and
S.75 contributions from developers. However since 2007/08, the levels of capital
receipts from asset disposals and developer contributions have declined sharply and
look likely to remain very constrained in forthcoming years due to the prevailing
current economic climate and its adverse impacts on the property market.
Whilst the Scottish Government supports Council borrowing, all investment
decisions require to be made in the context of the Prudential Code which aims to
ensure that all decisions are affordable, prudent and sustainable.
There has over recent years been a sharp decline in HRA Council house sales which
will be compounded by new legislation restricting the right to buy.
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Ultimately, the impact on the Council Tax and rent payer is a key consideration in all
such decisions, which have required to be made within the parameters of the Single
Outcome Agreement and the effective ‘freeze’ on Council Tax levels.
3.2.3
All expenditure on Council assets continues to be considered against the backdrop of
the current and likely future financial constraints and reflecting best value criteria,
including examination of shared service initiatives, Council restructuring and work
force planning considerations.
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4.
APPROACH TO ASSET MANAGEMENT
A considerable amount of work has been undertaken over the past three years consistent with the aims
and objectives and actions highlighted in the 2007-10 Corporate Asset Management Plan to ensure
assets are managed effectively and that future strategies and plans deal with assets in a corporate
manner. This work has been overseen and integrated by the Corporate Asset Management Group of
officers.
The Corporate Asset Management Group of officers is responsible for co-coordination at a strategic
level. This includes: –
•
•
•
•
•
•
•
•
•
•
The development of the completed Corporate Asset Management Strategy to support the
options for future investment.
Monitoring progress in relation to the implementation of the Corporate Asset Management
Strategy.
Ensuring the preparation of a comprehensive range of options for future investment or
disinvestment.
Coordinating future options for investment between different asset types to avoid any
potential duplication.
Providing a forum to identify best asset practice.
Providing all necessary expertise on asset management issues.
Raising corporate asset management issues.
Disseminating best practice in the management of assets.
Identifying potential improvement and good practice in the management of the Council’s
assets.
Coordinating the development of a suite of asset management performance indicators.
Corporate Management Team in 2009 authorised the establishment of a series of sub-groups of the
Corporate Asset Management Group to take forward production of asset management plans for each of
the undernoted key asset classes –
•
•
•
•
•
•
Property
Open Space
Roads Infrastructure
Housing
Fleet
ICT
The chair of each group is responsible for the production of the relevant asset management plan
through the work of the sub-group. The current status of each plan is outlined in Section 5.
This includes managing a programme of collection and analysis of relevant asset performance data and
recommending appropriate actions based on consideration of this information. The subsequent input to
the corporate asset management process enables assets to be properly managed as a corporate resource
and the integration of future asset management planning and investment decisions.
As part of this exercise, a series of appraisals are underway in relation to a number of key asset classes.
These are summarised in Section 5 following:4.1
Framework for Investment Decision Making
In order to support further integration of asset management planning and investment decision
making a close working relationship between the Council’s Corporate Asset Management and
Capital Planning and Review Working Groups of officers has been developed including cross
representation in both Groups of relevant lead officers.
The Groups’ report to the Council’s Corporate Management Team and Policy and Resources
Committee and ultimately full Council.
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4.2
Links to Best Value
Best value is a critical driver to effective management and stewardship of our assets. The
requirement to secure best value further emphasises the need to be seen to manage assets
effectively.
In the context of the forthcoming BV2 audit, the Council requires to have regard to the
guidance issued by Audit Scotland in terms of the ‘Best Value Toolkit for Asset
Management’.
The Corporate Asset Management Group will coordinate our approach to ensuring
preparations for the forthcoming audit in so far as this relates to asset management.
As a preliminary to this, the Asset Management team within Development Services undertook
the PSIF based ‘Reflect’ exercise during Q1 2010 which identified a series of both team and
corporate improvements actions which are currently being taken forward.
The approach to development of the Strategy, has also been based on ‘best practice’ guidance
issued by the Royal Institution of Chartered Surveyors, CIPFA and Improvement Service
4.3
Asset Management Plans for each Asset Class
Each of the asset management plans for the six categories follow a broadly similar structure
although by the very nature of the different types of assets they approach asset management in
different ways when required. However, they have a common theme of offering a critical
appraisal of existing asset performance and the decision making requirements that follow such
work.
Section 5 (i) to (vi) following covers the key aspects of each of the six asset class plans, which
together support the Corporate Strategy. For each asset category, a contextual summary is
provided, together with objectives and specific action points aimed at effective
implementation and monitoring
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5.
ASSET MANAGEMENT PLANS - STATUS
5.1
Property
5.1.1
Context
The Council owns and operates a diverse range of property assets that make a
significant contribution to the achievement of corporate objectives.
Falkirk Council has a property portfolio of 1323 properties with total value of circa
£600m. Of this 353 are “operational” properties used to deliver services and 97
“non-operational” properties, which includes shops, offices and factories, leased to
commercial tenants to support the Council’s economic development activities.
Property assets are a corporate resource used by Services to deliver the Council’s
goals and objectives. Embedding of asset management principles in the Council’s
decision making processes ensures best value objectives can be best met.
The effective asset management of the Council’s property has a significant impact on
the quality of services delivered by ensuring buildings support current and future
service requirements, and by providing a means to prioritise future investment and
rationalisation decisions.
5.1.2
The Property Asset Management Plan
The overall aim of the Property Asset Management Plan is to ensure that the
Council’s property assets contribute effectively to service delivery in terms of
being fit for purpose, suitable and sustainable.
Implementation of the plan will ensure the property portfolio is:•
•
•
•
•
Effectively managed at both strategic and operational levels.
Demonstrating “best value” through robust and consistent monitoring and
reporting framework including performance measurement and challenge.
Maintained and improved to meet service and customer needs.
Reviewed and challenged to deliver rationalisation and efficiency savings.
Managed to ensure assets are protected and values maintained.
In the current financial climate the Council is increasingly facing many challenges in
delivering services. In order to continue to deliver high quality services the optimum
allocation of resources becomes increasingly important.
The Plan sets out:i)
ii)
iii)
iv)
v)
5.1.3
What property the Council has and where it is.
Property asset performance and what it tells us
Future Service delivery priorities
Investment and efficiency initiatives
Measureable implementation and actions plans
Property Performance Review
The Property Performance Review analyses the current operational portfolio and is
an integral part of the Council’s asset planning process. It involves assessment of a
series of performance measures recognised by Audit Scotland and the Federation of
Property Societies which include statutory performance indicators for condition and
suitability together with others relating to maintenance, running costs, environmental
efficiency and utilisation.
The review provides information of the performance of the Council’s operational
properties, establishes a ‘baseline’ position to measure future changes in property
performance, benchmarks performance nationally to assist in identifying poor
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performance and develops action to address these areas and demonstrates continuous
improvement in line with best practice guidance and best value obligations.
The Property Performance Review will be updated annually to monitor progress with
asset management objectives.
5.1.4
Property Evaluation Matrix
The Property Performance Review is a fundamental component of the Council’s
asset planning process.
In summary, 32 properties or 9% of the operational portfolio are categorised as under
performing. Services in conjunction with the Asset Management Unit should
investigate as necessary and develop appropriate actions.
As performance data and benchmarking information becomes more readily available
the matrix will be adapted and improved to reflect these changes.
5.1.5
Service Delivery
Future service delivery priorities for property have been set out ensuring the linkage
between property and business/service planning. This focuses on assessing the
business need for property based on type and use. Services must challenge the need
for all assets taking to ensure it delivers what is necessary and that this is
quantifiable; it is affordable and needed; and to asses if it provides an option for
sharing.
Services should regularly challenge the need for occupying property together with
the nature of it’s utilisation. Specific requirements should be assessed through
options appraisal and considered against other competing service and corporate
priorities together with rationalisation or co-location opportunities.
5.1.6
Investment
The Plan notes the significant and ongoing need for capital and revenue investment
in property but also recognises the challenging financial environment in which the
Council now operates. Alignment and prioritisation of investment with asset
management outputs is key to ensuring the linkages with the capital programme and
corporate objectives.
There has been significant investment in recent years in the Council’s operational
portfolio with particular focus on the school estate. Given the increasing pressure on
the capital programme appropriate prioritisation and alignment of investment will be
crucial.
5.1.7
Efficiency Initiatives
As well as providing information and data to assist investment decision the Plan
details efficiency initiatives which, in conjunction with performance measures and
service delivery considerations, will inform decisions and highlight actions to deliver
efficiency savings and rationalization opportunities.
Savings from operational property can be achieved through the systematic
implementation of the “efficiency initiatives” identified in the Plan to identify
rationalization options and efficiencies from effective property management.
These initiatives are consistent with the Corporate Asset Management Strategy and
the Forth Valley Strategic Asset Management Plan.
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5.1.8
Action Plan
The Plan concludes with an Action Plan to ensure asset management principles
continues to be embedded in corporate processes and that supporting systems / data
capture are in place to support this, together with an Implementation Plan to identify
appropriate outcomes as well as co-ordinating efficiency initiatives and projects.
Taken in conjunction with the Property Performance Review the Action Plan
provides the basis for monitoring progress and further developing targets.
In order to effectively implement the aims and objectives of the Property Asset
Management Plan, the following actions will be progressed during 2011/12:
1.
Area reviews will be undertaken.
2.
Property utilisation reviews will be carried out
3.
A Carbon Management Plan will be implemented
4.
A review of facilities management actions in the context of forward planning
will be carried out.
5.
The overall service property review in the context of current and future
requirements will be continued.
6.
The outcomes of the Office HQ accommodation review will be taken forward.
7.
The implementation of the Portfolio Management Plan (non-operational
property) will be continued
8.
Progress on Town Centres regeneration and other ‘edge of town’ regeneration
purposes (Falkirk Gateway, Falkirk Stadium, Tamfourhill) will be continued.
9.
A new denominational primary school in Stenhousemuir will be built.
10. The review of the optimum means of delivery of care home services will be
undertaken.
11. The above will be actioned consistent with the approach of the Forth Valley
Strategic Asset Management Plan
5.1.9
Conclusion
It is anticipated that the outcome of the significant work highlighted in the plan and
implementation of the approach as detailed will provide the basis for taking forward
effective property asset management.
The processes and efficiency initiatives detailed in the Property Asset Management
Plan are both flexible and adaptable. These adjust to changing circumstances and
challenges within the Council, local communities and the wider economy and will
assist the Council in delivering high quality services in a challenging financial
climate.
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5.2
Open Space
5.2.1
Context
In terms of the open space asset class, two major pieces of work have been
undertaken by the Council to provide the corporate vision, baseline position,
qualitative and quantitative assessments, aspirations, investment needs, business
rationale and review mechanisms. Scope has also been identified for assessing budget
savings, capital receipts, service delivery improvements and improved environmental
performance.
The first of these pieces of work is the over-arching Open Space Strategy, which was
prepared by a corporate working group of relevant service representatives. This was a
significant undertaking also required by Scottish Planning Policy 11 (Open Space
and Physical Activity). The strategy was formally approved in March 2010
following extensive public consultation. The second piece of work is the Council’s
approved Parks Development Plan, which takes forward the strategic analysis and
sets out the full case for the investment and prioristisation of the Council’s current
spending programmes.
The key aim is to secure fit for purpose open space assets supporting quality,
affordable service delivery meeting the needs of our communities within a ‘Best
Value’ context.
5.2.2
Analysis
The above studies have indicated that open space provision within the Falkirk area is
characterised by its diversity, particularly in terms of scale, context and variety.
Falkirk has some key open space assets, which include unique features like the
Falkirk Wheel and canals, Callendar Park and the Antonine Wall, as well as other
less distinctive but nonetheless valuable spaces. Not all of these are in Council
ownership. It is clear that much can be done to improve the distribution and quality
of open space provision, in order to optimise the benefits that can accrue to the
people who live and work in the area, and enjoy its resources
The widespread benefits of good quality public open space are recognised nationally.
This Open Space Strategy was informed during its preparation by a range of existing
Falkirk Council strategies and guidance. However, other work currently underway
and which is of particular relevance includes, at the national level, the Central
Scotland Green Network, and at the local level the Council’s Core Path Plan, Playing
Fields Strategy and Supplementary Planning Guidance on open space provision in
new developments. These emerging documents and initiatives will inform
connections between open spaces and an overview of the green network, recreational
quality and provision, and how open space is provided from new residential
developments. The Open Space Strategy GIS database should therefore be linked to
these studies as soon as is feasible and a review undertaken of how these studies will
inform future Open Space Strategy reviews.
5.2.3
Summary
It is important that the Open Space Strategy becomes an interactive part of the dayto-day management and enhancement of the Council’s open space resources. The
strategy will help the Council to visualise and realise relevant strands of the Strategic
Community Plan. The tools that the Open Space Audit and Strategy have produced
offer a powerful and informative means by which open space can be evaluated on a
regular basis. The strategy is a starting point and the process of change will bring
new issues to the fore. It should change in response to new ideas, as well as to the
results of any monitoring exercise. The Council has demonstrated it’s ambition to
raise the quality of open space in the Falkirk area by approving the strategy and
addressing the challenge of developing a fresh approach to delivery, management and
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funding of its open space resource to meet the needs and demands of an evolving
society.
5.2.4
Actions
In taking the strategy forward the following actions will be progressed.
1.
Re-assessing in strategic terms the importance of open space as an asset to
community life, wellbeing and prosperity.
2.
Reviewing the way in which the open space resource is co-ordinated,
managed and maintained to enable the Council’s best efforts to be
channelled to deliver an effective Open Space Strategy, within a ‘best value’
context.
3.
Bringing open space site ownership records up to date.
4.
Reviewing the terms of standard maintenance and factoring agreements.
5.
Maximising funding for change through the take up of alternative external
sources, such as grants or developer contributions, or by realising value
from existing open space assets that can be demonstrated surplus to
requirements.
6.
Preparing a Supplementary Planning Guidance note to a) help secure
contributions from developers towards the implementation of the Open
Space Strategy, and b) publicise the new local standards for the provision of
open space approved in the Open Space Strategy.
7.
Re-examining the ways in which open space programmes are funded and
prioritised, to improve efficiency, ease delivery and allow optimum levels of
investment to reach projects on the ground.
8.
Updating and reporting on the Open Space Strategy annually and reviewing
it comprehensively every 5 years.
9.
Completing further work and survey inputs on the parts of the Open Space
Strategy limited by the initial brief to provide comprehensive GIS baseline
data.
10. Examining the potential to secure revenue budget savings from maintenance
of open space for which the council has responsibility.
11. Further consideration of areas of open space in Council ownership, which
could be declared surplus to requirements for development, consistent with
the aims and objectives of the Open Space Strategy, in order to generate
capital receipt opportunities.
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5.3
Roads Infrastructure
5.3.1
Context
Transport infrastructure in Scotland is vital to economic well-being and contributes
significantly to the Scottish and UK economy. The road network remains the most
valuable community asset under local government control. The Society of Chief
Officers of Transportation in Scotland (SCOTS) have recently stated that it is a
growing concern that this vital asset is not receiving the attention, or funding,
required to maintain it in an optimal state of repair.
Adverse weather conditions over recent winters, have in addition caused significant
damage to road surfaces.
Within this context development of a Roads Asset Management Plan (RAMP) is
necessary best practice bringing a number of benefits
•
It is identified as one of the documents required by the Corporate Asset
Management Strategy to ensure all Council assets are effectively managed.
•
It is a key document to keep road users informed about Falkirk
Council’s management and maintenance practices and activities on
its road network.
•
Falkirk Council’s road network (including carriageways, footways, street
lighting and structures) has an asset value of £955m so it is vital that these
assets are well maintained, not only for road users but for economic,
social and environmental reasons
•
It will balance the long-term need to keep the network adequately
maintained against the short term need for road works.
The key aim is to ensure cost effective, prioritised maintenance of the
Council’s roads infrastructure network targeted to best meet the needs of
the community and service users.
5.3.2
Background
The Report “Maintaining Scotland’s Roads” was published by Audit Scotland in
2004. This Report made several key recommendations for Local Authorities,
including:Councils should:•
Monitor and report publicly on the condition of their road network
and their road maintenance backlog on an annual basis.
•
Use the information from the Scottish Road Maintenance survey to
calculate the size of the structural maintenance backlog in their
area using a common accepted methodology.
Councils need to:•
Review budget-setting procedures for road maintenance to ensure that it
achieves value for money.
•
Establish a long-term strategy for road maintenance in the overall context of
their transportation and roads asset management strategies.
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5.3.3
Current Position re Scottish Road Maintenance Condition Survey
An exercise to establish the gross replacement cost of the carriageway asset in
Falkirk Council has been undertaken in line with the CIPFA Transport Infrastructure
Asset Code resulting in a valuation of circa £955million for carriageway assets
within the adopted road network (excluding footways, lighting and structures within
the adopted road network).
The Scottish Road Maintenance Condition Survey (SRMCS) is a Scotland-wide
contract organised since 2002 by the Society of Chief Officers of Transportation in
Scotland (SCOTS). The purpose of the survey is to provide robust information for
decision makers on the state of the national road network.
The survey was developed by authorities as a reaction to the many anecdotal facts,
poor surveys and headline statements which have the ability to skew sensible
investment decisions.
The survey is machine-based, and is subject to independent audit and quality
assurance. Data collected during the surveys is used to report on the condition of the
local public road network nationally as Statutory Performance Indicator 22. Over the
past 9 years, this work has been developed to give a valuable oversight on the
condition of the local road network and the trends in carriageway condition. The
surveys have indicated that the condition of Falkirk’s roads has deteriorated over the
last 2 reporting periods by 4%:•
•
2008 – 2009
2009 – 2010
38.1% of roads require intervention
42.1% of roads require intervention
In 2009, SCOTS commissioned work which investigated the financial implications
faced by Scottish Local Authorities in maintaining public roads in a steady state
condition based on 2009 levels. This work was based on carriageway condition
reported by SRMCS and uniform repair costs within broad geographical areas.
SCOTS advised Falkirk Council of the outcomes of the work which examined the
relationship between roads maintenance budgets and road conditions. The outcomes
show:•
In order to clear all road defects, Falkirk Council would require to invest
£39.3m. A follow-up report in 2011 calculated this figure at £46.5m, an
increase of 18%.
•
In order to maintain the road network (carriageway asset) in its current state,
the information provided by SCOTS in 2009 identifies that Falkirk Council
requires an average annual spend of £4.9m on structural repairs to the
carriageway. The actual sum invested in the carriageway asset in financial
year 09/10 was £2.4m (including pothole repairs).
This investment relates to the carriageway asset only and does not include street
lighting, structures, footway or any other asset groups.
•
The survey calculated that if investment remains at current levels over the
next 10 years, the condition of the road network in Falkirk Council will
continue to deteriorate with a significant increase in the number of roads
dropping into the category where repairs are required.
•
Based on levels of spend in financial year 2009/10, carriageways within
Falkirk are being resurfaced on average once every 62 years.
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Maintaining Scotland’s Roads –A Follow-Up Report
This Report made a number of recommendations for Councils. As a response to this
Report, Roads Services presented a report to Environment and Community Safety
Committee on 15 March 2011 noting that Roads Services had already addressed key
issues raised in the Follow-Up report, including:-
5.3.4
•
As part of the SCOTS road asset management project the council are in the
process of developing a strategy for asset information management
including the compilation of an inventory relating to road assets. The work
has commenced with precise mapping of carriageway and footway assets
and will move on to road drainage and signage assets in the near future.
•
Falkirk Council, as part of the SCOTS road asset management project, has
played lead key roles in developing a suite of national performance
indicators.
•
The impact that road maintenance activities have on the environment has
been recognised and recycling processes are regularly considered for use as
effective tools for reducing the carbon footprint. Additionally, all planings
from road resurfacing work are stored for use in other improvement works,
thereby reducing the carbon footprint and reducing the cost of bringing new
materials to site.
•
Partnership working with other authorities continues to be developed.
Overview / Objectives
All 32 Local Authorities in Scotland are committed to the SCOTS project to
develop a common framework for road asset management plans which will
continue to be utilized and developed after the project has concluded. The aims
of the SCOTS project are to:•
Deliver the aspirations for a better road network as set down by the
Scottish Government by ensuring that available finances are spent in the
most productive manner.
•
Create a common framework for the development of road asset
management plans for all Roads Authorities across Scotland.
The Roads Asset Management Plan, provides for the management of all
Council assets within the adopted road network and as such will include
carriageways, footways, structures, street lighting, car parks, traffic
signals, drainage and other street furniture. The RAMP is the first
version of an infrastructure asset management plan produced by Falkirk
Council. The RAMP will be further developed in future years.
5.3.5
Corporate Asset Management Linkages
The approach to Roads Asset Management is consistent with the Council’s
corporate approach to asset management. Roads cannot be sold as a commodity
and as such have no intrinsic value; however, the asset management principles
of developing long term management strategies and ensuring efficient
allocation of resources are common objectives and can be applied to any asset.
CIPFA Transport Infrastructure Asset Code
The Council has taken initial asset management steps to ensure compliance with
the CIPFA Code. The Code dictates that Councils need to group infrastructure
assets in a manner that allows actual expenditure and spending need for particular
Corporate Asset Management Strategy ‘Better Assets, Better Services’
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asset classes to be easily identified thus allowing benchmarking and measurement
of performance over time to be established. Effective implementation of the Code
requires Roads engineering staff and Finance staff to work closely together to
ensure that the information allows for the completion of Whole of Government
Accounts whilst also supporting the needs of internal stakeholders, in particular
Members, to support decisions on policy and funding.
5.3.6
Actions
The completion of the framework with as much information as possible has set
out what Falkirk Council aims to achieve with the road network and the systems
and processes required to support this. The RAMP identifies areas where
improvement actions are required to address incomplete processes or data.
Falkirk Council has completed its first version of the RAMP and identified
achievable milestones for 2010/11 as follows:In taking forward the objectives of the RAMP, the following actions will be taken
forward.
1.
2.
3.
4.
5.
Developing a strategy for asset information management
Updating relevant policies
Reviewing and development of local performance indicators
Reviewing and development of levels of service
Expanding on customer satisfaction surveys
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5.4
Housing
5.4.1
Context
The Council has over 16,000 mainstream rented housing properties, 6 sheltered
housing complexes and a homeless person hostel. The Council also provides and
manages a Travelling Person’s Site.
The estimated value of the housing stock is approximately £88.3m and the
outstanding debt level at 31 March 2010 was £37.4m.
The key aim of the asset management approach is to manage effectively the
Council’s housing stock and seek to meet housing need in line with Falkirk
Council’s Local Housing Strategy.
5.4.2
Condition Assessment
A comprehensive condition assessment of all houses was undertaken in 2010 and this
identified that:
•
•
•
5.4.3
44% (7,000 properties) currently meet the Scottish Housing Quality
Standard (SHQS)
No properties currently fail the Tolerable Standard or the Serious Disrepair
(Primary) elements criteria
Of the 56% (9,000 properties) currently assessed as not meeting SHQS, the
main areas requiring improvement are:
o Energy Efficiency (65% 5,800 properties) – Installation of
insulation and efficient central heating systems
o Modern Facilities (16% 1,400 properties) – Upgrading of kitchen
and bathroom facilities
o Healthy, Safe and Secure (12% 1,100 properties) – Upgrading and
installation of new smoke detectors and improved systems for
electrical and gas safety
o Serious Disrepair (7% 600 properties) – Improvement to secondary
elements including roof coverings, chimney stacks and rainwater
goods.
Investment
In recognising the need to ensure all homes meet the SHQS by 2015, the Council has
provided an additional £15m over the next 3 financial years. The additional
investment will enable the continuation of the existing programme of improvement
and upgrading works, together with specific investment targeted at those properties
assessed as currently not meeting SHQS.
A total of £25.2m has been provided for 2011/12 for new investment, together with
planned investment of £30.95m in 2012/13 and £24.95m in 2013/14. This level of
investment, together revenue (reactive and planned) maintenance work of c£19m per
annum, is consistent with the total estimated cost of c£50-60 million over the
following four years identified as part of the Stock Condition report. This level of
investment should ensure where reasonably practicable, that all our properties are
brought up to the standard by 2015.
5.4.4
Housing Demand & Supply
The Housing Needs and Demand Assessment (HNDA) identifies that around 230
new affordable homes will need to be provided each year over the next ten years to
meet the housing needs of the Falkirk Council area.
There are several ways in which affordable homes could be provided
• by the Council itself increasing its housing stock;
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•
•
by Registered Social Landlords building either for social rent or to provide
new low cost home ownership opportunities;
through possible further phases of the National Housing Trust initiative
providing properties at mid-market rents and through the Affordable
Housing Policy.
It is unlikely that any one of these measures alone will be able to deliver sufficient
housing to be able to meet the shortfall and so the Council’s draft Local Housing
Strategy for the period 2011-16 encourages a mixture of provision to
(a) maximise the use of the resources available under different funding
mechanisms and
(b) offer a range of housing options that include housing for rent at different
levels and low cost home ownership opportunities for local people.
The Council recognises its role as provider of affordable homes to meet an ever
increasing level of demand for such accommodation. As such, the Council is in the
process of building 132 new affordable homes for rent. Additional investment of
£15m has also been approved for the next 3 financial years, which will assist in
providing a further 100-150 new homes.
The Council also provides an essential enabler role with partner Registered Social
Landlords and Private developer’s to facilitate the supply of additional affordable
houses.
5.4.5
Key Objectives
•
•
•
•
•
•
•
5.4.6
Continue to provide high quality affordable homes to people in housing
need
Maintain and improve our housing stock to ensure 100% of our stock meets
the Scottish Housing Quality Standard by 2015
Ensure our stock meets all relevant regulatory standards
Maximise use of existing and new stock
Maintain a balanced portfolio through new build, acquisitions, sales,
remodelling, tenure diversification, demolition and redevelopment
Continue to consult and liaise with our tenants and stakeholders to ensure
our stock and the environs appropriately meet their needs
Maintain and improve the environment of our neighbourhoods through
regeneration and estate improvement programmes
Actions
In taking forward implementation of these objectives, the following actions will be
progressed, commencing 2011/12 - .
1.
2.
3.
4.
5.
6.
7.
Reviewing and updating the new allocations policy introduced in 2010.
Providing suitable accommodation to meet changing demographics,
including meeting statutory homeless targets by 2012.
Implementing improvement work in line with stock condition survey
findings and ensuring adequate financial provision is made in the Housing
Capital and Revenue Programmes.
Ensuring void periods are kept to a minimum and evaluating alternative
approached such as loft conversions and extensions to meet tenant need.
Adhering to principles outlined in the Local Housing Strategy.
Continuing to hold Tenant Forums, Neighbourhood walk-rounds,
Consultation exercises and developing Neighbourhood Plans.
Providing a rapid response clean-up service and working in consultation
with Estate Management to provide easily maintained and sustainable
neighbourhoods.
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5.5
Fleet
5.5.1
Context
The Council has a fleet of vehicles and plant that support in the delivery of services.
They include:
•
•
•
•
96 O Licence vehicles over 7.5t
212 Vehicles less than 3.5t
185 Vehicles over 3.5t
Over 690 items of various plant and equipment
Excluding plant items, fleet stock currently has a value of £15.7m at time of
purchase. Current annual capital replacement costs are of the order of £2.3m per
annum
The key aim of the asset management approach is to provide an efficient and
effective Fleet Management and Maintenance Service.
5.5.2
Utilisation and Procurement
1.
The Council operates a significantly sized and varied fleet, tailored to meet
the many Service delivery requirements. A core fleet of vehicles is owned
by the Council and this is augmented by the short-term hire of vehicles and
plant to meet specific spikes in demand. This approach ensures the Council
can more flexibly align its fleet to demand, improves utilization and
minimize the need to carry surplus vehicles.
2.
Regular monitoring of vehicle utilisation is critical to ensure the optimum
fleet size is in place within each Service. Vehicle tracking technology is in
place within a number of service areas, in order to maximize utilisation,
with plans to extend the technology across all the Council’s fleet. The
positive track record of the Council’s commercial operations in competitive
tendering, benchmarking and Service reviews is also an indicator of
efficient vehicle utilisation.
3.
As part of the decision to replace, Service consideration is also given to the
nature and type of vehicles being replaced, to ensure the vehicles are
suitable for future service delivery. Technical advice and support is
provided to Services by Fleet Services on the different vehicle options
available, including cost comparisons. This information assists in ensuring
the best value option is secured in relation to each individual vehicle.
4.
Fuel efficiency and emissions is also a key factor in determining the nature
and type of vehicle to be replaced. The Council will continue to appraise
and monitor the development of technologies in this area e.g.: LPG pilot and
determine the most environmentally sustainable vehicle types available at
the time of replacement. At present the Council specifies “Euro 5” diesel
engines as standard, which is the most environmentally efficient diesel
engine available.
5.
With the introduction of new technology in the form of both electric and
hybrid vehicles, funding from the Scottish Government has been used to
purchase four vehicles of this type which will allow benchmarking to take
place in relation to whole life costing analysis and an environmental issues
surrounding new technology.
6.
The Council has in place appropriate procedures and processed for the
procurement of vehicles and plant, which are designed to ensure the
purchase of vehicles is legally compliant, represents best value and is in
accordance with recommended Asset Management guidance and the
objectives of the Corporate Asset Management Strategy.
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5.5.3
Key Objectives
•
•
•
•
•
•
5.5.4
Ensuring Council Services have the appropriate vehicles to carry out their
responsibilities and duties
Maintaining vehicles are to VOSA (Vehicle Operator Services Agency)
standard
Ensuring Fleet Asset Management information and data is collected and
stored effectively
Demonstrating Best Value
Considering the needs of Stakeholders
Ensuring vehicles are environmentally friendly
Actions
In order to effectively take forward these objectives the following actions will be
implemented 1.
Have an appropriate vehicle replacement plan in place, provide in-house
hire arrangements and workshop facilities.
2.
Carry out regular safety inspections and ensure all vehicles are fit for
purpose, kept road worthy and comply with all regulations.
3.
Providing an in-house Class IV, V & VII MOT facility utilizing VOSA
trained mechanics and subjecting vehicles to roadside checks by VOSA.
4.
Continually updating Save System when new vehicles are acquired and
disposed of and by updating individual files.
5.
Benchmarking with other authorities and private sector and procuring
vehicles via appropriate tender processes, including through Scotland Excel.
6.
Meeting with service users, advising on new technology and legislation and
arranging vehicle demonstrations.
7.
Using the latest engine technology, evaluating alternative fuels and carry out
a ‘Green Fleet Review’
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5.6
ICT
5.6.1
Context
The Council maintains a substantial ICT network and capability ? all Services, and
serving a complex network of locations. The hardware complement is summarised
as follows:Number of Corporate PC’s
Number of Education PC’s
2347
6350
Number of Corporate Laptops
Number of Education Laptops
460
708
Number of Corporate Microsoft Servers
Number of Education Microsoft Servers
120
120
Number of Unix Servers & Arrays
40
Number of Network Devices
(includes all switches, hubs, routers etc
1607
These figures include servers and network devices used onsite and in Victoria
Buildings for Business Continuity purposes.
The key aim of the asset management approach is to provide an efficient and
effective ICT service which meets the needs of Services and customers.
5.6.2
Condition Assessment
•
Under Falkirk Council guidelines Corporate PC’s are not replaced until they
have reached 5 years old.
•
Current Age Range of PC’s:
528 Corporate
1610 Corporate
209 Corporate & 943 Education
5.6.3
Up to 2 years old
2 to 5 years old
Over 5 years old
•
Age Range of Laptops is evenly spread between new and 8 years old. Over
50 of the servers are more than 5 years old.
•
Unix Servers and arrays vary in age between new and 7 years old.
Demand and Supply
•
•
•
•
•
The Technology Provision refresh programme for PC’s has estimated that
280 PC’s will be replaced during 2011/2012.
Laptops and particularly Notebooks are now in increasing demand
especially in Education and will begin to replace some PC’s
Planning for the replacement of Microsoft Servers takes place when the
equipment is between 5 and 7 years old.
A Virtulalization project in the Corporate Area will start in year 2011-2012
which will begin to reduce the number of servers.
A Virtulalization project has already begun for Education and has reduced
the number of servers in schools and allowed Centralisation and
standardization of servers. As the project rolls out further, server numbers
will continue to fall.
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5.6.4
Objectives
•
•
•
•
•
5.6.5
Provide a resilient and progressive ICT Service which meets users needs.
Ensure systems and secure.
Plan a programme of asset replacement and maintenance to ensure that there
are no preventable emergencies.
Develop a robust disaster recovery plan for all areas of the business.
Wherever possible, utilise hardware and technologies to reduce the impact
on the environment.
Actions
In taking forward implementation of these objectives, the following actions will be
progressed, commencing 2011/12 1.
Ensuring customer engagement in corporate projects through the ICT
Strategy Group and engaging with customers to assist in developing and
executing their Service Plans.
2.
Ensuring the ICT Strategy reflects the Corporate Plan.
3.
Ensuring physical security of the location of equipment and that the
computer room is locked, alarmed and protected by a gas extinguishing
system with key fob access for certain users.
4.
Ensuring network equipment is, wherever possible, kept in a locked cabinet
which is accessible only by ICT staff
5.
There is a firewall to protect the network which is regularly upgraded to
meet the changing security environment.
6.
Access to the network and individual systems within it is controlled by
password.
7.
Maintaining records of all ICT assets including maintenance details and
maintenance of Service Desk records to inform on the performance of
assets.
8.
Ensuring appropriate maintenance contracts are in place wherever required.
9.
Ensuring the suitability for purpose of the main Computer Suite and Backup
location.
10. Informing clients where assets have or are about to become “end of life” and
jointly start the planning process for replacement and ensuring a robust
replacement scheme is in place and funded by capital investment for
Corporate Application Servers.
11. Maintaining a risk register for ICT with tasks and responsibilities allocated
to each risk.
12. Having a robust and up to date Disaster Recovery Plan and ensuring
availability of Back Up Power for the Computer Suite.
13. Disposing of hardware in accordance with WEEE regulations and
promoting sustainability through Green ICT.
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6.
CAPITAL PLANNING AND INVESTMENT AND ASSET MANAGEMENT
6.1
The corporate asset management strategy sets out the actions and objectives for each asset
class to ensure that they are utilized in an effective and efficient manner. This section
highlights the essential linkages between asset management planning and capital planning and
investment.
6.2
The Council has recognised that it’s 3 year capital investment plans must fully align with its’
asset management strategy, thus ensuring investment is most appropriately prioritised and
targeted in furthering the Council’s strategic aims and objectives.
The Prudential Code places a formal requirement on local authorities to take account of asset
management planning and option appraisal to support and inform capital investment
decisions.
In practical terms, it is recognised that there will require to be an essential core level of
investment required to fulfil statutory obligations e.g. essential backlog maintenance.
6.3
A close working relationship has been developed between the Corporate Asset Management
Group and Capital Planning and Review Working Group (with key officer cross
representation on each Group) in order to ensure the necessary liaison and integration of
processes required.
A key output is clearly to ensure that investment is directed to those assets where there is
identified need in terms of asset performance and in optimising service delivery.
Given current and likely future resource constraints, prioritisation will be an important aspect
of this process, involving consideration of outcomes of options appraisals, and evaluation of
risk, e.g. in relation to statutory obligations, health and safety requirements and service
imperatives..
6.4
A process is in place, and is being further refined whereby service bids for capital programme
resources are initially reviewed by the Corporate Asset Management Group in terms of their
priority and consistency with asset management indicators and asset performance, prior to
further consideration of these bids by the Capital Planning and Review Working Group.
6.5
Internal processes in this regard are being developed consistent with CIPFA’s – ‘Capital
Planning and Option Appraisal – A Best Practice Guide for Councils’.
6.6
A summary of the Council’s currently approved General Services and Housing Capital
Programmes 2011/12-13/14, is appended to this document.
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7.
CONCLUSION
7.1
This strategy provides a framework for taking forward and building on the achievements of
the previous 2007/10 Corporate Asset Management Plan – ‘Better Assets, Better Services’.
7.2
The approach being adopted i.e. individual asset management plans for each of the six
identified asset classes within the over-arching Corporate Asset Strategy is considered to be
the optimum means of ensuring, efficient and effective deployment of assets and means of
directing and prioritising investment based on a consistent approach to option appraisal.
7.3
A consistent approach to ensuring efficient and effective asset management has been
developed for each asset class within the context of the relevant plan.
Key aims and objectives, together with measureable actions / outcomes are identified in each
case, enabling effective tracking of progress and performance monitoring and reporting.
7.4
Successful implemention of the Corporate Asset Strategy, (and supporting asset management
plans) will be key to ensuring delivery of quality affordable services during a period of
continuing financial constraints.
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Appendix 1
Corporate Asset Management Strategy
2011 – 2014
Asset Management Overview
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Corporate Asset Management Strategy ‘Better Assets, Better Services’
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ASSET MANAGEMENT OVERVIEW
CORPORATE
MANAGEMENT TEAM
CORPORATE
ASSET MANAGEMENT
GROUP
CORPORATE ASSET MANAGEMENT STRATEGY
MANAGEMENT
INFORMATION
SYSTEMS
ASSET CLASS PLANS
PROPERTY
OPEN
SPACES
ROADS,
STRUCTURES,
LIGHTING,
INFRASTRUCTURE
Development Services
HOUSING
ICT
FLEET
&
PLANT
PERFORMANCE
STRATEGIC
STRATEGIC
OPERATIONAL
OPERATIONAL
BEST VALUE
DECISIONS
&
PRIORITISED
ACTIONS
Economy
Budget
Savings
Efficiency
Capital
Receipts
Efficiency
Optimum
Service
Delivery
Corporate & Neighbourhood Services
CAPITAL & REVENUE
RESOURCES/BUDGETS
SINGLE
OUTCOME
AGREEMENT
COMMUNITY
PLAN
CORPORATE
PLAN
SERVICE PLANS
DEVELOPMENT PLANS
Page 29 of 33
Appendix 2
Corporate Asset Management Strategy
2011 – 2014
Summary General Services Capital Programme –
2011/12 – 2013/14
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FALKIRK COUNCIL
GENERAL CAPITAL PROGRAMME
FUTURE INVESTMENT PLANS
2011/12
£000
2012/13
£000
2013/14
£000
EXPENDITURE
EDUCATION SERVICES
9,383
5,626
4,134
DEVELOPMENT SERVICES
9,492
7,080
6,475
COMMUNITY SERVICES
5,036
4,171
451
550
1,050
1,050
2,831
2,630
2,560
650
590
1,450
27,942
21,147
16,120
9,319
8,374
1,887
11,733
11,733
11,733
SCOTTISH GOVERNMENT RING-FENCED GRANTS
(Cycling, Walking & New School funding)
2,769
0
0
CAPITAL RECEIPTS – PROPERTY SALES
1,500
1,000
2,500
EXTERNAL FUNDING (Grants & Section 75)
2,621
40
0
27,942
21,147
16,120
SOCIAL WORK SERVICES
CORPORATE & NEIGHBOURHOOD SERVICES
CENTRAL SUPPORT SERVICES
TOTAL EXPENDITURE
RESOURCES
FALKIRK COUNCIL BORROWING
SCOTTISH GOVERNMENT BLOCK GRANTS
TOTAL RESOURCES
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Appendix 3
Corporate Asset Management Strategy
2011 – 2014
Summary Housing Capital Programme –
2011/12 – 2013/14
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2011/12 to 2013/14 HOUSING INVESTMENT PROGRAMME
PROPOSED EXPENDITURE PROFILE
2011/2012
2012/2013
2013/2014
£m
£m
£m
6.700
1.700
2.000
10.400
6.700
1.200
2.500
10.400
6.700
1.200
2.500
10.400
4.900
0.400
5.300
4.900
0.400
5.300
4.900
0.400
5.300
1.000
1.000
1.000
1.000
1.000
1.000
2.500
0.200
2.700
2.500
0.200
2.700
2.500
0.200
2.700
0.350
0.350
0.350
5.250
5.250
11.000
11.000
5.000
5.000
0.200
0.200
0.200
Total Programme
25.200
30.950
24.950
Resource Assumptions
Prudential Borrowing
Council House Sales
Energy Section Income (e.g. Warm Deal)
CFCR
Scottish Government New Build Grant Funding
Total Estimated Resources
£m
17.415
3.325
0.300
1.760
2.400
25.200
£m
25.035
2.975
0.300
1.560
1.080
30.950
£m
20.665
2.625
0.300
1.360
24.950
SCOTTISH HOUSING QUALITY STANDARD (SHQS)
WORKS
Elemental Maintenance & Improvements
External Fabric Improvements
Kitchen / Bathroom Renewal
Electrical Works
Sub-Total
Energy Efficiency Works
Replacement Heating
Insulation Works
Sub-Total
Estate Improvements
Communal Door Entry Systems
Sub-Total
Priority Areas
High Rise Flats
Other Priority Areas
Sub-Total
Health & Safety
NON-SHQS WORKS
New Build Housing
Construction Works
Sub-Total
Other Works (Digital TV, Property surveys)
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