Better Practice Review - Shire of Irwin€¦ · · 2016-11-04The Local Government Better Practice...

Department of Local Government and Communities

Gordon Stephenson House

140 William Street

PERTH WA 6000

Telephone: (08) 6551 8700 Facsimile: (08) 6552 1555

Website: www.dlgc.wa.gov.au

Better Practice Review

Shire of Irwin

August 2015

http://www.dlgc.wa.gov.au/

1

THIS PAGE LEFT INTENTIONALLY BLANK

2

TABLE OF CONTENTS

PART I – BETTER PRACTICE REVIEW .......................................................................................................3

PART II – ABOUT THE SHIRE OF IRWIN ....................................................................................................5

PART III – EXECUTIVE SUMMARY ..............................................................................................................6

PART IV – REVIEW AND ASSESSMENT ....................................................................................................7

1. Governance ................................................................................................................................................7

2. Planning and Regulatory Functions ..................................................................................................... 14

3. Plan for the Future .................................................................................................................................. 18

4. Asset and Finance .................................................................................................................................. 21

5. Workforce Planning and Human Resource Management ................................................................ 26

6. Community and Consultation ................................................................................................................ 30

PART V - ACTION PLAN .............................................................................................................................. 34

3

PART I – BETTER PRACTICE REVIEW

The Local Government Better Practice Review (BPR) Program is an initiative undertaken by the

Department of Local Government and Communities (Department) to recognise and promote good

practice in Western Australian country local governments. The BPR Program is part of the State

Government’s Country Local Government Fund (CLGF) Capacity Building Program.

The BPR Program involves a team assigned to work closely with local governments to review key

areas of that local government’s activities and operations.

Program Objectives

The BPR Program has been designed to acknowledge areas of better practice whilst encouraging

improvement in the way local governments conduct their activities to ensure good governance and

build the capacity of the local government sector.

The objectives of the program are to:

Generate momentum for a culture of continuous improvement and greater compliance

across the local government sector.

Promote good governance and ethical regulation.

Identify and share innovation and best practice in the local government sector.

Act as a ‘health check’ by providing departmental advice and support to local governments

that may be experiencing operational problems.

Reporting of a BPR

Through the local government completed self-assessment checklist and the collection and collation

of additional relevant information prior to an onsite review, the review team will summarise key

findings in the areas of:

Governance

Planning and Regulatory functions

Plan for the Future (strategic and corporate planning)

Assets and Finance

Workforce Planning

Community and Consultation

The onsite visit can take anywhere between 1-5 days, depending on the size and location of the

local government and the scope of findings. The onsite review is a key component of a BPR as it

presents the review team with an opportunity to further expand upon the knowledge gained from

reviewing the local government’s documents, which in turn assists in analysing and reporting on the

above mentioned areas.

The report aims to highlight areas where a local government is demonstrating better practice, as

well as providing constructive feedback on addressing any areas for further development, as

defined below:

4

✓✓

Better Practice

Achieves a strong performance or above minimum compliance

requirements, obligations and published guidelines etc.

Innovative and/or effective.

Contributes to continuous improvement within the local government

sector.

✓

Satisfactory

practice

Complies with the Local Government Act 1995 and other legislation.

Policies, practices and/or procedures appear to be consistent with

local government sector practice.

* Area for further

development

Further development has been identified or is progressing in order

to improve or enhance local government operations and/or;

Does not satisfactorily meet minimum legislative compliance

requirements, legislative obligations, industry standards, policies

and published guidelines.

n/a

Not assessed

Or

Not applicable

In some instances the local government may have indicated in its

self-assessment checklist this is not an area applicable to its

operations.

Or, the review team has not had an opportunity to examine a

particular area in sufficient detail for an overall assessment to be

confidently made.

Where appropriate, the areas recognised as requiring further development or satisfactory practice

will feature suggested recommendations that the local government can aim to address through a

documented action plan.

Although the report will address some legislative requirements, it’s important to note that this is not

solely a compliance exercise, and feedback focuses on building the capacity of the organisation to

achieve sector standard across a range of functions and operations.

Implementation

The local government has the opportunity to provide commentary and feedback on any findings of

the review and/or a response to each area of the report, ensuring the report captures an accurate

reflection of that local government. In particular it is requested that the local government review and

complete the draft action plan in this report which identifies recommendations for the areas of

further development.

Both the local government’s feedback and the action plan are added to the draft report to comprise

the final report, which is then provided for the local government council’s consideration.

5

PART II – ABOUT THE SHIRE OF IRWIN

The Shire of Irwin (Shire) covers an area of just over 2,220 square kilometres (km) and is located on

the mid-west coast of Western Australia, 360 km north of Perth. It is situated within the Irwin River

catchment area and is centred on the twin town sites of Dongara and Port Denison, with

surrounding rural sites. As a result of its coastal and rural environment, the industry base of the

Shire is relatively broad. Agricultural and fishing industries, as well as mining and resource

industries (specifically oil, gas and mineral sands) are major drivers of the local economy, as is

tourism.

At the end of June 2013 the Shire’s estimated resident population (ERP) was 3,780; an increase of

377 people over five years (or 11%). Reflecting the Shire’s popularity as a retirement destination,

ERP figures show that the local population is considerably older and ageing faster than the state

average. For example, in 2013, the average age of Shire residents was 45 years - close to ten years

older than the state average of 36 years. Five years earlier, the average age of people living in the

Shire was 43 years of age, whilst the state average remained the same (36 years of age).

The Shire currently has eight elected members (including the Shire President) and the Shire’s

2014/15 Annual Budget states a total expenditure of just over $10.6 million, with a rates income of

just over $4.5 million for the financial year.

6

PART III – EXECUTIVE SUMMARY

A BPR took place at the Shire in late April 2015. The review team wishes to thank the then Shire

President Mr Stuart Chandler, Chief Executive Officer Mr Darren Simmons, Coordinator Executive

Services Ms Erin Greaves, all elected members and staff for their cooperation and participation in

the BPR, and for providing valuable information on the Shire’s practices and procedures.

The report identifies areas of better practice and further development under the headings of

Governance, Planning and Regulatory functions, Plan for the Future, Assets and Finance,

Workforce Planning and Human Resource Management and Community Consultation.

Overall, the review found that the Shire is an organisation which functions well, with a strong

leadership and management team and a highly motivated workforce. The Shire demonstrated

evidence of having a positive organisational culture, strong regional and community relationships

and sound financial management. The Shire’s key strengths include undertaking integrated planning

to a high level, effective community engagement and customer service, and a commitment to

continuous improvement.

Areas of further development were mainly identified in regards to documentation of policies or

processes, review of key documents or procedures, and improvement of asset management

practices. In most instances, the Shire was already aware of these issues and identified them

before, or during, the review as areas for improvement. Consequently, the Shire is currently in the

process of addressing most of these areas, or planning to in the near future. The Shire is

encouraged to continue addressing these areas, further building the capacity of the organisation

and safeguarding its effective operation, and good governance, into the future.

7

PART IV – REVIEW AND ASSESSMENT

1. Governance

Introduction

Good governance in the local government context gives reference to the ability of structures,

systems, policies and processes to support decision-making and ensure Council is achieving its

strategic and operational objectives. Having strong governance practices and procedures in place

is essential to ensure a local government has the necessary resources, skills and expertise

available to deliver services to its community and to discharge its obligations under law.

Policy and legislative framework

Local Government Act 1995

Local Government (Administration) Regulations 1996

Local Government (Audit) Regulations 1996

Local Government (Rules of Conduct) Regulations 2007

State Records Act 2000

State Emergency Management Act 2005

Freedom of Information Act 1992

Public Interest Disclosure Act 2003

Integrated Planning and Reporting Framework and Guidelines

Summary Analysis

An assessment of the Shire’s performance in areas of governance was undertaken as part of the

review and the findings detailed below:

Area of assessment Assessment of the local

governments’ performance

Values and ethics ✓✓

Code of conduct *

Gifts and benefits ✓

Communication devices *

Disclosure of Interest (Delegations Register) *

Statement of Business Ethics *

Organisational risk management *

Fraud control *

Business continuity *

Emergency management ✓

Audit in local government – audit committee ✓

External audit process ✓

Compliance audit return ✓

CEO report ✓

Internal audit ✓

Legislative compliance ✓

8

Legal services ✓

Records management ✓✓

Access to information by the public ✓

Executive management meetings ✓✓

Policy register ✓

Local government meetings ✓

Elected member induction and ongoing training ✓

Expenses and allowances policy ✓

Elected member and staff interaction ✓

Access to information by elected members ✓

Complaints handling and customer services ✓

Public interest disclosure ✓

Awards ✓

Strategic alliances

✓✓

Information technology *

A number of strengths were identified during the review process:

There is a positive organisational culture at the Shire in combination with a motivated

workforce that is closely connected to the local community, and which promotes a strong

focus on accountability, progression and customer service.

A clear set of customer service standards exists focusing on community service delivery,

alongside a comprehensive values and ethics statement. These are supported by the Shire’s

Customer Service Charter, which is actively implemented by front office and administrative

support staff.

The executive management team has a good insight into the areas of the Shire requiring

further development and demonstrates a commitment to continuously improve. In line with

this, structured meetings of the executive team and senior management are regularly held to

discuss upcoming projects and pressing matters facing the Shire.

There is a culture of effective communication across each branch and division of the Shire

and a positive approach to exchanges of information, supported by a regular, scheduled

cycle of staff meetings. The continuity of information sharing across the organisation gives

the impression of unity, professionalism and competency.

The Shire has created a governance calendar to assist staff in meeting legislative

requirements throughout the year. The governance calendar is being published on the

Shire’s intranet, which will promote accountability and legislative awareness amongst all

staff.

The Shire effectively utilises the Synergy software system as a complaint handling (and

records management) tool to ensure correct processes are followed when a complaint (or

record) is received and matters are resolved in a timely and efficient manner.

The CEO demonstrates strong leadership and is innovative and influential in both the local

community and regionally, building strong alliances with neighbouring local governments in

informal capacities, as well as formal ones.

The Shire is involved in strategic alliances which demonstrate its capacity to build strong

regional relationships with tangible benefits for the community and staff. The Shire’s

9

participation in the Northern Zone regional archive and records management data centre is

one such example.

A number of areas were identified for further development as an outcome of the assessment

process:

The Code of Conduct should be updated to include information on non-compliance with the

Code. The Code of Conduct should also be read and acknowledged by all new and existing

elected members and employees.

The Standing Orders Local Law 2000 should be reviewed and/or updated.

The review of the delegations register should be finalised and a system for delegations from

the CEO to employees should be adopted.

The Shire should continue preparing a risk management plan based on its risk management

framework, ensuring that any fraud control matters are linked to the risk management plan.

The Shire is currently developing a business continuity plan and once this has occurred, it

should complement any risk management documentation that is produced.

The Shire does not have a policy governing the use of communication devices such as

iPads, email accounts, computers or telephones and is encouraged to prepare one.

A statement of ethics to guide the performance of contractors (and contracts with external

companies) should be formalised to ensure the Shire’s standards are understood and

upheld.

The Shire should prepare an Information and Communication Technology (ICT) framework.

The Shire should consider adopting a set of standard procedures for public question time

and in doing so; make available a copy of the procedures (or summaries of these) to people

wishing to ask questions at Council meetings.

The Shire should continue to prepare a formal induction package for elected members to

assist them to understand their roles and responsibilities and to comply with their statutory

obligations.

A policy should be developed formalising the Shire’s current practices around elected

member and staff interactions.

Areas of Better Practice

Values, Ethics and Workforce

A recurring theme in discussions with the Shire was the focus on strong and effective management,

strengthened by the crucial elements of relationship-building and trust. The executive team displays

a genuine commitment to building trust, and relationships between all staff, elected members and

the general community. This results in a good level of rapport between the various branches of the

Shire, as well as between the CEO and Shire President. In support of this, the Shire’s internal

communication is comprehensive, covering a variety of mechanisms to ensure all staff and

councillors are kept informed. One example of this is the regular cycle of staff meetings; including

monthly full staff meetings (for administration and works staff), senior management meetings and

executive management meetings.

The Shire is currently undertaking a service and organisational review and has appointed an

external consultant to review its organisational structure while identifying key staffing positions

required, ensuring the Shire is fit for the future. The findings and recommendations of the review will

also be applied to the Shire’s decision making procedures to ensure it effectively and efficiently

10

delivers on its mandate to achieve Plan for the Future outcomes (i.e. Integrated Planning and

Reporting, see section three in this report).

CEO Workshops

The Shire holds regular CEO workshops (i.e. Council forums), the purpose of which is the exchange

of information between the CEO and elected members on key issues facing the Shire. These

workshops enable the Council to discuss priority matters, at length, in a less-formal capacity;

meaning ensuing Council meetings conclude in a timely matter, with minimal clarification required

for decision making to occur. Procedural controls are evident at the workshops, ensuring their

purpose remains clear and decisions are not made.

The holding of workshops such as these is considered good practice as workshops/forums are an

effective way of providing elected members with detailed background information on matters which

will be before them; ensuring Council meetings are efficiently run, and developing elected member

knowledge and expertise.

Records Management

Local governments are required to keep full and accurate records of their activities in accordance

with the State Records Act 2000. The Shire is fully compliant with legislative recordkeeping

requirements and has established excellent records management practices, procedures and

guidelines. The Shire demonstrates an understanding of the importance of good record-keeping

practices and fully utilises the many benefits provided by the Synergy software system.

Regular record keeping training is provided to staff, which ensures they are highly trained in, and

accountable for, the upkeep of data integrity of the organisation. Additionally, the Shire is

participating in the Northern Zone Councils ICT Shared Services model, in conjunction with Market

Creations, for offsite archive and records management at the Geraldton Data Centre. This strategic

alliance demonstrates a positive approach, and practical solution, to records management.

Areas of Satisfactory Practice

Local government meetings

The Shire’s Council meetings are effectively chaired by the Shire President and elected members

put forward their views in a mature and respectful manner. At an observed Council meeting, public

question time was not opened by the presiding member giving a brief statement on the rules

governing that part of the meeting. As a result, there were some backwards and forwards of

questions and answers between the speaking members of public and the presiding member. The

Shire may benefit from documenting a structured procedure and communicating it to the public

gallery prior to the commencement of public question time.

Elected Member Induction

A formalised induction program is a key element in providing information and training to newly

elected members on areas of governance such as roles and responsibilities, statutory obligations

and duties, meeting structures, relationships between elected members and staff, organisational

structure, agenda/minute protocol, declarations of office and appointing delegates to committees. A

comprehensive induction package is currently being developed by the Shire ahead of the upcoming

2015 local government ordinary elections.

Elected Member and staff interactions/Elected Member access to information

11

There is a positive workplace culture at the Shire and relationships between elected members and

staff are considered cordial and respectful, although they are not governed by a clear policy

framework. Additionally, formal protocols are not documented in regards to requests for information

from elected members, although it appears that appropriate processes are being followed.

The review found that the Shire’s current elected members express a strong awareness of their

roles and responsibilities regarding interactions with staff, and an understanding of the limitations

involved in undertaking tasks that contribute to the administration of the Shire. In light of the

intention of two long-standing councillors to retire at the end of their term in 2015, the Shire has

identified a need to form policies to guide the behaviours of elected members in these key areas.

The Shire is encouraged to continue this work to ensure good governance practices into the future.

Areas for Further Development

Code of Conduct

The Shire is generally meeting all statutory obligations in relation to its Code of Conduct (Code)

document, which has been prepared in accordance with the WA Local Government Association

(WALGA) draft model. On the advice of the Department following the onsite visit, the Shire intends

to update the document to include information regarding enforcement of the Code.

In line with recommended practice, a copy of the Code is provided to all new employees and elected

members for acknowledgement; however this does not apply to all existing staff. The Shire advised

it is currently implementing a process to ensure that all existing employees sign a declaration,

acknowledging that they have read, and understand the conditions of the Code and agree to abide

by its requirements. The Shire is encouraged to continue this process.

Delegations

The Shire’s delegations register is currently under review. Whilst the register contains some detail;

in the case of delegations from the CEO to Shire employee(s), the register should also contain a

copy of any relevant memorandum of delegation or formal appointment correspondence. The Shire

advised that its current protocol, when delegating powers and duties to employees, involves an

email to the employee providing a copy of the register as a means of notification. This does not

provide for sufficient record keeping or accessible accountability of the performance of these

delegations.

Additionally, a number of Shire employees have completed a Primary Return and subsequent

Annual Return when they may not be required to. A review of the delegation register should

determine delegations from “authorisations” and enable the Shire to adopt a sufficient system for

delegations from the CEO to employees, including appropriate documentation. Employees who are

identified as no longer having delegated powers or duties under the Local Government Act 1995

should be notified in writing.

Policies and Procedures

The Shire’s policies, procedures and systems are generally of a good standard. However, some

existing practices require formal recording and some key documents should be developed to

improve practices and ensure a sound governance framework for the Shire. These include:

Risk Management Plan

Risk management involves the systematic identification, analysis, evaluation, control, and

monitoring of a wide range of risks; and is an essential part of good business practice. While risk

12

cannot be entirely eliminated, establishing a risk-aware culture and working towards establishing

structures, processes and controls that can effectively reduce risk is encouraged. The Shire advised

it has developed a Risk Management Framework which will form the basis for the preparation of an

overall risk management plan. It is recommended that when developed, this risk management plan

be linked to formalised documentation on fraud control matters and to the Shire’s integrated

planning and reporting documents (e.g. Corporate Business Plan, Long Term Financial Plan)

Business continuity planning

Business continuity planning forms part of risk management as it enables a local government’s

internal and external services to quickly recover from a range of disasters. It is also an essential

component of good governance. To complement and strengthen the impact of the Shire’s intended

risk management plan, the development of a business continuity plan is viewed as a priority.

Communication devices

The Shire’s Online Communication and Access Policy provides direction for the Shire’s social

media, website and other online marketing and promotional activities. It does not however,

encompass the scope of communication device use, such as iPads, email accounts, computers or

telephones. During the review, the Shire advised that a communication device usage policy was

being created. To achieve good practice, the Shire is encouraged to continue this process.

Business ethics statement

Although the Shire has procurement and tendering guidelines in place, procedures for monitoring

the performance of contractors and overall contract management are informal and not documented.

To provide elected members and the community with assurance that contractual arrangements are

being appropriately established and scrutinised, the Shire is encouraged to develop a business

ethics statement. A business ethics statement would guide external parties (such as suppliers and

contractors) on the expected standards and conduct required when dealing with the Shire, or acting

on its behalf.

Information Technology

A local information technology (IT) company manages the Shire’s IT systems and, as such, the

Shire does not currently have an ICT strategic framework. An ICT Framework would outline how the

Shire should manage ICT resources and act as a key tool for the Shire to plan, manage and review

its ICT assets. The Shire is encouraged to implement strategies to develop an ICT Framework as

per the Department’s ‘ICT Strategic Framework’ guidelines.

The Shire’s response

The BPR Team’s comments are noted.

Whilst the Shire of Irwin Code of Conduct (the Code) is considered to comply with minimum

requirements outlined within relevant legislation, it is considered appropriate that the Code be

reviewed and amended, as required. In this regard, it is agreed that further information should be

included regarding consequences of non-compliance. Ensuring all elected members and employees

have read, understood and acknowledged the Code will be enforced upon adoption of the new

Code.

The Delegations Register was updated and adopted in 23 June 2015 and allows for the capture of

additional delegations throughout the year (as it is reviewed every 12 months). Procedures have

13

changed to ensure that delegations made by the CEO to staff are made in writing and recorded

within the register. A written procedure is being developed.

During the course of the review, it was identified that in addition to its adopted Risk Management

Framework, Shire staff have developed a Risk Profile document that addresses all key business

risks facing the local government. By linking these two risk management documents, the Shire does

have a risk management plan in place. The risk profiles do acknowledge policies and procedures in

place as control measures in response to any risks identified e.g. fraud, and link to the Shire’s

integrated planning strategies and documents where appropriate.

A Business Continuity Plan is yet to be developed. However the Shire has begun research into

internal processes and risk management. Reference will be made to supporting documentation such

as the Shire’s Records Disaster Management and Recovery Plan.

A policy governing the use of communication devices, such as iPads, email accounts, computers or

telephones has been developed. The Information and Communications Technology (ICT) Policy

was adopted 16 September 2015, along with a number of other HR Policies and Procedures.

A Business ethics statement will be considered as part of planned procurement consultancy work.

The Standing Orders Local Law was last reviewed in 2008 (with no suggested changes to the Law

adopted in 2000). All Shire Local Laws are currently under review. It is anticipated that the review

process will be completed early 2016 and any amendments or new local laws to be prepared and

adopted before end of June 2016. The Shire is considered to be compliant with statutory

requirements.

Subject to Council approval, it is proposed that the Standing Orders Local Law will be repealed and

replaced with a new Meeting Procedures Local Law that will include procedures for public question

time. From this an information sheet can be developed for members of the public, summarising

appropriate procedures and behaviours.

An induction process has been developed for Elected Members, in preparation for the local

government elections in October 2015. The Induction covers; Legislation and Rules, Roles and

Responsibilities, Operations, Key Documents, Information Access and Resources, Key Projects and

Events, Training and Professional Development and the Customer Service Charter.

The Shire will develop a governance framework for Council consideration to assist in formalising the

Shire’s current practices around elected member and staff interactions.

14

2. Planning and Regulatory Functions

Introduction

Local governments carry out a number of land use planning and regulatory functions; the majority of

which are enacted by State Government legislation. A number are also exercised through relevant

local laws, planning schemes and policies. The ways in which these functions are carried out by a

local government, in line with appropriate legislation and in an efficient and effective manner, are

important for achieving a wide range of social, economic and environmental outcomes.



Planning and Development Act 2005

Health Act 1911

Dog Act 1976

Dog Regulations 1976

Cat Act 2011

Cat Regulations 2012

Heritage of Western Australia Act 1990

Building Regulations 2012

Caravan Parks and Camping Grounds Act 1995

Cemeteries Act 1986

Summary Analysis

An assessment of the Shire’s planning and regulatory functions took place during the review and the

findings are detailed below:

Area of assessment Assessment of the local government’s

performance

Land use planning ✓

Development Applications process ✓✓

Heritage *

Graffiti removal ✓

Enforcement ✓

Environmental Management ✓✓

Local Laws ✓

Companion animals ✓

Nuisance dogs ✓

Dangerous dogs n/a

Swimming pools ✓

Caravan parks and camping grounds ✓

Cemeteries ✓

Abandoned vehicles ✓

15

A number of strengths were found during the review process:

The Shire has implemented various guidance notes, procedure notes, registers and

checklists to assist staff in undertaking planning functions, including processing development

applications, scheme amendments, and dealing with customer queries.

A comprehensive list of easily-accessible Frequently Asked Questions (FAQ) sheets have

been developed to assist the community with planning issues.

In the last year, 99% of development applications received by the Shire were dealt with

under delegated authority.

Alongside other documents addressing environmental management issues, the Shire has

developed a Green Infrastructure Strategy 2015-2020 in alignment with outcomes from its

Strategic Community Plan.

In addition to carrying out its own regulatory and enforcement services, the Shire provides

these services (including building, planning and environmental health) to the neighbouring

shires of Mingenew and Three Springs; both arrangements are supported by memorandums

of understanding (MOUs).

The Shire actively promotes responsible pet ownership and pet registration by publishing a

brochure and including detailed information on the Shire website, in Shire publications (i.e.

Brilliant Blend Bulletin) and with rates notices.

During the assessment process, two areas were identified for further development:

The Shire should continue to progress the review and update of its Municipal Heritage

Inventory, in line with the requirements of the Heritage of Western Australia Act 1990.

As required by the Local Government Act 1995, the Shire’s local laws are due to be

reviewed.


Development Application Process

The Shire has well-structured processes in place to assist planning staff with the assessment of

Development Applications (DAs). The Shire’s Procedure for Development Applications document

clearly outlines each stage associated with processing DAs (e.g. receipt and lodgement,

assessment, processing), the tasks required at each stage and the officer/s responsible. This is

accompanied by a checklist for assessing DAs, which together provide comprehensive information

for planning staff, ensuring that the required steps are taken in the DA process, enabling timely and

accurate assessments.

The Shire tracks and monitors the status of DAs through its Planning Applications Register. Through

the register, planning staff stay up-to-date with, and can easily report on, the status of DAs; ensuring

an efficient process and providing applicants with a high-level of service.

Further to this, the Shire has produced twelve detailed, yet easy to understand FAQ sheets to assist

applicants with the planning process. Available from the administration centre and website, the FAQ

sheets clearly outline information on zoning requirements, restrictions and other planning related

issues (such as home occupations, subdivisions and fences). In conjunction with the FAQ sheets,

the website includes the Shire’s planning application form; fees and charges summary and the

Shire’s local planning policies, scheme and strategy. The Shire also offers a pre-lodgement advice

service for applicants. Overall, the Shire provides planning applicants with high quality, accessible

information, and customer service, through all stages of the DA process.

16

Environmental Management

During the development of its Strategic Community Plan, the Shire’s community identified

environmental management and protection as significant issues. As a result, environmental

management is included in a number of strategies in the Shire’s Plan for the Future documents,

namely those in outcomes 1.2, 2.2 and 2.3; all which outline the Shire’s responsibility to manage,

conserve and protect the natural environment for the benefit of the wider community.

The Shire has undertaken a number of actions to achieve these outcomes including; adopting the

Port Denison Foreshore Master Plan (October 2013), reviewing the Irwin River Estuary

Management Plan (November 2014) and Waste Management Plan (February 2015), and recently

endorsing a Green Infrastructure Strategy (February 2015). Initially developed as a recommendation

of the Dongara Port-Denison District Structure Plan, the Strategy also clearly demonstrates

alignment with, and support of, the four objectives in the Shire’s Plan for the Future documents.

Currently, the Shire is undertaking a coastal planning project in partnership with the Northern

Agricultural Catchment Council (NACC) and Curtin University. As well as building key strategic

alliances through the project, the Shire is responding to its Plan for the Future, specifically to

strategy 1.2.8 “Continue to partner with State Government and other funding providers, to support

coastal protection works”, and to outcomes 2.2 and 2.3. The Shire’s actions in environmental

management, in alignment with its Plan for the Future, are considered good practice, illustrating the

Shire’s strength in, and commitment to, undertaking integrated planning and achieving community

aspirations.


Companion Animals

In an effort to increase pet registration levels and encourage responsible pet ownership, the Shire

provides comprehensive information regarding these issues to the local community, through a

number of methods. The website contains detailed information on what it means to be a responsible

pet owner (for both dogs and cats), registration advice, guidelines regarding dogs in public places

and approved dog exercise areas (including a map). The Shire has also published a brochure, ‘Your

Dog and the Law – Information for Dog Owners’, which is linked on the website and provided to new

residents in a community welcome pack. Reminders about dog and cat registrations are also

included in the Shire’s ‘Brilliant Blend Bulletin’ and in an information brochure which accompanies

the rates notice.

Enforcement

The Shire carries out all enforcement and regulatory activities in line with legislative requirements. It

has convened a Development Control Unit, made up of planning, building and environmental health

staff, which meets weekly to deal with non-compliance issues; follows a public health compliance

monitoring program; inspects swimming pools every four years (as required by the Building

Regulations 2012) and carried out a caravan park inspection in March 2015. All inspections and

incidents of non-compliance are recorded in appropriate inspection registers on the Synergy

software system.

Currently, the Shire is involved in two shared-service partnerships, providing regulatory and

enforcement services to the shires of Mingenew and Three Springs. Both arrangements are

supported by formal and documented MOUs, which clearly outline each Shire’s role and

responsibility, ensuring transparency and accountability for all parties.

17


Heritage Inventory

The Shire has a municipal inventory of heritage places as required by S45 of the Heritage of

Western Australia Act 1990 but it is due to be reviewed and updated. The Shire advised it had

commenced this process by undertaking an audit of heritage places, in collaboration with the Irwin

Historical Society. In order to comply with the Act, the Shire should continue to progress this.

Local Laws

Currently, the Shire has 12 local laws. The Local Government Act 1995 requires a local government

to review each of its local laws eight years after adoption (or date of subsequent review) to ensure

that they stay relevant and current. The Shire noted its local laws are due to be reviewed; and this

review is underway. To achieve compliance with the Act and to ensure the local laws remain

relevant, the Shire should complete this review within the prescribed timeframe.

The Shire’s response The BPR Team’s comments are noted.

The Shire is currently underway with the review of its Municipal Inventory and anticipates it will be

completed by the end of the financial year.

The assessment for Heritage does not reflect the fact that Heritage Protection is well-catered for

within the Local Planning Scheme, where all of the Shire’s most important Heritage Places are fully

protected by being placed on the Scheme’s Heritage List. Since the Review took place earlier on in

the year Planning Services have developed a draft Local Planning Policy for Heritage.

The assessment of local laws has been identified as an area for further development, however, a

full review of all Shire’s Local Laws is underway within the appropriate minimum 8 year period and it

is therefore considered that the Shire is compliant in this area. The local law review process has

identified a need to update, repeal and/or replace a number of local laws but will be subject to

Council approval following a comprehensive public consultation period.

18

3. Plan for the Future

Introduction

The Integrated Planning and Reporting requirements for local governments in Western Australia

came into effect on 1 July 2013. As a result, all local governments are now required to have in place

a Strategic Community Plan and Corporate Business Plan, which together, form a local

government’s ‘Plan for the Future’.


Local Government Act 1995.


Integrated Planning and Reporting Advisory Standard (IPR Advisory Standard).

Integrated Planning and Reporting Framework and Guidelines.

Summary analysis An assessment of the Shire’s performance in regards to Integrated Planning and Reporting (Plan for

the Future) was considered during the review and the findings are detailed below:


performance

Strategic Community Plan ✓✓

Community Engagement Strategy ✓✓

Corporate Business Plan ✓✓

Review of Plan for the Future documents *


The Shire demonstrates a strong commitment to undertaking integrated planning and

reporting and does so to a high level.

The Shire’s Plan for the Future documents are of a good standard, with the Strategic

Community Plan 2012-2022 and Corporate Business Plan 2013-2017 meeting all regulatory

requirements, as well as demonstrating a high level of integration with each other, and with

the Shire’s activities.

Staff at the Shire display a strong understanding of the purpose of integrated planning and

reporting and how it relates to their roles and duties. For example, senior management

utilise a project matrix to ensure that all new projects being considered by the Shire are done

so in relation, and reference to, the Plan for the Future objectives.

In alignment with the ‘Intermediate Standard’ of the IPR Advisory Standard, the Shire has in

place a comprehensive community engagement and public consultation policy.

The following areas were identified for further development:

The Strategic Community Plan is due for its two-yearly desktop review in 2015.

The annual review of the Corporate Business Plan should allow for an evolving and “rolling”

four yearly plan that identifies the Shire’s current position in relation to the delivery of

priorities; for example a plan for 2013-2017 would be revised to one for 2014-2018, then to

2015-2019 (and so on).

19


Strategic Community Plan

The Shire is commended for its strong understanding of, and commitment to undertaking, integrated

planning and reporting. The Shire’s Strategic Community Plan achieves all elements of the basic

standard, as well as many of those in the intermediate standard as outlined in the Advisory

Standard. Of particular note, the plan:

Was developed with, and documents the outcomes of, a robust community engagement

process, with 11% of the Shire’s community actively participating in the engagement process

and a number of different engagement mechanism’s employed.

Takes into account a range of relevant external factors for each strategy (such as key

partners) and the regional, state and federal levels of government which may have

significant influence on the Shire’s ability to achieve its desired outcomes.

Is clearly linked and integrated with a number of the Shire’s issue-specific strategies such as

the Community Development Plan, Green Infrastructure Strategy and Tourism Development

Plan.

Displays clear linkages and relationships with the Shire’s Corporate Business Plan.

In line with regulatory requirements, the Shire’s strategic plan also includes key performance

indicators (KPIs) for each outcome/objective. The strategic plan further meets regulatory

requirements and displays better practice by also including commentary on the Shire’s current and

future resource capacity.

Community Engagement Policy

In alignment with the intermediate standard of the Advisory Standard, the Shire has a Community

Engagement and Public Consultation Policy. The policy is well-written and clearly defines the

principles underpinning the Shire’s engagement activities, the role of councillors and staff in

engaging with the community, and the mechanisms by which the Shire will engage with its

community. The policy is also based on the International Association of Public Participation (IAP2)

spectrum, an international organisation that provides a recognised global standard for best practice

in community engagement.

Corporate Business Plan

The Shire’s Corporate Business Plan meets all regulatory requirements, includes evidence of

business as usual activities and associated costs. In addition, Shire staff display a strong

understanding of the plan and how it relates to their roles and duties, showing a commitment to

integrate the plan with their work activities. For example, the planning and revision process for the

plan involves managers come up with priorities for their work area, taking into account any

operational, project and service delivery plans, then discussing the priorities at senior management

team meetings. In line with this, the review found a high level of integration between the Shire’s

integrated planning and reporting documents and with its activities, down to the operational level.

For example:

The Shire has developed a project matrix which ensures projects and actions are

progressed and achieved. Each project/action has a strategic plan and corporate plan

reference, and new projects are considered by the Shire’s Executive Management Team

(“EMT”) in relation to the Plan for the Future outcomes.

The Shire has indicated it is in the process of upskilling managers to prepare their own

budgets to ensure that budget items are directly linked to the corporate plan.

20

The Shire has developed a governance calendar to assist branches and divisions to meet

legislative requirements throughout the year. Each item in the governance calendar also has

a reference to the Plan for the Future outcomes.

The level of integration which sits behind the Shire’s Corporate Business Plan and the level to which

staff understand and appreciate the role of integrated planning, all present examples of better

practice, for which the Shire is to be commended.


Strategic Community Plan – two-yearly desktop review

The Shire’s Strategic Community Plan 2012-20122 was adopted by Council on 25 June 2013. In

line with the Advisory Standard (which states that strategic community plans should undergo a

desktop review every 2 years), the Shire is now due to undertake the two-yearly desktop review of

its strategic plan. When undertaking this review, the following areas are presented for consideration

by the Shire to further enhance the current plan:

KPIs

As required by the Advisory Standard, the Shire’s strategic plan includes KPIs. To continue

achieving better practice, the Shire should also consider including the desired trend of its key

indicators in future revisions of the plan; i.e. an increase or decrease where appropriate. Further, the

Shire indicated it is looking to develop KPIs at the organisational level as part of the organisational

review currently being undertaken. Once completed, the Shire is encouraged to also include these

KPIs in its strategic plan (or corporate business plan, where appropriate).

Resourcing position

The current version of the strategic plan states that once developed, outcomes of the asset

management, workforce and long term financial plans will further influence expected future resource

levels. At the next revision of the strategic plan, the relative resourcing position as identified in these

informing strategies should be documented, in addition to what this means for progressing the

aspirations in the plan. This will ensure that Strategic Community Plan priorities identified by the

community are based on realistic resource availability and allow for a more open conversation with

the community on what is achievable and what is not.

Corporate Business Plan – rolling annual review

As required by the Advisory Standard, the Shire undertakes a review of its Corporate Business Plan

annually. There is evidence that the plan links to the Shire’s budget, however, the corporate plan

should also be a rolling and evolving four-year plan; that is, new revisions produced every year, with

the current year acting as the base year for the plan. For example, the Shire’s Corporate Business

Plan 2013-2017 should have been revised to one for 2014-2018, with the next review being a plan

for 2015-2019. A rolling plan will identify the Shire’s current position in relation to the delivery of its

priorities.

The Shire’s response The BPR Team’s comments are noted. It is recognised that a review of the Shire’s Plan for the

Future documents are required. The Shire of Irwin is planning to undertake a review upon

completion of its Service and Organisational Review. The suggestions outlined within the review will

be considered.

The Service and Organisational Review, which has been informed by an extensive elected member

and staff consultation process, aims to critically assess the Shire’s current services, identify gaps in

21

effectiveness and efficiencies, make clear and practical recommendations for improvements and

provide guidance for implementation.

4. Asset and Finance

Introduction

Local governments deliver important community services. Effective financial management is crucial

to the sustainable delivery of services to meet community needs and aspirations. Further to this,

fully costed asset management and long term financial planning is an essential component of

integrated planning and reporting, and is required to support and inform a local government’s

strategic planning and corporate business planning processes.



Local Government (Financial Management) Regulations 1996


Local Government (Functions and General) Regulations 1996

Rates and Charges (Rebates and Deferments) Act 1992

Asset Management Framework and Guidelines

Long Term Financial Planning Framework and Guidelines

Model Long Term Financial Plan

Integrated Planning and Reporting Advisory Standard

Summary Analysis

An assessment of the Shire’s operations in asset and financial matters was considered during the

review and the findings are detailed below:

Area of assessment Assessment of the local

government’s performance

Asset management *

Land assets ✓

Financial management ✓

Long Term Financial Plan ✓

Statutory Ratios ✓

Ratio Calculations *

Valuations ✓

Rates and charges ✓

Payments of accounts ✓

Procurement and tendering ✓

Disposal ✓

Investment ✓


At 30 June 2014, the Shire was in a reasonable financial position — only one of a possible

seven statutory ratios was slightly below the minimum standard benchmark.

22

At the end of the 2014 financial year, the Shire had good liquidity. In addition, it displays an

ability to generate a high proportion of own source revenue.

The Shire has good financial management and reporting systems in place and has received

unqualified audit reports for the last three financial years.

The Shire’s Long Term Financial Plan meets recommended practice by including all areas

identified in the Departments Long Term Financial Planning Framework and Guidelines and

Model Long Term Financial Plan.

All three of the Shire’s asset management statutory ratios achieved benchmark, or higher in

both 2012/13 and 2013/14.

To encourage the community to pay their rates in full by the due date, the Shire runs an

early ratepayers incentive prize draw, with over 30 items such as vouchers or services,

donated by local businesses as prizes.

A number of areas were identified for further development as an outcome of the assessment

process:

Annual reviews of the Long Term Financial Plan projections are recommended to ensure

data remains current and up-to-date.

Once the Shire has finalised the transition to fair value for assets, it should document the

current condition of its assets (including useful life) and update the Long Term Financial Plan

and asset management plans accordingly.

The Shire does not have an asset management strategy to support its Asset Management

Policy and asset management plans.

The Shire’s Operating Surplus Ratio is trending downwards and should be monitored to

prevent the occurrence of any long-term adverse trends.

There is a need to improve the reliability and confidence level of data in the Property

Infrastructure Asset Management Plan.

The Shire does not have a formal documented policy regarding the disposal of assets.

The Shire appears to have incorrectly calculated the Own Source Revenue Coverage ratio in

its 2013/14 Annual Financial Report. To ensure this ratio is accurately calculated in future

financial reports, the Shire should disclose reimbursements and/or recoveries separately,

excluding these from the ratio calculation.


Audit and Financial Reporting

The Shire has received unqualified audit reports for the last three financial years. The 2013/14 Audit

Report indicated no adverse trends in the financial position, or financial management practices of

the Shire, and noted the Shire was fully compliant with all legislative requirements.

In terms of financial reporting, the Shire’s 2014/15 Annual Budget, budget review and 2013/14

Annual Financial Report meet all statutory requirements, as do its monthly financial statements.

Long Term Financial Plan

The Shire’s Long Term Financial Plan 2013-2028 was adopted by absolute majority in June 2013

and includes all areas identified in the Department’s ‘Long Term Financial Planning Framework and

Guidelines’ and ‘Model Long Term Financial Plan’. In line with recommended practice, the Shire

advised it undertakes desktop reviews of the Long Term Financial Plan annually and intends to

undertake full reviews every two years — with the first full review scheduled for this year (2015).

23

To guarantee the plan remains accurate and up-to-date, the Shire is encouraged to continue this

process, and consider reviewing the Long Term Financial Plan projections annually, using the

current budget as the base year. Reviews of the Long Term Financial Plan should also result in

rolling 10 year plans for the Shire, i.e. 10 year projections from the base year of each updated and

reviewed plan.

Statutory Ratios – Operating Surplus Ratio

In 2013/14, six out of seven of the Shire’s statutory ratios achieved, or were above, the minimum

industry standard, with the exception of the Operating Surplus Ratio (at -0.17) which dropped below

the basic standard of 0.01 for the first time in three years.

As noted in its Annual Financial Report 2013/14, two of the Shire’s 2012/13 statutory ratios (Debt

Service Ratio and Operating Surplus Ratio) were distorted due to significant once-off, non-cash

revenue of over $3 million, due to the initial recognition of land under the Shire’s control. If the

2012/13 ratios are adjusted for this once-off item, the Shire’s Operating Surplus Ratio declines from

0.45 (non-adjusted) to -0.08 (adjusted).

Using the adjusted ratio of -0.08 for 2012/13, the 2013/14 Operating Surplus Ratio of -0.17 indicates

the Shire has experienced a declining operating deficit between the two periods. The Shire’s

financials indicate this is due to an increase in expenses, without a corresponding increase in

revenue. This downward trend is likely to continue in 2014/15 as indicated by the Shire’s budget. It

is noted that this is not an uncommon issue for country local governments, due to limited rate bases

and limits in revenue raising capability. Nonetheless, the Shire should continue to monitor its

expenditures and Operating Surplus Ratio going forward.


Asset Management

Although significant progress has been made in implementing asset management planning across

the WA local government sector, it is recognised that this will be an ongoing process of continuous

improvement. Since the implementation of the new legislation, the Department’s review of asset

management has highlighted that there are challenges in the sector around data knowledge, data

management, staff capacity and integrating the suite of IPR documents. Therefore, although some

areas of the Shire’s asset management have been identified as requiring further development, it

should be acknowledged that many local governments in the sector are still working to improve the

quality of asset management planning.

In line with the Department’s Asset Management Framework and Guidelines (guidelines), the Shire

has an Asset Management Policy and two asset management plans; one for roads and footpaths,

the other for property infrastructure. Both plans were adopted by Council in 2012. The Shire does

not yet have an asset management strategy and should look to develop one as proposed by the

guidelines. When developed, the asset management strategy should define the Shire’s asset

management practices and demonstrate how its asset portfolio can meet the service delivery needs

of the community.

During the review, the Shire identified some weaknesses in its current asset management practices,

in particular, a lower level of data confidence in its Property Infrastructure Asset Management Plan;

largely occurring due to a lack of building inventory and condition data at the time of developing the

plan. The Shire should continue to work on improving the quality, reliability and confidence levels of

the data within the Property Infrastructure Asset Management Plan to ensure a more robust picture

of its property assets in future editions of the plan.

24

In order to further develop its asset management practices, the Shire is participating in the National

Asset Management Assessment Framework (NAMAF) project funded by the Department and has

currently completed phase one. Through the NAMAF project, with the assistance of a consultant,

the Shire has developed an Asset Management Improvement Plan and formed an Asset

Management Working Group. It is also developing an asset and financial management roles and

responsibilities matrix. Phase two of the NAMAF project will involve the implementation of the

improvement plan.

To continue improving its asset management practices, the following actions are recommended for

the Shire (noting that some of these are already identified in the improvement plan):

Develop a process for making capital investment decisions, driven by the Strategic

Community Plan, Corporate Business Plan and Long Term Financial Plan.

Define and establish a formal procedure and methodology for undertaking asset inventory

condition inspection, and determining useful life of assets.

Develop a timeframe, and procedures, for updating asset management documents

(including asset management plans and strategy, once developed)

Document service levels in all asset management plans including technical and customer

levels of service

Once the Shire has completed the NAMAF project and finalised the transition to fair value for

assets, it should be able to update projections in its asset management plans, as well as in the Long

Term Financial Plan. Accordingly, the Shire is encouraged to do this when appropriate.



In addition to the Director Planning and Infrastructure assuming executive co-ordination of the

Shire’s asset management an Asset Management Team (AMT) has been formed and meets

monthly to co-ordinate the development and ongoing improvement of the Shire’s asset management

policies, strategies and, ultimately, Asset Management Plans.

A draft Asset Management Plan has been prepared to replace the existing plans adopted in 2012,

which includes up to date and accurate data and condition rating relating to transport infrastructure

and property infrastructure although more time needs to be invested into condition rating for

property. Once finalised the draft AM Plan will be presented to Council for adoption. The new AM

Plan will provide more up to date information that will be integrated into the Long Term Financial

Plan (LTFP).

The LTFP requires a review, however updated information is required and will be available following

reviews of the Asset Management Plans, Workforce Plan as well as the Corporate Business Plan.

The Shire’s Asset Management Policy is in place but needs to be reviewed to better align with the

Department’s Asset Management Framework and Guidelines and to include a policy regarding

disposal of assets. Once that is done we can prepare an Asset Management Strategy to give effect

to the Policy.

Monitoring of ratios is continually undertaken by staff with guidance from Council’s auditors.

25

Whilst the Shire regularly reviews its expenditure as part of its financial management processes, it is

anticipated that implementation of the Service and Organisational Review (SOR) outcomes will

assist with operating expenditure reduction.

In respect to the Own Source Revenue Coverage Ratio commentary, it is the Shire’s view that the

2013/14 annual financial report appropriately reflects the Shire’s Own Source Revenue Coverage

Ratio for the period under review, as audited by Council’s external auditors.

26

5. Workforce Planning and Human Resource Management

Introduction

Workforce planning can be defined as a continuous process of shaping the workforce to ensure that

it is capable of delivering an organisations objectives now and in the future. Human resource

management provides a framework that aims to have the right people in the right place at the right

time, to facilitate the delivery of organisational goals.



Equal Opportunity Act 1984

Occupational Safety and Health Act 1984

Workforce Planning Toolkit

Summary analysis

An assessment of the Shire’s key workforce planning and human resources areas took place during

the review and the findings are detailed below:


performance

Workforce Plan ✓

Documented policies and procedures *

Employee surveys ✓✓

Performance reviews ✓

Recruitment and selection ✓

Job descriptions *

Employee remuneration ✓

Equal Employment Opportunity ✓

Workforce and organisational structures ✓✓

Staff development ✓✓

Grievance management ✓

Occupational safety and health ✓✓

Secondary employment ✓

Exit of staff ✓


The Shire has been proactive in regularly reviewing its organisational structures and seeks

to continuously improve. Currently, the Shire is undertaking a service and organisational

review to ensure it is in the right shape to deliver on its Plan for the Future. The Shire also

recently reviewed its HR practices to ensure consistency across the organisation.

The Shire has clearly defined reporting roles in place to facilitate both its operational and

strategic objectives.

27

The Shire demonstrates a commitment to staff development and building leadership

capability within its workforce; this has seen several staff members progress in the

organisation and take on roles with advanced responsibilities, undertake academic studies

supported by the Shire; and a team of staff win the 2014 Local Government Managers

Australia (LGMA) Management Challenge for Western Australia, and participate in the

Australasian finals.

There is a strong organisational emphasis on Occupational Safety and Health (OSH).

Detailed OSH information is provided to staff through a staff manual, the Shire’s Safety

Committee meets regularly, and OSH noticeboards and information are displayed in all staff

work areas.

The Shire was recently awarded the inaugural Local Government Insurance Services (LGIS)

Excellence Award, recognising its leadership and efforts in regards to risk management and

safety.

General full-staff meetings, senior management team, and executive management team

meetings are held on a regular, scheduled basis each month. During the onsite review,

Department staff attended a general staff meeting and observed that the meetings were

informative and well run, with staff being updated on outcomes from the latest Council

meeting, managers providing updates on projects and staff sharing information about their

roles.

The following areas were identified for further development as an outcome of the assessment

process:

The Shire provides some HR-related information to staff in its staff manual but it does not

have a complete set of HR policies. Recently, the Shire has drafted some HR policies for

inclusion in a policy/procedure manual and is encouraged to continue developing these, and

the subsequent manual.

Although the Shire does not have a formal policy regarding the recruitment and selection of

staff, it is evident the Shire follows a clear and sound process in relation to recruitment. To

enhance this process, the documenting of recruitment and selection procedures should be

considered by the Shire.

Some staff positions do not have job descriptions. The Shire is working to develop job

descriptions for these positions and is encouraged to continue this process.


Workforce and Organisational Structures and Staff Development

In 2012, the Shire undertook an organisational review and restructure that redefined operational

lines and responsibilities, allowing directors to focus on more strategic issues and managers on

operational matters. The Shire noted that these changes allowed the CEO to ‘step out’ more and

focus on innovation, whilst better providing strategic leadership to the organisation. Since this time,

the Shire has continued to proactively undertake organisational change processes and is currently

in the process of centralising its human resources functions (HR), creating a new position under the

office of the CEO to deal with HR issues (namely the Coordinator Organisational Performance). The

Shire indicated it hoped this change would lead to increased consistency in HR practices.

The Shire has also engaged a consultant to assist in undertaking a service and organisational

review. The review aims to ensure the Shire is fit for the future and has the right organisational

structures in place to deliver on its Plan for the Future outcomes (i.e. the strategic community and

28

corporate business plans). The Shire indicated that the outcomes of the review will also be used to

inform the next revision of its workforce plan. Further to this, the Shire is undertaking a ‘training

needs analysis’ to determine what training would be beneficial for staff (as a result of performance

review processes), what would add value to the organisation and what training is required as a

result of the Shire’s workforce plan. The Shire’s efforts to continuously improve, regularly review,

and build the capacity of its organisation into the future, is considered good practice and should be

commended.

Occupational Safety and Health

The Shire displays a strong organisational emphasis on OSH. A staff safety committee meets on a

bi-monthly basis and includes representatives from all work areas and management levels. The

meetings have formal agendas and minutes are recorded. The Shire provides detailed OSH

information for staff in its ‘Staff Manual and Safety Handbook’; has OSH “noticeboards” on display in

key work areas including the administration centre staff room/kitchen, the recreation centre and at

the works depot. The noticeboards contain safety committee meeting minutes, the Shire’s OSH

policies and other OSH-related information sheets. In addition, workplace safety is an agenda item

at all full staff meetings, senior management team and executive management team meetings.

The Shire advised it is currently reviewing its OSH procedures, working with a representative from

LGIS. This includes implementing a new reporting system in Microsoft Access, development of a

risk matrix and other procedures. A new hazard and incident report form has also been developed.

The Shire was recently awarded (in August 2015) the inaugural LGIS Award for Excellence,

recognising its leadership and success in regards to risk management and safety.


Human Resource Policies and Procedures

Currently, the Shire’s ‘Staff Manual and Safety Handbook’ contains comprehensive information on a

number of HR matters, including hours of work, dress standards, timesheets, the taking of leave

entitlements, performance management, training and development and use of Shire equipment.

At the time of the review, the Shire indicated it was in the process of developing a HR

policy/procedure manual, and that once developed, it would be made available to all staff on the

intranet. A number of HR policies and procedures have recently been drafted for inclusion in the

policy manual, in addition to those which the Shire already has in place. These include a new

Disciplinary Policy, Discrimination, Harassment and Bullying Policy, Drug and Alcohol Policy, and

Grievance, Investigations and Resolution Policy. The Shire should continue the process of

developing its HR manual, and where appropriate, ensure all current HR practices are documented

(e.g. those which apply for recruitment and selection) and included.

Job descriptions

Although all “recent” positions have job descriptions, the Shire indicated that there are some older

positions in the organisation where job descriptions do not exist. During the review, the Shire noted

that the service and organisational review will see all positions have job descriptions and that once

in place, they will be reviewed annually as part of the Shire’s professional development plan

process. In line with this, the Shire is encouraged to continue working on developing job

descriptions for all positions going forward.



29

The Shire of Irwin is currently considering all aspects of Workforce and Human Resource planning

within the current Service and Organisational Review (SOR).

An important and valuable stage of the SOR was for the Shire’s external consultants to conduct

one-on-one confidential interviews with all elected members and Shire employees that formed the

basis for any recommendations and actions presented to Executives for consideration and

implementation. The BPR report has given a ‘satisfactory practice’ response in regards to employee

surveys but the Shire suggests this could be reviewed based on the information now provided.

In parallel to this the Shire has a qualified human resources practitioner. This initiative has also seen

an initial suite of Shire of Irwin HR Policies and Procedures adopted at an executive management

meeting on 16 September 2015. Since adoption these policies have been implemented and

communicated to staff.

BPR Team Note: As indicated in the Shire’s response above, the Service and Organisational

Review carried out has included one-on-one confidential interviews with all Shire employees. The

information obtained informed subsequent recommendations for consideration and implementation.

In view of this, the ‘satisfactory practice’ assessment has been upgraded to ‘better practice’.

30

6. Community and Consultation

Introduction

Delivering services to the community is one of the fundamental roles of local government. Effective

community engagement leads to local governments gaining a better understanding of community

needs and expectations and assists in the delivery of services. Community consultation and

engagement ensures local governments are in the best position to develop policies and procedures

that will best serve the local community now and into the future.


Disability Services Act 1993

International Association for Public Participation (IAP2) spectrum

Summary analysis

The Shire’s level of engagement with the local community was considered during the review in

respect to the following areas and the findings are summarised below:


performance

Disability access and inclusion ✓✓

Ageing population ✓✓

Community engagement ✓✓

Cultural planning ✓

Multicultural interests ✓

Tourism ✓✓

Economic development *

Voter turnout ✓


The Shire displays a commitment to achieving disability access and inclusion, with its

activities recognised by both the Disability Services Commission and WALGA as

demonstrating innovation and good practice.

Through a joint-venture arrangement with the Department of Housing, the Shire runs the

Port Denison Retirement Village, providing housing for the local ageing population, in

alignment with the Shire’s Strategic Community Plan 2012-2022.

Community engagement is a fundamental aspect of the Shire’s organisational culture and is

supported by a comprehensive community engagement policy.

The Shire takes a proactive approach to developing the local tourism industry through the

Tourism Development Plan 2013-2018 and operating the Dongara-Port Denison Visitor

Centre. In recognition of its efforts in tourism, the Shire was recently awarded the silver

Local Government Tourism Award at the 2014 WA Tourism Awards, and the 2014 GWN7

Top Tourism Award for Community Relations.

To better understand the local tourist market, the Shire collects comprehensive raw data

from tourists at the recreational vehicles (RV) dump point and visitor centre. Data collected

includes dollar spend by tourists at local businesses, tourists’ place of residence and travel

31

patterns. This provides a valuable source of information to assist the Shire (and region) in

developing and targeting tourist programs.

The Shire uses social media, specifically the Shire of Irwin and 'Irwin Rec Centre' Facebook

pages, to engage, interact with, and stay connected to the community. The pages contain

useful community information and are regularly updated; they are also supported by an

online communication policy. For a Shire the size of Irwin, the use of social media displays a

forward-thinking and innovative approach to community engagement and networking.

The Shire’s Community Development Plan 2014-2017 provides strategic direction for the

delivery of community facilities, services and programs. It is closely aligned to the Strategic

Community Plan (as an issue-specific informing strategy), demonstrating the Shire’s

strengths in undertaking integrated planning.

The following area was identified for further development:

To continue achieving its integrated planning outcomes, the Shire should develop and

implement an economic development plan.


Community engagement

The review found that the Shire places a strong emphasis on effective and meaningful engagement

with its community. In alignment with the Basic Standard as outlined in the Department’s Advisory

Standard the Shire’s Community Engagement and Public Consultation Policy is a complete and

well-considered policy, providing a clear statement to the community about how they can expect to

be involved in the decision making process. The policy is based on the International Association for

Public Participation (IAP2) spectrum - a recognised standard for good practice when conducting

community engagement.

In line with this policy, the Shire employs a number of methods for consulting, engaging and

communicating with the community, including meet the CEO sessions, workshops and forums; the

Brilliant Blend e-newsletter; weekly newspaper items in the Dongara Denison Local Rag;

participating in the Catalyse local government Community Perceptions Survey; the Shire’s website

and Facebook page, and an electronic community information sign. Demonstrating a collaborative

approach to working with the community, the Shire has developed a policy which allows community

groups to use the information sign, Facebook page and website event calendar to promote events.

Collaborative exercises such as these can build community relationships and potentially increase

community participation levels.

Additionally, the Shire seeks to build an engaged and inclusive community and increase community

participation by actively consulting, and working closely with, social justice target groups such as

youth; through the Irwin Youth Advisory Committee, and Aboriginal Australians; via the recently

adopted Reconciliation Action Plan (June 2014).

Ageing population – Port Denison Retirement Village

Port Denison Retirement Village (the village) is a joint venture arrangement between the Shire of

Irwin and the State Government Department of Housing providing 39 retirement units for people on

low incomes. The ongoing management of the village is provided by the Shire and includes

collection of rent, property maintenance, tenancy management and provision of utilities. This is

supported by a Rental Housing Procedures manual incorporating a number of policies and

procedures developed by the Shire for administering and managing the village.

32

The operation of the village and the provision of housing for an ageing population are aligned with

the Shire’s Strategic Community Plan, outcome 3.3 – “Increased availability of aged care facilities”;

and specifically in relation to the village, strategy 3.3.1 – “Continue to develop and manage aged

persons units, in partnership with DoH”. The provision of appropriate accommodation options for

seniors is also an objective in the Shire’s Community Development Plan.

Disability access and inclusion

The Shire’s Access and Inclusion Plan 2012-2017 (AIP) was amended in February 2015 in line with

changes to the Disability Services Act 1993 to include information on improving employment

opportunities for people with a disability.

The Shire’s activities in regards to the AIP have been recognised in the Disability Services

Commission’s ‘Disability Access and Inclusion Plan Progress Report’ as examples of good practice;

specifically, the introduction of a customer service charter that “references access needs for all

people” and a customer service module for staff on “how to receive and record customer requests in

relation to access queries”. Further recognising the Shire’s efforts to create an accessible and

inclusive community, the Shire was awarded the 2014 Local Government Road Safety Award for its

Walkability Audit, which was carried out to consider access needs in the community, and assisted in

the development of the AIP.

A proactive and innovative approach to access and inclusion by the Shire is considered good

practice and is especially important given the ageing population of the area.

Tourism

As a major contributor to the local economy, fostering and developing the tourism industry is an

important strategic focus for the Shire. The Shire’s Tourism Development Plan 2013-2018 was

developed as an outcome of its Strategic Community Plan; achieving Outcome 1.3 “Increased and

diverse tourism opportunities”, Action 1.3.1 “Develop and implement a Tourism Development

Strategy”.

The tourism plan is a well-written and comprehensive document containing five key strategies which

aim to grow and support the local tourism sector. Each strategy in the plan is supported by an action

plan identifying resourcing/budget requirements, measures of success and relevant stakeholders. In

addition to alignment with the Strategic Community Plan, the tourism plan demonstrates integration

with other significant Shire documents including the Corporate Business Plan 2013-2017, Long-

Term Financial Plan and Local Planning Strategy.

The Shire operates the Dongara-Port Denison Visitor Centre, publishes the Dongara-Port Denison

tourist brochure and other destination marketing materials, such as the Dongara-Port Denison

website (www.dongaraportdenison.com.au). In addition, the Shire strategically collaborates with

other local governments, local businesses and industry groups via ‘Australia’s Coral Coast’.

Participating in cooperative marketing activities such as this achieves regional, and local, tourism

outcomes; and supports the building of positive regional relationships.


Economic Development

Through the Shire’s strategic planning process, economic development was identified as a key

focus area, with the development and implementation of an economic development plan an action

of the Shire’s Plan for the Future documents (under outcomes 1.4, 1.5 and 1.8). The Shire’s

Corporate Business Plan states that an economic development plan would be developed in the

http://www.dongaraportdenison.com.au/

33

2013/14 financial year. During the review, the Shire advised it is currently drafting a plan, in

partnership with the Mid-West Development Commission and other relevant stakeholders. The

Shire should continue to progress this in order to achieve its strategic objectives.



In respect to the development and implementation of an economic development plan, it was

considered appropriate to defer this initiative pending the completion of the Mid West Development

Commission’s Regional Blueprint project.

As this document has recently been launched, it is now appropriate for the Shire to undertake this

task and, in readiness, Council allocated funding in its 2015/16 Budget to provide key economic and

demographic data and will be establishing an Economic Development Advisory Committee to

facilitate the development and adoption of an Economic Development Plan for the Shire.

34

PART V - ACTION PLAN

The below action plan presents an opportunity for positive improvement and change by identifying areas of further development for the Shire. It

is understood that areas highlighted as further development are mostly underway, or in the process of being implemented. The Shire should

continue to progress these areas where already commenced, and look to address any additional areas in an appropriate timeframe.


Recommendation/Action Timeframe Responsibility Progress Report

Governance

Code of Conduct

1. Update the Code of Conduct to include information on non-compliance with the Code.

End of 2015 Coordinator Executive Services

A draft Code of Conduct is being developed and will be reviewed by Senior Management Team before presenting to Council for adoption.

2. Ensure all new and existing employees and elected members sign a declaration stating that they have read and understood the updated Code.


The new Code will be provided to all employees and staff who will be required to acknowledge that it has been read and understood.

Delegations Register 3. Finalise review of delegation register in line with the

powers and duties as outlined in the Local Government Act 1995 (and with associated regulations).

Completed Coordinator Executive Services

The reviewed Delegations Register was adopted 23 June 2015 which incorporated changes to procedures.

35

4. Adopt a system for delegations from the CEO to employees.


Procedure for delegations to be formalised and adopted.

Risk Management 5. Finalise development of a risk management plan in line

with the Shire’s risk management framework. Completed

Coordinator Organisational Performance

Risk Management Framework and Risk Profile linked to form Risk Management Plan.

Business continuity 6. Finalise development of a business continuity plan to

complement any risk management documentation. End of 2016

Manager Corporate Services

Work has commenced in the development of a business continuity plan.

Communication devices policy

7. Finalise development of a policy regarding the use of communication devices.

Completed



Policy has been created, as part of the HR policies and procedures – Information & Communications Technology (ICT) Use Policy.

Business ethics 8. Consider developing a business ethics statement for

external contractors. April 2016

Coordinator Executive Services

Will be developed as part of planned procurement consultancy work.

ICT Framework 9. Develop the Shire’s ICT Framework in line with the

guidelines on the Department’s Integrated Planning and Reporting website.

To be completed by 30 June 2016


Work has commenced in the development of an ICT Strategic Plan in line with the guidelines from DLGC.

36

Elected Member and staff interactions

10. Finalise the preparation of policies to guide: a. Interactions between the Shire president and

CEO b. Interactions between Elected Members and

staff c. Access to information by elected members.


Policy to be developed in regards to Elected Member and staff interactions.

Local government meetings

11. Update the Standing Orders Local Law 2000. To be completed by 30 June 2016


Review of local law has commenced, anticipated that a new Law will be developed and adopted before end of financial year.

12. Consider adopting a set of standard procedures for public question time and make a copy of the procedures available to people wishing to ask questions at Council meetings.


Currently being developed.

Planning and Regulatory

Local Laws 13. Review (and update or repeal, where required) local

laws in line with the requirements of the Local Government Act 1995.



Statutory review of local laws has commenced. It is anticipated that any new Local Laws will be developed and adopted before end of financial year.

37

Heritage Register 14. Update and review the heritage register (Municipal

Inventory) in line with the Heritage of WA Act 1990.


Manager Planning Services

The review of the heritage register is underway. To allow sufficient consultation with stakeholders the review will be completed before the end of this financial year.

Plan for the Future

Strategic Community Plan desktop review

15. Commence the two-yearly desktop review of the Strategic Community Plan.



A Service and Organisational Review is currently underway.

Strategic Community Plan desktop review

16. Consider including the desired trend of KPIs (i.e. increase of decrease) when undertaking the desktop review of the Strategic Community Plan.




17. Consider incorporating the KPIs being developed as part of the organisational review, where applicable, into the Strategic Community Plan.




18. Document the relative resourcing position of the Shire as identified in the now completed asset management, workforce and long term financial plans, and what this means for progressing the Strategic Community Plan priorities; in the revised plan.




Corporate Business Plan annual review

19. Ensure the annual review of the Corporate Business Plan results in an evolving and rolling four yearly plan, with the current year as the base year, resulting in a plan for the upcoming four-year period i.e. a 2014-2018 plan and a 2015-2019 plan.




38

Assets and Finance

Long Term Financial Plan

20. Consider annual reviews of the Long Term Financial Plan projections to ensure data remain current and up-to-date.



A new AMP has been developed (requires adoption), development of a rolling plan will include the new AMP.

Operating Surplus Ratio

21. Monitor the Operating Surplus Ratio to avoid any long-term trends of decline.

Ongoing Manager Corporate Services

Monitoring of the ratio is being completed with guidance from Council’s auditors, also changes from the SOR may assist with operating expenditure reduction.

Asset Management

22. Develop an asset management strategy to support the Shire’s asset management plans and Asset Management Policy in line with the Department’s Asset Management Framework and Guidelines.

2016 Asset Management Team (AMT)

The AMT is working with a consultant to develop and finalise the AM strategy, review the existing AM Policy and establish a new AM framework to guide the Shire’s Asset Management.

23. Work towards improving the reliability and confidence levels of data in the Property Infrastructure Asset Management Plan.

Ongoing Asset Management Team

Some members of the AMT and relevant staff have undergone training to undertake condition rating assessments of property assets.

39

24. Continue to implement actions identified in the Asset Management Improvement Plan as part of the NAMAF project.

Ongoing Asset Management Team

The AMT has continued to implement the actions outlined as part of the NAMAF project.

The Executive Management Team is investigating ways to improve the Shire’s Asset Management function and a Business Case has been prepared.

25. Update projections in both asset management plans (as well as the Long Term Financial Plan) once the transition to fair value for assets is complete.



A new Asset Management Plan has been developed and requires adoption.

Workforce Planning and Human Resource Management

Human Resource policies and procedures

26. Finalise the development of the human resources policy/procedures manual.

Ongoing Coordinator Organisational Performance

Initial suite of HR policies adopted 16 September 2015.

27. Consider documenting the Shire’s recruitment procedures, and once complete, include in the human resources policy manual.

Completed September 2015


Recruitment and selection policy included as part of initial suite of HR policies adopted September 2015

40

Job Descriptions 28. Continue to develop job descriptions for all positions

that do not currently have them. Ongoing


Any outstanding PD’s will be finalised as part of the 2015 Performance Development Plan and/or Service and Organisational Review processes.

Community and Consultation

Economic Development

29. As outlined in the Corporate Business Plan, introduce an economic development plan for the Shire.



Economic and Demographic data research tools funded 2015/16.

Better Practice Review - Shire of Irwin€¦ · · 2016-11-04The Local Government Better Practice...

Documents

Transcript of Better Practice Review - Shire of Irwin€¦ · · 2016-11-04The Local Government Better Practice...