CITY OF STIRLING

MINUTES

POLICY, CORPORATE PLANNING, BUDGET AND FINANCE COMMITTEE MEETING
27 AUGUST 2002

ITEM SUBJECT / LOCATION / NAME PAGE

Nil.

* - Indicates Separate Attachments submitted with Agenda.

# - Item requiring special Council attention.

@ - Indicates Councillor Interest.

MINUTES OF THE POLICY, CORPORATE PLANNING, BUDGET AND FINANCE COMMITTEE HELD IN THE PARMELIA ROOM, CIVIC PLACE, STIRLING ON TUESDAY 27 AUGUST 2002

Present:

Chairman

Councillor D Boothman

 

Mayor

Councillor D C Vallelonga JP

 

Members

Councillors T W Clarey, B R Ham, S Popovski and T J Tyzack

 

Observers

Councillors J M Camilleri OAM JP (Deputy for Councillor R M Willox), T E Pickard, P L Rose JP and A A Spagnolo JP

 

Staff

Chief Executive Officer - L Delahaunty, Deputy Chief Executive Officer - R A Constantine, Executive Manager Corporate & Customer Services - C Watts, Executive Manager Planning and Development - S Johnson, Executive Manager Community Development - T Holland, Executive Manager Works - R Moody, Manager Human Resources - J Park, Manager Information Technology - G Jamison, Manager Community Safety - L Crouch, Manager Client Services - D Simmons, Communications Manager - P Beard (from 8.01pm) and Corporate Support Officer - N Robinson

 

Public

Nil.

 

Press

Nil.

DECLARATION OF OPENING OF MEETING

Moved Councillor Vallelonga, seconded Councillor Ham

The motion was put and declared CARRIED.

The meeting was re-convened at 7.45pm.

APOLOGIES

Councillor R M Willox.

MINUTES

Moved Councillor Vallelonga, seconded Councillor Ham

The motion was put and declared CARRIED.

ITEMS BEHIND CLOSED DOORS

Nil.

DISCLOSURE OF INTERESTS

Nil.

Moved Councillor Popovski, seconded Councillor Ham that

That the presentation by Mr S Walsh of Pretzel Logic concerning the City's third generation website precede Committee consideration of agenda business.

The motion was put and declared CARRIED.

At 7.58pm the Executive Manager Works and Executive Manager Corporate and Customer Services left the meeting.

At 7.59pm the Executive Manager Planning and Development left the meeting and returned at 8.02pm.

At 8.01pm the Communications Manager arrived at the meeting.

At 8.02pm the Executive Manager Corporate and Customer Services returned to the meeting.

At 8.05pm the Manager Information Technology left the meeting and returned at 8.07pm.

HUMAN RESOURCES

At 8.12pm Councillor Pickard left the meeting during consideration of Item HR1 and returned at 8.14pm.

At 8.12pm the Communications Manager left the meeting during consideration of Item HR1.

HR1 ESTABLISHMENT OF AN APPROVALS UNIT AND AN INSPECTIONS-COMPLIANCE UNIT

REPORT Executive Manager Planning and Development - 20 August 2002

Moved Councillor Vallelonga, seconded Councillor Ham that

RECOMMENDATIONS TO COMMITTEE

1. Divisional

1.1 That the Planning and Development Division be RESTRUCTURED into the following business units / sub-units:

· Approvals and Planning
Sub-units: Approvals
Strategic and Projects

· Inspections / Compliance
Sub-units: Health
Building / Planning

· City Building Operations

1.2 That the precise staff structure of the Division's Business Units as discussed in this report, be DETERMINED by the CEO, the Executive Manager Planning and Development, Functional Managers and the Manager Human Resources with assistance from the Internal Auditor, and appointments made accordingly.

1.3 That existing business unit plans be MODIFIED to reflect the revised structure.

1.4 That the planning counter area in the foyer of the main administration building be MANNED by Building, Health and Planning staff, to provide a `one stop shop' development services to customers.

1.5 That position descriptions be DEVELOPED or AMENDED in respect of `new' positions.

1.6 That the new structure be PHASED in upon relocation of the Building Department to the Main Administration Building, currently planned to be Monday 4 November 2002.

1.7 That any staff requirements which are beyond current budget allocations be REPORTED to Council for consideration.

1.8 That service agreements be ORGANISED between the various sub-units and other Departments/Units providing input.

2. Approvals and Planning Unit - Approvals Sub-unit

2.1 That, should the positions eventuate, the Planning Co-ordinator and Building Co-ordinator be AUTHORISED, by delegation, to approve Applications to Commence Development and Building Licences respectively.

2.2 That the Executive Manager Planning and Development and the Unit Manager, in conjunction with Approval sub-unit members, DEVELOP appropriate procedures and forms for the operation of the sub-unit to ensure efficiencies and effective customer service.

2.3 That the sub-unit members be REQUESTED to suggest a name, such as "Sterling Approvals", for the sub-unit, and possibly a distinctive uniform.

2.4 That customer service training be ORGANISED for sub-unit members.

3. Approvals and Planning Unit - Strategic and Project Sub-unit

That the staff resources of this sub-unit be REVIEWED by the CEO, Executive Manager Planning and Development, Unit Manager and Manager Human Resources, with assistance from the Internal Auditor.

4. Inspection / Compliance Unit - Building / Planning Sub-Unit

4.1 That the Executive Manager Planning and Development and the Unit Manager, in conjunction with sub-unit members, DEVELOP appropriate procedures and forms for the operation of the sub-unit to ensure efficiencies and compliance with regulations.

4.2 That ARRANGEMENTS be made with the Manager Engineering Operations, to his satisfaction, to transfer one half time position to the sub-unit.

4.3 That the Executive Manager Planning and Development and the Unit Manager INVESTIGATE the need for training.

4.4 That with respect to the inspection of new buildings, the sub-unit works towards undertaking those inspections listed as `acceptable standards' in paragraph 3.4 of the Executive Manager Planning and Development's report dated 20 August 2002 in order to ensure and facilitate compliance, reduce exposure to possible liability claims and increase revenue from interim rating.

4.5 That the Unit Manager, in conjunction with the Principal Environmental Health Officer, INVESTIGATE and REPORT on the possibilities and benefits of accepting certification in respect of such matters as termite treatment, rat baiting (demolitions), ventilation, air handling systems and cooling towers.

REPORT PURPOSE

To suggest changes from the current planning and building approvals systems and inspection arrangements by the establishment of separate approvals and inspection/compliance units.

RELEVANT DOCUMENTS

Attached: Proposed Divisional Structure PF_2002_0827_AT_HR1.pdf
Available for the viewing at the meeting: The following items on this agenda relate directly to this report: -

HR2 - Development Control - Approval Times
HR3 - Planning Research and Projects Section Activities
HR4 - Building Control - Customer Service Levels
HR5 - Private Swimming Pool Inspection Programme
HR6 - Development of Business Sub-units - Environmental Health

REPORT

1. APPROVALS UNIT

1.1 Background

The Executive Manager Planning and Development's previous report, dated 28 June 2000 discussed the work of the Development Assessment Forum, established in accordance with the Prime Minister's wishes, in the areas of "Leading Practice Elements of Development Assessment Systems", "Elements of the Assessment Process" and the application of "Leading Practice Principles in Development Assessment Systems".

The report identified a number of reasons why change from the present systems/processes (approvals and inspections) would be beneficial for the City's ratepayers, residents and staff, viz:-

· The requirement to monitor competitiveness with other local authorities and other agencies. It appears that the processing of Building Licences could be "de-regulated" and planning approvals could follow at a later date. It is important to have a competitive edge by having an efficient, effective and responsive system.

· The current system lacks adaptability to cope with development booms. It has been found that the employment of appropriately qualified temporary staff at these times has become difficult, resulting in lengthy approval times, customer dissatisfaction and staff under considerable stress.

· There is a need to undertake additional inspections of buildings under construction. For instance, a final inspection is most important as this has benefits for the City in interim rates.

· There is room at present for different interpretations of regulations and policies between departments. A changed system would reduce this to a minimum, thus ensuring a high quality and consistency of information and approvals in the best interests of the community.

· The current system is not wholly in accordance with Australian best practice.

· At the grass roots level, customer service can be improved. As a small example, a busy officer, on receiving an enquiry about an application, can quite rightly say that the matter has now been referred to the "other" department, therefore requiring a transfer of the call and "double handling". This sort of issue can be minimised and a "whole of development" approach can be developed.

1.2 CURRENT STATUS

1.2.1 Re-location

An investigation has been undertaken regarding the possibility of physically locating the Approvals Unit within the existing planning department. This involved a two stage approach requiring in the first instance, the relocation of the Strategic Planning Section to vacant work stations on the first floor and secondly relocating significant volumes of the file storage from within the planning department.

Unfortunately, the option to relocate the Strategic Planning Section is no longer available. Further, investigations relating to the location of the Approvals Unit indicated that in order to physically accommodate the number of staff required, more space efficient workstations/furniture would have to be provided at an estimated cost of $183,590.00 As an interim measure, pending construction of the new civic building, this could not be justified. Consequently, it has been agreed that the Building Department will be accommodated within the staff canteen area.

Notwithstanding this, there is an opportunity to establish approval teams comprising a mix of building and planning officers within each of the planning department and canteen locations. While it is acknowledged that this may present some procedural difficulties, it will be beneficial in identifying early, any issues and procedures that may need to be addressed as a result of the restructure, before occupying the new building.

The issue of file and information storage is critical for both the planning and building departments as both are required to have frequent and ready access to the records. Further, in the case of the planning department, the storage of records consumes significant floorspace to the detriment of the physical working environment.

Accordingly, further investigations into the rationalisation of record storage are being undertaken by the Records Management Administrator, Paul Prior, with a view to creating more acceptable workspaces within the Planning Department conducive to workable team environments.

It is understood that there are considerable records stored in the basement of the main administration building. It would be opportune, prior to demolition of the old building and during construction of storage requirements arising from this, to consider rationalisation of this basement storage. Mr Prior has this in hand.

In this respect it is suggested that perhaps some planning and building records, prior to an agreed nominated file reference, be stored off site (with some mutually acceptable service agreement for adequate access and recall of these records) and the more recent files be stored in the basement where they are more readily accessible with only those records that are not more than two years old being stored within the planning and building areas. Above all, electronic storage of records is being investigated.

1.2.2 Procedural Improvements

In order to establish whether improvements can be made to the operations of the unit and as part of the restructuring, aimed at creating an "Approvals" unit, Kym Zagwocki, a senior officer employed on a part time basis, has been seconded to the Unit to evaluate and document procedures. In addition, the Internal Auditor will be assisting with this process.

At this stage efforts are principally focused on the planning area, but it is anticipated that ongoing review and refinement of unit procedures will be necessary during the course of the restructure. It is hoped that through the evaluation and review of agreed procedures productivity will be improved, duplication removed and efficiencies of scale realised.

To date the following actions have been identified/undertaken:-

· An electronic schedule/register for District Planning Scheme amendments and subdivisions has been developed, including mechanisms for measuring Key Performance Indicators;

· The format of the Development Review Group has been reviewed with particular attention to attendance, format and quality of decisions being made;

· A regular forum is to be established to discuss issues relevant to the operations and functions of development control, e.g. training, dissemination of planning information, organisational issues etc;

· A fast track system for simple applications operated by nominated officer(s), has been established;

· Multi-skilling and joint ownership of processes is to occur with each officer processing a range of application types i.e. development, amendment and subdivision/strata;

· A review of delegations is being undertaken with a view to identifying mechanisms to reduce the number of reports required to be forwarded to Council e.g. extend the range of delegations, identify policies that may need to be reviewed etc;

· It has been observed that the planing officers currently perform a volume of administrative duties that form part of the approvals process and which are very time consuming. The introduction of another administration officer as part of the approvals unit would be of great benefit in enabling technical officers to deal with applications.

· A Procedures Manual outlining operating procedures is to be prepared;

· A team strategy for managing workloads is being developed;

· Roles and responsibilities will be reviewed and Position Description Forms modified, where necessary, to meet the objectives of the restructure.

2. INSPECTIONS/COMPLIANCE UNIT

2.1 BACKGROUND

2.1.1 A previous review of inspections undertaken by the Manager Corporate Audit (November 1999) identified the following site inspections:-

2.1.1.1 Planning Site Inspections - the planning officer who initially approved the plans, undertakes a site inspection on completion of the building works. The officer will see if all the conditions have been met before signing off and/or issuing the strata title. At least 90% of the planning conditions are standard conditions and cover such things as car parking and landscaping. (If follow up inspections are required, these are undertaken by the Zoning Inspector).

2.1.1.2 Health Site Inspections - the pest control officer undertakes a site inspection prior to demolition of a building. This officer ensures that proper rat baiting has taken place. These inspections are not required if the owner provides Stirling with a certificate from a pest control firm.

2.1.1.3 Engineering Site Inspections - the field officer makes a site inspection prior to a building/demolition work commencing to establish the condition of the footpath, crossover and kerb. A similar inspection is made upon completion of the building/demolition activity to determine if any damage has occurred to the footpath or verges since the initial visit.

2.1.1.4 Building Site Inspections - an officer would make a site inspection after the demolition/building activity was completed to determine how much of the Footpath Security Deposit should be returned to the claimant. These determinations have ceased and are now covered in the above Engineering site inspections.

The Manager Corporate Audit recommended, inter alia, that all these inspections should be carried out by specialist officers belonging to an "inspectorate section" responsible to the Executive Manager Planning and Development.

2.1.2 In addition to the above, the following inspections are undertaken by the Planning and Development Division:-

2.1.2.1 Health

New Buildings Scheduled Premises & Offensive Trades
Alterations/Additions to Buildings Hairdressers / Skin Penetration
Existing Residential (Maint) Infections Disease Investigations
Public Buildings Complaint Investigation

Public Pools Noise Complaints
Caravan Parks Food Premises (Routine)
Industrial/Commercial Buildings Environmental Complaints
Stormwater Disposal/Drainage Investigations (Dust/Odours)
Pest Control Matters Strata Titles
Food sampling Microwave Oven Testing
Food Complaint Investigations On-site Effluent Disposal System (New
Licences Premises Installations)
Environmental Assessment Decommissioning Septic Systems
Lodging Houses and Temporary Outdoor Eating Areas
Accommodation.

2.1.2.2 Building

Pre-approvals Residential Buildings (during construction)
Strata Title Applications (existing Demolitions
buildings) Sign Control
Complaints Retaining Walls
Fence Disputes Swimming Pools

2.1.2.3 Planning

Zoning Breaches and Complaints Pre-approvals
Generally Fence Disputes
Subdivisions, Applications and Rezoning Applications
Clearances Projects
Surveys (land use etc) especially Commercial Vehicles in Residential
for DPS Amendments Zones
Street Numbering

2.1.3 There will be an increasing requirement to control, including inspection, builders' sheds on verges, given smaller lot sizes.

2.1.4 The Manager Corporate Audit estimated the cost of inspections at $241,500 pa. Given the above additions, the cost would increase considerably.

3. FUTURE ARRANGEMENTS

3.1 The Manager Corporate Audit's recommendation to establish an inspectorate section is generally supported.

3.2 Many inspections undertaken by the Health Department are sufficiently specialised and discrete to warrant a continuation of the present procedures, within the framework of the Enforcement/Compliance Unit described below.

Health inspections in respect of new buildings and alterations/additions to buildings can be transferred to the building/planning sector of the proposed unit. It must be noted that the involvement of health surveyors is required in respect of these inspections in some cases, mainly where the building involves any of the following:-

· Food premises
· Public buildings
· Public pools
· Buildings associated with trades that have some particular environmental consequence, e.g. offensive trades, scheduled premises
· Effluent and other waste waters.

3.3 It may be possible to reduce the number of inspections (from the proposed increased level) by requiring certification in respect of matters such as pest control (re: demolitions), ventilation, air handling systems and cooling towers. This needs to be investigated further by the Principal Building Surveyor and the Principal Environmental Health Officer.

3.4 With respect to the inspection of new buildings, the following table illustrates best practice, compared with current City of Stirling practice and "acceptable standards".

BEST PRACTICE

ACCEPTABLE STANDARDS

COS CURRENT

Site inspection pre-approval

Essential

YES

Siteworks

Recommended

NO

Retaining Walls

Highly recommended

NO

Footings

Highly recommended

NO

Slab

Recommended

NO

Termite Control

Recommended

NO

Brickwork

Not essential

NO

Roof Frame

Recommended

NO

Completion

Highly recommended

NO

Footpath

Highly recommended

NO

Complaints

Essential

YES

Classification Certificates

Essential

50% YES

Strata

Essential

YES

Swimming Pool

Mandatory

YES

3.5 It is important that we attempt to adhere to the "Acceptable Standards" as far as possible, for a number of reasons, including:-

3.5.1 Footings and/or slab inspections can verify compliance with approved finished floor levels at the appropriate stage, i.e. when remedial action can be taken.

3.5.2 Various inspections and retaining walls in particular, could reduce the City's exposure to future liability arguments.

3.5.3 Footpath inspections (and deposits) are necessary to safeguard the quality of the footpath network, which has an asset value of approximately $24M, and to lessen public liability risks.

3.5.4 In May 2000, the Manager Corporate Audit undertook an assessment of Interim Rating Revenue which may have been forgone as a result of not carrying out building completion inspections. The results were "unexpected", with the data indicating the opposite of what common sense would tell us. The Manager Corporate Audit felt that the data supplied to him lacked integrity. His conclusion was:-

"It would be logical that not collecting completion dates will deprive Stirling of Interim Rating Revenue and of full rating revenue in subsequent rating years."

The Manager Accounting Services advises:-

"It is difficult to assess the value of rates which may be forgone when the Valuer General is not made aware of improvements to properties. These oversights have a financial effect, not only in the year in which the omission takes place, but extending into the future. This effect continues until the situation is discovered (if it ever is). The potential loss in revenue is, therefore, significant."

The Principal Building Surveyor shares this view.

3.6 The current system of inspecting private swimming pools should be retained. (See Item HR5)

3.7 Planning inspections of completed developments are currently undertaken by the approving officer. The purpose of this is to give the officer a sense of `ownership', that is, seeing a development through from start to finish. This function could be taken over by the inspections unit, on the basis that approving officers from the approvals unit (planners and builders) are given the opportunity of viewing some developments which they approved, once, say, every three months.

4. THE PROPOSED STRUCTURE

4.1 DIVISIONAL STRUCTURE

It is proposed that the Division will be re-organised from four to three business units i.e. from:-

Planning Services
Building Services
Health Services and
City Building Operations

to:-

Approvals and Planning
Sub-units: Approvals
Strategic and Projects

Inspections / Compliance
Sub-units: Health
Building / Planning

City Building Operations.

4.2 APPROVALS AND PLANNING

It is proposed that the Approvals (Sub) Unit together with the Strategic and Projects (Sub) Unit will form the Approvals and Planning Unit, under a Manager. Given the strong co-relation between policy formulation, project implementation and statutory regulation, the maintenance of a strong relationship between Strategic and Projects and Approvals is crucial. The management of both these areas within the one business unit will ensure cohesiveness and that the necessary exchange/transfer of information is maintained.

The Development Assessment Forum acknowledges the following in respect of the relationships between Development Control and Strategic Planning:-

· That development controls are a significant implementation means for achieving planning objectives, as expressed in, for instance, District Planning Scheme No. 2, MRS, Metroplan and Council Policies. As such they must be developed within the context of the strategic planning process.

· That both the linkages and distinctions between strategic plans and development controls should be clear.

· That development controls should be clear, easily understood and contain only relevant information.

· That where development controls are prepared on a place/precincts basis grouped within relevant catchment areas, the statements of desired outcomes should be taken from strategic plan objectives for the areas/catchment.

4.2.1 Approvals (Sub) Unit

It is suggested that a Planning Co-ordinator and a Building Co-ordinator, responsible for the day to day operations of the sub-unit including the signing and issue of planning approvals and building licences be introduced. Whilst requiring a review of current delegations, this would allow the Manager to focus on the management of the unit.

Currently, there are two Senior Planning Officers and two Senior Building Surveyors dealing with statutory processes. Under the new proposed structure there would only be one senior officer in each of these areas. The balance of the building and planning establishment would remain consistent with the exception of the possible inclusion of an additional planning officer.
Items HR2 and HR4 on this agenda prepared in response to concerns raised from some elected members regarding turnaround time, indicate that contrary to the belief that the building boom was waning, there has in fact been an increase in the number of development and building applications received over the past twelve months. This combined with the often complex assessments associated with density development has resulted in increased turnaround times and unrealistic pressure on staff.

It should also be noted that historically, professional staff did not man the public counters and could therefore focus on the assessment of proposals. However, it is now expected that professional staff are available at the planning counter and that anybody can walk into the City and demand to see particular officers, at any time, without an appointment and irrespective of whether that particular officer is on counter duty or not. Clearly this fetters the officers' ability to programme their workload and is a luxury that the City may no longer be able to afford.

In this respect it should be noted that the Building counter is operated by clerical personnel who, if need be, call on the professional staff. The Planning counter is however, operated by planning officers. Given the often technical and complex nature of planning enquiries this is unlikely to change.

It should also be noted that over the past ten years, the State Government has increasingly delegated responsibilities to local government. This has resulted in increased workloads including administrative duties.

These administrative duties have generally been absorbed into the daily procedures performed by the professional staff and there has been little increase in the administrative establishment over the past ten years. This is further exacerbated by the archaic systems employed by the City, which do little to relieve the administrative burden (being addressed).

Accordingly, it is recommended that a strong administrative core, overseen by an Administrative Co-ordinator, be established. This will require the creation of a new position for the Administrative Co-ordinator.

In respect of the customer service officers, it is anticipated that the two officers currently serving on the Building counter will serve on the Approvals counter, along with an Environmental Health Officer and a Planning Officer.

The existing planning counter, subject to some minor modification could comfortably accommodate three officers. Agreement in principle has been reached with the Customer Service Co-ordinator, Peter Wynne to utilise the existing vacant workstation in the main foyer for the remaining officer.

Apart from addressing accommodation issues this would be beneficial in terms of improving the public image of the City as visitors would not be greeted by an empty desk. The officer at this desk would clearly have a dual role in terms of generally greeting and directing visitors to the City and also assisting with Approvals enquiries.

4.2.2 Strategic Planning (Sub) Unit

It is suggested that the current Strategic Planning Section be retained intact, under a Strategic Planning Co-ordinator.

Item HR3 on this agenda details the planning project work currently being undertaken by the section and flags the possible need for additional resources. It is likely that identified project work could be continued in accordance with timetables, with the addition of one planning officer's position and a half time administrative officer's position.

4.3 INSPECTIONS / COMPLIANCE UNIT

This unit will be formed by the current Health Department, as one sub-unit and the Building and Planning Inspectorial functions as the other sub-unit, headed by a Manager.

A Field Officer position (casual) in the Engineering Operations department will be transferred to the Building/Planning sub-unit. This transfer is subject to the approval of the Manager Engineering Operations and arrangements being made for the position to undertake some engineering (inspectorial) functions.

4.3.1 Health Sub-Unit

This sub-unit consists of the present Health Department and will continue with all current duties, including those inspections listed earlier in this report. (See Item HR6)

4.3.2 Building / Planning Sub-Unit

This sub-unit comprises those building surveyors not part of the Approvals sub-unit, the Zoning Inspector and the Field Officer from Engineering Operations.

The main thrust of the sub-unit will be to work towards achieving inspections of new buildings in accordance with the "Acceptable Standards" identified earlier in this report.

5. CITY BUILDING OPERATIONS UNIT

This unit will continue to operate in its current configuration.

6. STAFF RESOURCES

The associated reports on this agenda and this report suggest various staff requirements. Most, if not all, changes envisaged can be accommodated within the adopted 2002/03 budget. The precise allocation of staff resources can be undertaken by the CEO and Executive Manager Planning and Development, together with Functional Managers, with assistance from the Internal Auditor.

Naturally, any requirements beyond the adopted budget would be referred to Council for consideration.

7. SERVICE AGREEMENTS

7.1 The following Departments / Business Units have input into the development and building approval processes:-

Health
Engineering Design
Parks

7.2 In addition, the Health Department has some input in the inspection of buildings, as detailed in paragraph 3.2 above.

7.3 It will be necessary for the Approvals and Inspections/Compliance Units to develop service agreements with these departments.

8. OTHER MATTERS

The Lands Section for all intents and purposes has been transferred to Asset Management but remains located in the Planning Department. Consideration should be given to the relocation of the Lands Section to a more appropriate location in the new building.