Accommodating Change Measuring Success Property Asset Management Delivery Plan Progress Report June 2015 1
Accommodating Change Measuring Success Property Asset Management Delivery Plan Contents 1. Executive Summary 2. Progress on Actions in the Property Asset Management Delivery Plan 2.1 Governance 2.2. Business Planning and Common Strategies. 2.3. Communications Strategy 2.4. Adopting ISEN 15221 Standard for Facility Management 2.5. Implementing the web-based mapping register 2.6. Standardising (i) property asset transfer and (ii) property asset sharing arrangements 2.7. Streamlining legal administration 2.8. Setting targets for registration/perfecting title on State-owned properties 2.9. Revise office space allocation per person 2.10. Building property management expertise and capacity 2.11. Energy Efficiency 2.12. Acquisitions and Disposals Strategy 3. Conclusion Appendix 1: Terms of Reference and Membership of the Steering Group on Property Asset Management and of the Property Managers' Network Appendix 2: State Property Register - Overview of Returns from Public Bodies at end May 2015 Appendix 3: PAMDP Actions Implemented by Departments and other Public Sector Bodies Appendix 4: Optimising Power@Work - Participating Organisations 2
Accommodating Change Measuring Success Property Asset Management Delivery Plan Progress Report June 2015 1. Executive Summary The Government recognises that effective Property Asset Management is key to achieving significant savings to the State and ensuring optimal value for money to the taxpayer. The Government agreed a range of measures to realise the benefits of better property management and these are set out in Accommodating Change Measuring Success, the Government s Property Asset Management Delivery Plan (PAMDP), which was published in July 2013. The key objective of the property asset management reforms being implemented is to "manage the Public Service property portfolio in a professional, co-ordinated and efficient manner that maximises value for money and facilitates business needs and service provision". This is being achieved by adopting a more strategic approach to property asset management across the range of public property holders and finding innovative solutions that maximise use. Ownership of properties will remain with the individual property holders. A collaborative approach presents greater opportunities for sharing assets, expertise and information across the public service, as well as streamlining administrative and legal property transaction costs. In 2014, the Government's Public Service Reform Plan 2014-2016 identified the following benefits from the property-related reform actions, as follows: Enhanced capacity and greater professionalism in the management of property assets across the Public Service; Increased awareness at a corporate level to encourage Public Service property owners to adopt a more strategic approach to forward planning of property-related expenditure Greater scope for savings from rationalisation of the State s property footprint through better coordination and management of property sharing and property transfers among public bodies; More efficient use of the State s property portfolio through the use of common standards for property management and cost effective data storage technologies across all public bodies; More streamlined administration of the management of property portfolios across the Public Service Cost savings and environmental benefits from greater energy efficiency The Chairman of the Office of Public Works is the appointed Senior Responsible Owner (SRO) assigned to lead the property related reform area. The SRO chairs the Steering Group on Property Asset Management which is the forum through which the wider public service has been working collaboratively to bring a whole of Government perspective to managing the State s property portfolio. The terms of reference and membership of the Steering Group is at Appendix 1. The PAMDP, developed by the Steering Group, is an ambitious programme of property reforms that require ongoing comparison with international standards in order to ensure sustainability and effectiveness. This report outlines the progress achieved under each action area. Many of the actions have been significantly progressed or have been completed. Others are dependent on resource allocation and ongoing engagement with a wide range of stakeholders in the property management area. A summary of the main areas that have been progressed is as follows: A process for Intra State property transactions: The Protocols on Intra State property transfers and sharing have been signed off with a single valuations process agreed. A Disposal Strategy has been finalised by the Steering Group. The projected outcome includes reduced costs, streamlined administration, greater efficiencies in property utilisation and optimising shared services. A common language: The ISEN 15221 Standard for Facilities Management has been adopted. This will facilitate comparative building analysis in relation to costs and building performance across the Public Service in the long term. A communications strategy: Nominations to the Property Managers' Network have been received from public service organisations. The Network will provide opportunities for sharing expertise and shared approaches to 3
property solutions. Workshops have been held with a number of relevant public service organisations to inform them of the reforms in the property management area. A pilot shared training course on option appraisal was conducted in May 2015 and engagement with other training providers is ongoing. An Intra Public Service State Property Register: The Intra Public Service State Property Register was developed in-house by the OPW and is available to public service bodies. At present, there are over 18,500 properties on the Register. The challenge is the range of property types and scale of data to be adapted and submitted. Once completely populated, the Register will provide an information and communications mechanism through which the State may target opportunities for optimising the utilisation of its property assets. The Civil Service Estate: There is a move to greater use of activity based accommodation provision and the OPW has completed its Office Accommodation Design Standards for Civil Service accommodation. There are further efficiencies to be gained through offsite storage and increased use of electronic data storage. The direction of the reform programme is in line with international best practice and has increased awareness of the need for strategic asset management planning. The communication challenge in this regard is significant and will take time to embed the changes that form part of the actions in the Plan. 4
2. Progress on Actions in the Property Asset Management Delivery Plan Since the publication of the Property Asset Management Delivery Plan (PAMDP) in July 2013, the Steering Group on Property Asset Management has met 17 times. The Subgroup on Property Asset Transfer and Sharing has met 5 times. The Group has participated in 2 information workshops, presented at a number of reform related events and met with representative organisations such as the County and City Management Association (CCMA) and the Local Government Management Agency (LGMA). The Chair of the Steering Group has also presented to international counterparts in the public property asset management area, as a member of The Workplace Network (TWN), which is an international network of CEOs in public property, in addition to membership of PureNet, a European wide network of public property asset management practitioners. The progress that has been achieved in implementing the actions set out in the PAMDP is outlined below. The implementation of many of the actions is assigned to the OPW alongside its continuing property rationalisation programme. Others are being progressed through collaboration with colleagues across the public service working in the property management area. The support of our civil and public service colleagues in this area has been and will continue to be critical to the sustainability of this extensive and ambitious reform programme. An overview of progress responses from public bodies is at Appendix 3. 2.1 Governance The PAMDP acknowledged that strong governance is vital to effective implementation of change and to sustain the reforms being put in place. The Steering Group on PAMDP will continue its oversight role of the implementation of the property related reforms in their respective areas supported by a Property Managers Network. 2.1.1 Actions: Public property holders will nominate representatives to a Property Managers Network led by the OPW (including Departmental property professionals) The OPW will provide regular reports on progressing the implementation of the reform recommendations 2.1.2 PROGRESS TO-DATE: Nominations to the Property Managers Network have been submitted to the OPW from Government Departments, State bodies and agencies, the Local Authorities and the Health Service Executive (HSE). The management and chairing of the Network will be on a regional basis similar to the regional establishment of the HSE. The establishment of a Property Managers Network is an important component of effective governance. Communications will be critical to the sustainability of the Government s reform programme in the property asset management area. Chairing and managing the Network will require additional resources which were identified in a capacity and capability review of the OPW's Estate Portfolio Management (EPM) Division in 2014. The Business Transformation process currently being undertaken in the EPM area within the OPW has identified the resources that will be required to manage and chair the Network. The OPW are engaged with the Public Appointments Service (PAS) to recruit resources in this area. It is envisaged that the Network will facilitate intra State dialogue at a regional level to assist in identifying opportunities and solutions to property asset management issues that arise for the public service regionally. The terms of reference of the Network are set out at Appendix 1. The Office of Public Works will continue to provide regular updates on progress to the Department of Public Expenditure and Reform on a quarterly basis. 2.2. Business Planning and Common Strategies. The PAMDP proposed the introduction of assessments of property implications as part of Departmental Strategy Statements and Business Plans particularly when considering future service delivery. This will facilitate more effective planning of property asset requirements. 2.2.1 Actions: The OPW in consultation with the Department of Public Expenditure and Reform will prepare a template for Departments/Offices to use in preparing the property-related section of their future Strategy Statements/Business Plans to facilitate strategic planning 5
The OPW will assess office accommodation requirements for the Civil Service, as set out in Strategy Statements, and make recommendations on future property requirements, in conjunction with sectoral stakeholders 2.2.2 PROGRESS TO-DATE : Guidance on the preparation of Strategy Statements/Business Plans was given to Government Departments in September 2014 to reflect priorities set out in the Programme for Government. The guidance referred to Departments matching strategies to the financial, staffing and property resources available to them in providing public services. This is intended to assist medium to longer term planning in terms of office accommodation provision, related expenditure and rationalising the State's property portfolio through intra public service property sharing and transfer. On receipt of detailed future property requirements or plans, the OPW will continue to assist Departments in assessing office accommodation requirements to meet their needs. In this regard, the OPW's Accommodation Design Standards policy document sets out standards to be applied in office accommodation provision. 2.3. Communications Strategy Effective communication is critical to the successful implementation of this significant property reform programme. The PAMDP identified the benefits of an effective communications strategy as assisting intra State information sharing on acquisitions, disposals, rent reviews and the optimisation the value of the State s covenant. It will also provide the basis for sharing of professional resources, experience and expertise in this area. 2.3.1 Actions: The OPW in consultation with other public property holders will develop a communications strategy around the phased implementation of the property asset management reform actions 2.3.2 PROGRESS TO-DATE: A Communications Strategy has been developed to provide clarity around the implementation of the reform actions and to ensure consistency of purpose across a diverse range of public property holders. The aim of the Strategy is to convey the impact on public expenditure of the property-related running and maintenance costs associated with the extensive range of public services provided by the State. The objective of the Strategy is to convey that, by working collaboratively, the State can achieve more cohesion in the way property is shared/transferred between State organisations through: shared protocols for asset sharing and transfer; increased accountability for space allocation through the analysis of property related information provided in Departmental Strategy Statements/Business Plans; standards and policies around space allocation and more open plan working; greater transparency in the decision-making process through a map-based State Property Register. The wide-ranging actions set out in the Property Asset Management Delivery Plan will require a variety of communication methods. The structures through which communications take place are as follows: (i) The SRO and the Steering Group will provide oversight in relation to the actions in the Plan and reporting on issues arising from within their respective sectors. Primarily the Steering Group members, representing the main public property holders, will be the strategic decision-making group and a high-level communications medium. (ii) The Property Managers Network will be established shortly and will provide a communications facility at an operational level and will be responsible for implementing actions and reporting to the Steering Group membership. To ensure a whole of Government approach, the following methods are key to the Communications Strategy: Engagement with representatives across public bodies through the membership of the Steering Group and the Property Managers' Network 6
Workshops on the PAMDP with the Departmental, local authority and HSE sectors including involvement of the Property Registration Authority (PRA), the Valuation Office and other relevant stakeholders Individual presentations and meetings with stakeholders e.g. the LGMA, the CCMA, the Chief State Solicitor's Office (CSSO) Using the State Property Register as an information tool for the Property Managers' Network and Local Authority GIS Users Group Relevant information on a dedicated OPW website page (www.opw.ie) Standards and property management reference materials Consulting the Office of Government Procurement (OGP) in relation to framework contracts for building surveys to the ISEN 15221 Standard Engagement with the inter Departmental working group on the introduction of a shared financial management service (FMSS) Communication by circular/email with the Civil Service, where appropriate. 2.4. Adopting ISEN 15221 Standard for Facilities Management The PAMDP recognised the importance of standardised data collection to facilitate property performance measurement and benchmarking. The introduction of the ISEN 15221 Facility Management suite of European standards will provide a consistent, standard method for data collection, benchmarking analysis and reporting on performance of property assets, particularly in the office accommodation area. 2.4.1 Actions: Public property holders will implement the ISEN 15221 standard on a phased basis. Relevant Departments are to ensure that the standard is adopted across their areas of responsibility. The Standard will define financial, spatial and environmental KPIs to assess asset performance The OPW will produce a baseline report on the current position in relation to the State s Civil Service office accommodation portfolio, to enable trend analysis The OPW will engage with the OGP on their facilities management contracts and the relevant service level agreement sections of the ISEN Standard 2.4.2 PROGRESS TO-DATE: The ISEN 15221 Standard for Facilities Management is a European standard that provides a detailed framework for measuring and analysing the spaces used by staff in buildings. The Standard focuses on integrating Space & Infrastructure with the People & Organisation. It enables: the classification of facilities, assets and services the measurement of space and areas in a consistent manner the development and management of property management processes and the assessment of quality of services 7
benchmarking performance through the use of KPIs. The adoption of the Standard will allow for a coordinated, consistent collation of the required data to produce KPIs for office accommodation. The KPIs are Spatial, Financial and Environmental and include the key indicators of net floor area per workstation and per staff member. A Building Analysis database has been developed in accordance with the Standard and the relevant metrics that need to be applied. The OPW has undertaken a pilot survey of a number of its properties to test the efficacy of the application of the ISEN Standard 15221. A draft specification of a framework contract will form the basis on which the surveys are to be completed. The results of the pilot surveys will be analysed and, once finalised, will be submitted to the Office of Government Procurement (OGP) to establish as a framework survey contract for use by all public property holders. In addition, engagement has taken place with Peoplepoint in relation to linking electronic systems to provide automatic updates on building occupancy on a phased basis. The introduction of a new Financial Management Shared Service also provides an opportunity for the application of facilities management related coding to streamline reporting across the Civil Service. 2.5. Implementing the web-based mapping register The development of the State Property Register was one of the key actions in the Government's Reform Programme and reiterated in the PAMDP as a key mechanism for facilitating intra State communications and informing decision-making in the public property asset management area. 2.5.1 Actions: The OPW will complete the development of a prototype of the web-mapping register populated initially with OPW property data The OPW in consultation with other property holders will prepare a phased implementation plan to capture the required data from other public bodies The OPW will facilitate public property holders in: o their assessment of the information and processes involved in the mapping application and o identifying contacts and/or technical representatives responsible for populating the map o 5.1.4 Public property holders will undertake a process of data validation (prioritising office accommodation) in accordance with the data attributes required for the mapping application 2.5.2 PROGRESS TO-DATE: The OPW has developed a web-based Intra State Property Register on which data for all State properties can be uploaded. Public property holders are engaged in submitting their property data for inclusion in the Register. At present, the Register is populated with approximately 18,500 properties and will require ongoing property data management by stakeholders to ensure the completeness and accuracy of the data. 8
This has been a challenging process as the State records such data in a accordance with the governance and data requirements of individual State entities through a range of recording databases. The challenge facing local authorities as they respond to and participate in this project is the scale of the data to be adapted and submitted. Properties owned by local authorities range from offices and public buildings, through to social housing and many pockets of land remaining from land acquisitions for roads and other infrastructure projects. A target of 140,000 individual items would not be unreasonable given that there are in excess of 125,000 social houses nationally. The centralisation into a single database of all these assets represents a very considerable body of work for individual authorities. While this work has been ongoing and some asset details have been submitted, it is clear that a great deal of work remains to be completed. Discussions with the Local Government Management Agency (LGMA) and the Land Use and Transportation Services (LUTS) Committee have re-energised the sector and there is a clear commitment to provide the data. A Working Group has recently been established to expedite the phased delivery of the data. The OPW is participating in the Group. The property data required for the State Property Register includes the following information fields: Name, address and owner; Geodirectory ID; Property type; Tenure and type of use; Internal and plot area. An identifier has been included that shows whether a property is 'in use', 'space available', or 'surplus'. This will assist public property holders in planning property rationalisation across the State, rather than just within individual property portfolios. An overview of returns from public bodies at 17 June 2015 is at Appendix 2. 2.6. Standardising (i) property asset transfer and (ii) property asset sharing arrangements The introduction of co-ordination protocols to standardise arrangements for intra public service property asset sharing and transfer are intended to streamline the legal and administrative processes in this area. 2.6.1 Actions: The Chief State Solicitor s Office in consultation with public property holders will draft and circulate agreed set of standard protocols (and/or statutory declaration, where appropriate) for intra public service property asset transfer and sharing The Department of Public Expenditure and Reform will communicate the standard protocols across the public service by way of Departmental circulars Agreed valuation methodology will be developed as part of the asset transfer policy. This may include the use of a single independent valuer (instead of each party hiring their own valuer) 2.6.2 PROGRESS TO-DATE: Protocols on intra-state property asset transfer and sharing have been agreed which will improve the process of such intra State property transactions. The Protocols include the principle of single, independent valuations on intra-state transfers. The Valuation Office is providing a shared service to public property holders in this regard, thereby achieving savings to the State over the traditional approach of separate valuations being procured by each property holder. This collaborative approach is supported by the Intra State Property Register that will identify where State properties are surplus to requirements and available for transfer or sharing with another State entity. The Protocols will shortly be circulated by the Department of Public Expenditure and Reform to all Government Departments/Offices/Bodies/Agencies. To-date, the principles outlined in the Protocol for Intra State Transfers have been applied in a number of specific property transactions between the OPW and a number of local authorities and with the Department of Defence. The results of the operation of the protocols indicate savings on time and professional fees relating to such property transactions. 2.7. Streamlining legal administration The PAMDP recommended the development of standard clauses for insertion in leases either being granted to third parties or acquiring from third parties. The intention was to potentially expedite the legal process, reduce the associated administrative burden and reduce the variation in lease clauses that can cause confusion to both landlords and tenants. 9
2.7.1 Recommended Actions: The Chief State Solicitor s Office (CSSO), in consultation with public property holders, will draft pro forma terms acceptable to the State when leasing commercial office accommodation. (This will include an approval process where there is a derogation sought from the above) The CSSO, in consultation with public property holders, will draft pro forma terms for inclusion in leases and licences granted to third parties (office accommodation) 2.7.2 PROGRESS TO-DATE: Research undertaken into this matter in other jurisdictions such as the UK and in Northern Ireland has concluded that this area is a complex one and dependent on the prevailing property market. The Chief State Solicitor's Office identified a range of standard terms that may be included in leases and licences granted to third parties to facilitate a move streamlining certain aspects of this work area. However, the standardised use of such terms is limited due to the complexities of property asset management which are subject to negotiation and agreement between legal representatives acting for the relevant parties. A guidance note for administrators on the various relevant lease terms will be considered. 2.8. Setting targets for registration/perfecting title on State-owned properties The primary statutory remit of the Property Registration Authority is to complete the Irish land register leading to a single system of title registration including eregistration, econveyancing and the emerging Irish Spatial Data Infrastructure. This includes lands in the ownership of the State to provide a readily accessible record of State property with clearly defined boundaries and any ancillary or appurtenant rights, easements or burdens. 2.8.1 Actions: Public property holders will identify the State s portfolio of properties that require PRAI registration and set annual targets to register these properties. Prioritise each year linked to the State s disposal programme Public property holders will identify a programme of work to acquire the freehold interest on properties held under long leaseholds, having regard to statutory provisions 2.8.2 PROGRESS TO-DATE: The Property Registration Authority (PRA) have presented to the Steering Group and at the intra public service workshops which were arranged to convey the reform programme across the relevant State entities. The PRA has also provided separate training on the developments in online registration services that they provide to property managers. An information paper was prepared and distributed to public property managers on various forms of registration. The recent value for money report on the local authorities identified property registration as a priority. The registration of all State property will, in the longer term, reduce the administrative and legal demands for all state services e.g. title searches among other important protections identified in the report. A number of property holding stakeholders have completed rectification of title on a range of properties that have been prioritised in their property asset disposal programmes, e.g. the Department of Defence, the OPW. One of the issues generally relating to the registration of State property is where functions of State transfer between Ministers or where Ministerial titles change. This has historically generated certain anomalies depending on the extent of property ownership and the extent of title or ownership changes, in addition the range of property holding public bodies that have been established or abolished over a number of decades. The PRA are engaging with State property holders on this matter and are working with the Steering Group on Property Asset Management to advise on the options for State property registration in consultation with the Chief State Solicitor's Office. Where relevant, as part of their property asset management programme of work, public property holders will phase the acquisition of freehold interest on properties identified as suitable, having regard to statutory provisions. 2.9. Revise office space allocation per person In the Civil Service, the current allocation per person is based largely on grading structure where greater office space is allocated to the most senior grades. The Government s rationalisation programme is exerting pressure on State organisations to optimise space utilisation and find more innovative, cost-effective ways of working. 10
2.9.1 Actions: The OPW will set targets for Civil Service space norms The OPW will define modern, flexible workplace design and more innovative working environment as the norm for Civil Service accommodation (subject to building type)) Government Departments/Offices will examine the potential to move to electronic storage in order to reduce record management space requirements 2.9.2 PROGRESS TO-DATE: A key objective initiated after the economic downturn was to reduce the Civil Service office footprint and make significant savings in annual rental expenditure. The OPW's Civil Service Office Rationalisation Programme has realised cumulative savings of 149.3m in the years 2008 to 2014. This equates to an annual rental reduction of 34.7m with 276 leases surrendered. In addition, negotiated rent reductions on 121 leases to a value of 8.6m annually. Like other jurisdictions, trends in office accommodation must be cognisant of developments in technology and more innovative ways of working. As the main provider of office accommodation for the Civil Service, the OPW is moving towards activity based space allocation where accommodation design is increasingly determined by the type of work being done. Space allocation is no longer determined by grade supported by the Government's policy of increased open plan working design for civil service office accommodation. The OPW established a committee representative of the disciplines involved in the provision of Civil Service office accommodation to develop a set of standards for accommodation provision. The standards set out the design criteria for new buildings and repairs and alterations of existing buildings (recent and historic) under the care of OPW. The design standards represent current practice in designing buildings to meet OPW s commitments to maximise the efficient and effective use of accommodation for the delivery of Government services and comply with all legal requirements. The formalising of such standards has been carried out by many organisations similar to the OPW, in the past. A very good example of such a document is that produced by the General Services Administration (GSA) in the United States, entitled Facilities Standards for the Public Buildings (P100). It must be borne in mind, however, that rationalisation of workspaces and more efficient building performance requires significant investment, particularly in relation to older generation buildings. The OPW has undertaken a records management review of its own organisation with a view to producing guidelines for Departments/Offices on reducing paper storage requirements. 2.10. Building property management expertise and capacity The PAMDP identified the need for a co-ordinated approach to ensuring continuity of skills and expertise in the property asset management area across the public service. This is particularly important given the reduction in public service numbers over the past few years. 2.10.1 Actions: The OPW and public property holders will identify the professional and administrative skills and competencies required in the property management area The OPW will engage external expertise to undertake a capacity and capability review of its activities in relation to the property asset management reform commitments across the public service The OPW and public property holders will identify an accredited qualification for staff in property management and implement a programme to achieve the required standard Each public service sector will ensure the sustainability of professional expertise in the property management area, including professional collaboration across the public service 11
2.10.2 PROGRESS TO-DATE: The Steering Group has considered the skills and competencies required for public property managers. A draft training programme identifying the critical topics for staff training and development is being considered by the Steering Group. The training model being proposed is a public service collaborative approach which utilises the knowledge, experience and expertise and experience across the public service as well as drawing on external expertise and international best practice. It is envisaged that this will form the basis of introductory training for staff new to the property management area. There are a number of existing accredited programmes in the property management area generally. These are being considered in terms of the most cost effective approach for the public service. There would appear to be significant scope to develop an intra public service model mixed with external expertise where required. In relation to its own activities, the OPW engaged external consultants to undertake a Capacity and Capability Review of its Estate Portfolio Management function, completed in April 2014. The Review confirmed the appropriateness of the direction of the reform programme in the property management area. The Review outlined a number of recommendations to ensure that the OPW is equipped to provide existing and future services and that it has the capacity to meet the demands of its reform role. These recommendations are being addressed through the establishment of a Business Transformation Unit within the OPW to review processes, organisational structure and the resources required to improve efficiency and service delivery in existing and expanded roles. In terms of current international best practice, the OPW is a member of The Workplace Network (TWN), a global network of leaders in the public property asset management area. In June 2015, the OPW hosted a conference for the Network for members of the WorldWide Workplace Web (W4). The conference provided an opportunity to share learning and expertise on property asset management, with a particular focus on the demands and issues for property managers in the public service. Each Departmental stakeholder is engaged in identifying the property-related resources required over the coming years through their individual workforce plans. 2.11. Energy Efficiency The OPW s new Public Sector energy conservation initiative (Optimising Power @ Work) was officially launched in February 2014 in Tallaght Hospital. The programme is an expansion, into the wider public sector, of the OPW s successful Optimising Power @ Work campaign in central Government buildings. The programme is essentially a behavioural change campaign, supported by measured energy consumption data and the use of energy specialists in each building. Average energy savings of 20% are currently being achieved in the existing campaign. 2.11.1 Actions: The OPW will seek tenders for a) Specialist Engineering and Technical Resources; b) Data Logger deployment; and c) an Energy Efficiency Campaign) The OPW and public property holders will identify suitable buildings across the public service to participate in the new campaign 2.11.2 PROGRESS TO-DATE: The existing campaign operates in 270 large central Government buildings. The three fundamental elements of the programme are: Technology: Energy loggers, meters & reporting, Specialist Resources: Energy specialists working with energy teams in each building Staff Engagement: Active energy teams comprising staff and other key stakeholders in each building The OPW is leading the campaign with the service requirement largely outsourced to specialist private sector companies. The programme is being funded by the Department of Public Expenditure and Reform from the Carbon Levy Fund and a total of 9m has been allocated over 3 years. The funding allocation for 2015 is 2.4m. 12
The procurement of resources and equipment was relatively complex due to the very specialised nature of the contracts which were put in place during 2014, as follows: Management & Technical Resources Service to provide in-house technical and managerial support to the OPW Energy Conservation Unit. Energy Data Logging Equipment Framework Contract Energy metering equipment Framework Contract Tender documentation is currently being prepared for a new Energy Campaign Service Provider. The engagement from public sector organisations has been varied, though many have engaged with a very high level of participation, thus realising the benefits immediately. As with our experience in OPW buildings, the buyin at various levels, primarily at senior management, is essential for a campaign of this nature to be successful. The OPW is currently engaging with certain larger organisations at a national level and anticipate a significant increase in participation in the short to medium term. Appendix 4 contains a summary report of the various public sector organisations currently participating in Optimising Power @ Work. 2.12. Acquisitions and Disposals Strategy The main area of property management activity since 2008 has been the rationalisation of the State's property portfolio. The Steering Group acknowledge that decisions made to acquire property need to take account of the lifecycle cost of the asset and the total life cost implications for the Exchequer and the taxpayer. They also require a 'whole of Government' perspective rather than the traditional approach of individualised decision making by public property holders to acquire or dispose of a property asset. This is, of course, subject to the individual legislative or governance obligations relating to each public property holder. 2.12.1 Actions: Public property holders will develop a coordinated acquisitions appraisal process for leasehold and freehold premises following the best practice principles of the Public Spending Code - to be applied to the public service, including local authorities Public property holders will formalise an agreed intra public service policy in relation to the disposal of surplus State property 2.12.2 PROGRESS TO-DATE: The property of the State is vested by legislation in a range of property holders that include State Departments, Agencies and Bodies, the Commissioners of Public Works, Local Authorities and the HSE. Each Stakeholder and bodies under their aegis is responsible for managing its own properties in accordance with existing relevant legislation, codes of practice and governance arrangements. An Acquisitions and Disposal Strategy has been finalised by the Steering Group stakeholders. The purpose of the Strategy is to provide an agreed approach across all public property holders in relation to the public sector estate as a whole - identifying property surpluses, redevelopment opportunities, and devise the optimal utilisation, re-use or disposal programme in respect of land and property. Subject to legislative and governance obligations for individual property holders, the policy relating to the disposal of surplus State property will be that public property stakeholders will advertise the property across the public service to determine if it is surplus to current or future State requirements before placing it on the open market. If no alternative State use is identified by other public property stakeholders within a reasonable timeframe the asset should be disposed of on the open market. Disposal of surplus State property should be managed as expeditiously as possible while achieving value for the taxpayer. It should be noted that this policy should be used in conjunction with the Protocols on Asset Transfer and Sharing and the State Property Register Viewer. 13
3. Conclusion The strategic approach to the management of State property requires all State property holders to view public property from a 'State' perspective rather than individual ownership - notwithstanding that ownership will remain the same. The overall objective is to optimise the management of the State's property assets through a whole of Government approach. The actions contained in the PAMDP encompass the strategic direction envisaged by the Government in the area of State property asset management. This strategic direction was recently endorsed at a W4 (World Wide Workplace Web) Conference hosted by the OPW and attended by representatives of international public property organisations. Progress achieved to date includes: an agreed approach to how the 'State' governs its property assets, through the Protocols on Intra State Property Transfers and Property Sharing; a communications process that spans public property holders; an agreed Strategy for the disposal of State property assets; a common language for facilities management which will provide a mechanism for benchmarking property performance. Underpinning the above actions is the facility to share property related information across the Public Service through the Intra State Property Register. Once fully populated and validated, the Register will provide an information and communications mechanism through which the State may target opportunities for optimising the utilisation of its property assets. The continued input to the State Property Register and ongoing data verification of property holdings, combined with the implementation of the agreed protocols, are critical to completing effective reform. The role of the public property stakeholders is fundamental to identifying long-term property requirements that will inform more effective future planning of State service delivery. The State Property Register will facilitate a more strategic approach to property based solutions on a State-wide basis through the membership of the Property Managers' Network. In addition, the potential to attract investment from the market through greater use of the State's property assets is an important consideration and one which could yield greater local and national economic benefits. The Government's reform agenda is directing State bodies towards a collaborative approach in which the Steering Group will retain an oversight role. In the longer term, the following outcomes are envisaged: Strategic Planning - whole of Government planning of property requirements for future public service delivery; Optimisation/Rationalisation of State property to match urban planning and development of public services; and State property holders in a position to develop Property Asset Management Strategies for short, medium and long term planning that link to future State service delivery proposals. The future delivery of State services to the public will be influenced by developments in technology, and more innovative models of service delivery and ways of working (egovernment, online public services, increased electronic storage). As the main provider of office accommodation for the Civil Service, the OPW is moving towards 'activity based space allocation' where accommodation design is increasingly determined by the type of work being done. How services will be delivered in the future will impact on the property demands of the State. 14
Appendix 1 Terms of Reference and Membership of the Steering Group on Property Asset Management and of the Property Managers' Network 15
1. Terms of Reference and Membership of the Steering Group on Property Asset Management Terms of Reference: To review existing property management arrangements across the public sector To examine current stakeholder involvement and develop communication and data management strategies that provide an overview of State property and facilitate data sharing To develop a framework to drive the extraction of efficiency and value from the assets involved, both owned and leased, and recommend office accommodation policies that include: space norms; open plan accommodation; and efficiency drivers To report to Government defining long-term objectives; resources necessary to implement the objectives; and the authority assignments required to achieve the outcomes envisaged in the Public Service Reform Plan Membership: Departments/Offices: Office of Public Works (Chair) Public Expenditure and Reform Communications, Energy and Natural Resources Defence Environment, Community and Local Government Education and Skills Agriculture, Food and the Marine Jobs, Enterprise and Innovation Transport, Tourism and Sport Health (and Health Service Executive) Arts, Heritage and the Gaeltacht Justice, Equality and Law Reform County and City Management Association Local Government Management Agency Revenue Commissioners 2. Terms of Reference and Membership of the Property Managers' Network Terms of Reference: To co-ordinate the collation and transmission of data required for the mapping inventory developed by the OPW to technicians in the OPW; To ensure data verification and sign off at senior level in their respective Departments in advance of trans mitting it to the OPW, particularly in respect of planned disposals or acquisitions; To liaise with the OPW to facilitate workshops around delivering on specific actions in the Plan e.g. ISEN Standards, mapping information, and monitoring/reporting progress to the OPW Secretariat; To identify opportunities for sharing property management expertise, knowledge, information and skills within and across the public service; To develop a programme for perfecting title, acquiring freehold interest and registering State properties held by their Department or Agencies/Bodies under the aegis of their Department; To provide a forum to address property asset management issues that arise regionally; To inform the Steering Group on Property Asset Management of key, strategic issues that may arise and to act as a consultative body for the Steering Group where appropriate. Membership: To be established on a regional basis: Office of Public Works (Chair) Government Departments/Offices County and City Management Association Local Government Management Agency Local Authorities Health Service Executive 16
Appendix 2 State Property Register - Overview of Returns from Public Bodies at 17 June 2015 17
State Property Register - Overview of Returns from Public Bodies at 17 June 2015 The OPW requested all Government Departments to return details of all properties owned or leased by them and by the State bodies under their remit (excluding commercial semi-state bodies). At this point in the process, a baseline estimate of the total number of public property holdings is set out below, together with how the estimate has been determined and the main caveats and limitations in the methodology applied. There are effectively five sources of data used to estimate the total number of properties: The data returned by the Public Bodies The estimated total stated by the Public Body The total number of properties registered to the Public Body with Property Registration Authority (PRA). The PRA can only report this information if it has been previously requested by the public body, for operational reasons. Staff locations reported by Peoplepoint (Civil Service only) Additional data on numbers of local authority houses from LGMA The largest holders are the HSE, Local Authorities, the Office of Public Works and Udaras na Gaeltachta, each with more than 500 properties. A number of Local Authorities have made substantial returns. Excluding the social housing units, the local authority sector has returned approximately 70% of their overall estimated property holdings indicated by the PRA and LGMA data. The total number of properties returned up to mid-june 2015 is 18,505. The smaller holders, i.e. those not listed above, have returned a total of 1,079 properties. There is a possibility of some double reporting, e.g. from the relevant State body and parent Department, which may require further data validation. The PRAI data included some omnibus folios, i.e. covering more than one property or plot of land. Therefore, the overall estimate is likely to err on the low side. Table 1 shows the overall estimate by the OPW of State properties compared with the returns submitted to the State Property Register. Chart 1 show the rate at which data has been created and is updated daily. Table 2 provides a breakdown by Department, excluding Local Authorities. Table 3 below provides a detailed breakdown for Local Authorities. Table 1 - Overall estimate of State properties compared with those returned to the State Property Register Public Body or Group HSE Local Authorities OPW Udaras na Gaeltachta Smaller holdings No. returned Ratio OPW Estimate 3,747 1 3,747 10,636 0.7 15,000 (excluding 125,000 social housing units) 2,217 1 2,217 826 1 826 1,079 0.8 1,300 18,505 23,090 (excluding 125,000 social housing units) 18
Chart 1 - Progress on properties submitted to the State Property Register Table 2 - Properties submitted by Department (including Bodies/Agencies under their remit, excluding local authorities) 19
Table 3 - Properties* submitted by Local Authority * including estimated 125,000 social housing units 20
Appendix 3 PAMDP Actions Implemented by Departments and other Public Sector Bodies 21
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Appendix 4 Optimising Power@Work - Participating Organisations 30
Optimising Power@Work - Participating Organisations The table below lists the buildings and/or campuses currently participating in the Optimising Power @ Work energy efficiency initiative. Organisation/ Campus Logging Equipment Cloverhill Prison Installed Wheatfield Prison Installed Tallaght Hospital Installed Galway University Surveys complete, No equipment installed Hospital Trinity College Dublin Surveys complete, logging equipment currently Goldsmith Hall & being installed Trinity Centre for Health Sciences Sligo IT Entire Installed Campus Galway City Council Installed Cork City Council Installed Cork County Council Installed Kilkenny County Installed Council Laois County Council Installed South Dublin County Surveys Complete. No equipment installed Council Louth County Council Installed Kildare County Council Installed Meath County Council Surveys Compete. No logging equipment installed HSE Estates Oak House, Sir Patrick Dun s Hospital & Dr. Steeven's Hospital Central Bank Cork Institute of Technology Campaign Commenced Yes Yes Yes No No Yes Yes Yes Yes Yes Yes No No Yes No Installed Pending Technical Survey under way Technical Survey under way No No 31