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Malawi Ngwira PhD MBA MSc BSc MRICS is a lecturer in Real Estate Valuation and Asset Management in the School of Engineering and Built Environment at Glasgow Caledonian University, where he is Programme Leader for the BSc (Hons) Property Management and Valuation programme and Assistant Director of the Centre for Built Environment Asset Management (BEAM). He was a Chartered Surveyor and Valuer for 15 years before entering academe, gaining extensive experience in asset management for public bodies in the UK, and has consulted on the subject overseas.
David Manase PhD MPhil BSc ICIOB is a lecturer in Construction Economics and Procurement in the School of Engineering and the Built Environment at Glasgow Caledonian University. He leads the MSc quantity surveying programme in the school. He has wide local and international experience having worked as a quantity surveyor for various contractors and professional quantity surveying firms on projects in the UK, South Africa and Zambia.
Acknowledgements xi
1 Asset Management Concept and Development in the Public Sector 1
1.1 Introduction 2
1.2 The concept of asset management 2
1.2.1 Definition of asset management 2
1.3 Benefits of asset management 6
1.4 Asset management development in the public sector 8
1.4.1 Origins of asset management 9
1.5 Chapter summary 11
2 Practice of Asset Management 13
2.1 Introduction 14
2.2 Drivers of asset management reforms in the public sector 14
2.2.1 Internal factors behind asset management reforms in the public sector 15
2.2.2 External forces behind asset management reforms in public sector organisations 22
2.3 Trends in the development of asset management in the UK public sector 29
2.4 Asset management development in Scotland 44
2.4.1 Prudential Code 44
2.4.2 Publication of the asset management guidance by the Scottish Government 45
2.4.3 Decision of Audit Scotland 47
2.4.4 Publication of 'Value for Money' by audit bodies 47
2.4.5 Duty by local authorities to achieve best value 47
2.5 Structure of operational property assets in the public sector 50
2.6 Role of property assets 52
2.7 Asset management development in other parts of the world 52
2.7.1 Asset management development in New Zealand and Australia 52
2.7.2 Asset management development in the USA 54
2.8 Chapter summary 55
3 Asset Management and Organisational Management Theory 57
3.1 Introduction 58
3.2 Asset management and organisational management theories 58
3.2.1 Strategic management theory 59
3.2.2 Change management theory 61
3.2.3 Management theory 62
3.2.4 Leadership theories 64
3.2.5 Organisational structure theory 66
3.3 Relationship between asset management and organisational management theory 67
3.3.1 Significance of strategic management approach in asset management 68
3.3.2 Asset management as a significant change management event 69
3.3.3 Asset management team and project management approach 70
3.3.4 Asset management and organisational structure 70
3.3.5 Asset management and leadership skills 71
3.3.6 Asset management and capacity building 72
3.3.7 Asset management and motivation 72
3.3.8 Asset management and stakeholder management 73
3.3.9 Asset management and value theory 73
3.4 Chapter summary 75
4 Strategic Asset Management 77
4.1 An overview of strategic asset management 78
4.2 Strategic planning 78
4.3 Enablers of asset management 79
4.4 Formulation of strategic plan or corporate asset strategy 79
4.4.1 Development of vision, mission goals and objectives 80
4.4.2 Review of the organisation's internal and external operating environment 80
4.4.3 Asset information, data collection and asset knowledge 83
4.4.4 Identification of size of strategic task or service level gap 85
4.5 Asset management planning 87
4.5.1 The asset management team 88
4.5.2 Strategy formulation 88
4.5.3 Strategy implementation 90
4.5.4 Asset monitoring and control 92
4.5.5 Asset management audit and review 93
4.6 Asset management outcomes 93
4.7 Chapter summary 97
5 Asset Management Planning 99
5.1 Introduction 100
5.2 Formulation of asset management policy 100
5.3 The asset management team 101
5.4 Asset management tactical planning 101
5.4.1 Asset management improvement planning 102
5.4.2 Non-financial factors 128
5.4.3 Multi-criteria analysis - analytic hierarchy process 129
5.4.4 Minimised lifecycle management of strategies 136
5.5 Strategy implementation 142
5.5.1 Arrangements at corporate level 143
5.5.2 Arrangements at property management level 143
5.5.3 Project management arrangements 145
5.6 Asset monitoring and control 146
5.7 Asset management audit and review 149
5.8 Chapter summary 150
6 Asset Management Plan 151
6.1 Introduction 152
6.2 Definition of an asset management plan 152
6.3 Aim of an asset management plan 152
6.4 Purpose and content of an AMP 153
6.5 Content of an AMP 154
6.5.1 Strategy development 156
6.5.2 Organisational aims and objectives, property asset implications and property asset aims and objectives 158
6.5.3 Corporate vision and strategy and its property implications 160
6.6 Review of current property assets 163
6.6.1 Consideration of options 163
6.6.2 Programme development/development of plan 165
6.6.3 Implementation of programmes 166
6.6.4 Monitoring, review and evaluation 168
6.7 Chapter summary 170
References 171
Index 183
This chapter reviews the literature on property asset management in the public sector by focusing on three areas. First, the review explains the concept of asset management. Second, literature is reviewed in order to highlight the structure of operational property assets in the public sector in the United Kingdom (UK). Third, the evolution of asset management is reviewed by tracing its origins, the forces behind asset management reforms, as well as the trends in the development of asset management in the UK and internationally. A review of the trends in the development of asset management in the UK includes establishing the status of asset management practice in public sector organisations.
This section explains the concept of asset management by defining and identifying the components that it comprises.
Different sources variously describe and define the term 'asset management'. For instance, the Royal Institute of Chartered Surveyors (RICS) (2008) settled on a definition and description of the term asset management in public sector organisations after evaluating a number of published definitions from various sources, such as those by RICS/Office of the Deputy Prime Minister (ODPM) (2005), Male (2006) and Lyons (2004). Thus, RICS (2008) defines asset management as 'a structured process that seeks to ensure best value for money from property assets in serving the strategic needs of public sector organisations'. In considering this definition and other definitions of asset management, RICS (2008) concludes that 'there appears to be considerable consensus over the basic characteristics of strategic asset management for land and buildings and a distinction between strategic asset management and operational property management'.
Asset management is characterised by:
The integrative role of asset management relates to the fact that the approach combines management, financial, economic and other activities and practices applied to the management of property assets' (Institute of Asset Management, 2006b) in a systematic and coordinated manner (British Standard Institution, 2008). The Audit Commission (2000) states that the strategic approach to managing public sector organisation property portfolios involves two broad strands of activities, as illustrated in Figure 1.1. The strands are Strategic Property Considerations and Property Services.
Figure 1.1 Strategic property considerations and property services.
Strategic property considerations are in effect asset management, and include decisions about the number, type and location of assets required to meet a public sector organisation's objectives. It is the activity that ensures that the land and building asset base of a public sector organisation is optimally structured and aligned with its corporate goals and objectives (RICS, 2008). Strategic property considerations ask questions such as: where should the property be located; why should the property be sited in a particular location; and what size of property is needed to support a service?
Property services comprise two strands: property management services and professional technical services. Both strands deliver the strategic asset management objectives by undertaking the professional/technical and management work necessary to ensure that property is in the condition, form, layout and location desired. Property services include ensuring that property is supplied with the services required; surplus property is disposed of and new property acquired and constructed; property is valued; property rates are catered for; and all this is done in a cost-effective manner. It also involves offering advice to decision-makers on the best way of managing operational property assets (RICS, 2008). What can be discerned from the various activities associated with property services is that it comprises two elements, namely property management (PM) and a concept known as facilities management (FM).
Ali (2007) cites Brown et al. (1993) who define facilities management services as coordinating the needs of people, equipment and operational activities into the physical workplace. It focuses on the provision of a quality working environment through various responsibilities such as facilities design, energy conservation and environmental control (Ali, 2007; Tay and Ooi, 2001). On the other hand, property management, according to Gibson (1994), is concerned with the care of buildings to tenants' or owner occupiers' satisfaction. Both FM and PM have responsibility for premises, although the focus of activities for meeting those responsibilities is different. The core of PM activities, also known as estate management, involves valuation of property; acquisition and disposal of buildings; provision of advice on property investment; administration of leases; administration and accounting for service charges; supervision of building repairs; rent reviews and rating advice; strategic reviews of property and accommodation and sales of surplus space (Stansall, 1994; Balch, 1994).
Conversely, activities associated with FM include: control of operating budgets and occupancy costs; management and maintenance of building services; planning and management of moves; selection of furniture; management of space allocation and use; supervision of cleaning; security, IT/communication and telecommunications services; catering and office support services; materials and equipment purchase management; office equipment and furniture purchase and management; as well as maintenance of the building itself (cleaning, heating and lighting) and maintenance of all mechanical and electrical equipment and building fabric in terms of decoration and repair of internal and external equipment (Stansall, 1994; Balch, 1994).
In practice, the functions of PM and FM are not so neatly separated. There are some common roles between them. The interface between operational property management and facilities management within an organisation is shown in Figure 1.2.
Figure 1.2 Asset management: FM and PM activities.
The integration of facilities and property management services, the hallmark of asset management, is the most beneficial arrangement for supporting public sector organisation objectives. There are practical and business benefits that accrue from utilising property asset management arrangements (National Asset Management Steering Group (NAMS), 2006a). The holistic and long-term view adopted by asset management makes it an efficient approach to property management as it ensures that property assets, which represent a major investment built up over hundreds of years in some cases, continue to deliver the desired services for as long as required. Additionally, the benchmarking of condition and performance, both of which are integral to asset management, promotes innovation and efficiencies (NAMS, 2006a). Furthermore, asset management provides a structured and programmed approach to long-term change. This is necessary because property assets are slow to respond to change due to the long lead-in times needed to create them as well as their illiquid nature. Annual incremental change is therefore insufficient and, as such, it is practically desirable to adopt a strategic approach, which asset management provides (RICS, 2008). An asset management framework also offers business benefits, which include amongst others: improved governance and accountability (Scottish Executive, 2003); enhanced service management and customer satisfaction; improved risk management (NAMS, 2006a); improved financial efficiency; and improved decision-making (Worley, 2000).
Through effective asset management, a public sector organisation will improve its governance and accountability arrangements with regard to its stewardship of property assets. Improvements are possible because the public sector organisation is able to demonstrate to tax payers and those who use its services that these are being managed sustainably and delivered effectively and efficiently. Improvement in accountability with regard to resource use is also enhanced by having in place and publishing financial and performance indicators (NAMS, 2006b; Scottish Executive, 2003). Furthermore, associated asset management techniques provide the basis for evaluating and balancing service, price and quality trade-offs. Having performance indicators in place ensures that public sector organisations have the ability to benchmark asset management performance results against other or similar public sector organisations (Worley, 2000). Benchmarking ensures that the organisations deliver continuous improvement in their asset management arrangements through performance management. Asset management activities are undertaken in a systematic and coordinated manner. According to...
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