Академический Документы
Профессиональный Документы
Культура Документы
July 2015
CONTENTS
ABBREVIATIONS AND ACRONYMS
EXECUTIVE SUMMARY
Page
iii
1
3
3
3
3
4
4
4
7
7
8
8
8
9
11
15
18
20
20
21
22
23
4
11
13
14
14
15
16
19
ii
Board of Assessment
DSLR
LAA
LAVIMS
LIU
MHL
MOFED
MOLG
MPI
MFRS
MYS
NAO
NDU
PBB
PPC
RDA
iii
iv
EXECUTIVE SUMMARY
The Ministry of Housing and Lands (MHL) acquires privately owned lands on behalf of
Ministries and Government Departments for construction of roads, drains and other projects 1.
Lands are acquired through private agreements and compulsorily. Compulsory acquisitions
are carried out within the legal framework of the Land Acquisition Act (LAA) 1982, as
amended in 2013.
The objective of this Performance Audit is to assess whether lands acquired by MHL and
vested in Ministries and Government Departments have been used for the intended purposes.
Further, it seeks to establish whether the acquisitions were done on a timely basis and in the
most economical manner. The recording system was also reviewed.
Key Findings
For the past 10 years, MHL had disbursed some Rs 2.2 billion on acquisition of lands for
various Government projects. Several plots of land acquired on or prior to year 2010 have
remained undeveloped. Information on the extent of lands acquired, but not developed
was not readily available as there were no established procedures for Ministries and
Government Departments to give feedback on the current statuses of the lands. Moreover,
it was not clearly defined as who should ensure that lands vested were used on a timely
basis and for the intended purposes.
Prior to year 2010, there was no mechanism in place at the MHL to ascertain that the
requesting Ministries and Government Departments had the required funds for
implementing their projects before initiating acquisition for land. However, MHL has
recently taken initiatives to ensure that the implementing agencies have the necessary
fund for the project at the time of request for land.
As for the plan of the project, MHL is still not ensuring the availability thereof at time of
request. For a few cases examined, the structural designs of the buildings were not yet
completed, and in other cases, the requesting Ministries and Government Departments did
not carry out a proper need analysis of the projects.
For a few cases regarding construction of roads, MHL could not ensure availability of the
lands on time. Hence, Government had to disburse additional funds. This was attributed
to the fact that owner identification was time consuming.
Lands acquired by MHL were not always in the most economical manner. The LAA
provides for the offer of compensation to beneficiaries after the publication of notice
under Section 8 and transcription of the land. However, the time frame to accept or reject
an offer is not mentioned. A beneficiary made a counter claim to the original offer some
seven years later, and MHL had to disburse interest amounting to some 73 per cent of the
compensation payable.
Other projects include construction of stadiums, swimming pools, Fire Stations, and Multipurpose buildings.
The records for lands vested in the selected Ministries and Government Departments kept
at the MHL were incomplete. For instance, several plots of land acquired and vested in
the National Development Unit (NDU) were not found in the database kept at the Land
Information Unit of MHL.
Conclusion
The acquisition of land for Government projects involves significant Governments funds and
impacts on the development of the projects. The timely acquisition of land at least cost is
therefore essential. However, MHL has not always been able to acquire land on a timely basis
and in the most economical manner. A complete database of all vested lands was not
available. Information on their statuses was also not readily available. There are several plots
of land that have been acquired, but have not yet been developed.
Key Recommendations
A mechanism should be put in place at MHL to ensure that land acquired is used for the
intended purposes on a timely basis. Ministries and Government Departments should be
requested to submit regular feedback on implementation of projects. In this respect, the
role and responsibilities of MHL and requesting Ministries and Departments need to be
clearly defined
Recently, MHL has taken initiatives to ensure that the implementing agencies have the
necessary fund for the project at the time of request for land. This measure could be
extended to include availability of design of the project. In that respect, a consultative
platform needs to be set up by the requesting Ministry/ Government Department bringing
in all stakeholders so that there is a constructive dialogue and everyone knows his role,
responsibilities and obligations. This will minimise any future unproductive vesting.
Time lag for reply from beneficiaries also needs to be established
MHL should ensure that all vested lands are properly recorded. The land acquisition
system needs to be automated. A complete database on their current statuses should be
maintained.
CHAPTER ONE
INTRODUCTION
During the past years, with the increasing public investment in the fields of education, road
infrastructure and sports in particular, the demand for land from Ministries and Government
Departments has increased considerably. State Lands that may be used for development are
becoming scarce and Government has to acquire privately owned lands.
1.1 Motivation
The National Audit Office (NAO) has often reported that several plots of land acquired by
the Ministry of Housing and Lands (MHL) on behalf of Ministries and Government
Departments were not developed. Further, adverse press reports have highlighted
Government projects kept in abeyance since the year 2005, thus indicating non achievement
of the objectives set.
For the past 10 years, the expenditure on land acquisition has been constantly increasing to
reach a cumulative amount of some Rs 2.2 billion. For the period 2009 to 2013, more than 80
per cent of the expenditure was meant for projects relating to construction of roads.
In view of the sum spent and the adverse press reports, the NAO carried out this Performance
Audit on Acquisition and Use of Lands for Government Projects.
1.3 Auditee
The auditee is MHL as it is responsible to acquire privately owned lands before vesting them
in Ministries and Government Departments for implementation of projects.
Sections
6
8(2) & 8(3)
Brief
Issue of investigation notice in respect of land likely to be
compulsorily acquired
Publication of notices
14(1)
Compensation to beneficiaries
18(6)
Source : LAA
1.7.2 Sampling
A sample of acquisitions for the implementation of road projects for the Road Development
Authority (RDA) over the period 2009 to 2013 was selected.
Acquisition and Use of Lands for Government Projects
Another sample of plots of land acquired and vested on or prior to year 2010 in the following
selected Ministries and Government Departments was also referred to in view of taking
cognizance of their planning and recording systems, as well as their statuses as of February
2015.
Ministry of Local Government and Outer Islands (MOLG)
Mauritius Fire and Rescue Service (MFRS)
National Development Unit (NDU)
Ministry of Youth and Sports (MYS)
CHAPTER TWO
DESCRIPTION OF THE AUDITED ACTIVITY
This Chapter describes the role and responsibilities of MHL and the activities of the other key
players in relation to acquisition of land. It also briefly describes the responsibilities of selected
Ministries and Government Departments for requesting lands from MHL and those of RDA
regarding acquisition of lands for construction of roads.
With a view to coming up with a complete register of all private and State Lands throughout
the country, MHL acquired in December 2008, the Land Administration and Valuation
Information Management System (LAVIMS). It consists of four components, and has two
main objectives, namely establishing an efficient and cost-effective land administration and
online information register, and to set up a general valuation roll of some 350,000 residential
properties, private or State owned. The System, which had cost some Rs 600 million in
December 2008, would be a powerful web-based information management system to allow
efficient interaction, retrieval and analysis of the data by all its potential stakeholders.
2.6 Project Plan Committee
A Project Plan Committee (PPC) was set up in the Ministry of Public Infrastructure and Land
Transport in 2009. Its main objective is the assessment of the infrastructure needs of the
various sectors of the economy. Its functions include the examination of the feasibility and
cost benefits of infrastructure project proposals. All investment proposals above Rs 25
million, excluding cost of land, have to be reviewed by the PPC, in consultation with
implementing agencies and other concerned Public Bodies prior to the development of a
pipeline of projects. An Investment Project Proposal from the requesting Ministry and
Government Department estimated at below Rs 25 million does not require the approval of
the PPC, but are submitted to the Ministry of Finance and Economic Development (MOFED)
for approval.
10
CHAPTER THREE
FINDINGS
This Chapter describes the findings related to land acquisitions and use, recording and monitoring
mechanisms at MHL and the selected Ministries and Government Departments.
Project
Funding
Ministry
No. of Lots
Acquired
Request
Date
Transcription
Date
Time
Taken
MPI - NDU
28.06.11
13.12.12
1 year 5
months
MPI - RDA
35
26.02.10
28.06.11
1 year 4
months
MOLG
19.11.07
15.05.12
4 years 5
months
Construction of Cremation
Ground at Clavet
MPI - NDU
30.01.03
29.03.13
10 years 2
months
Incineration Project at
Beau Champ
MPI - NDU
23.05.12
18.03.13
9 months
Construction of Football
Ground at Quatre Bornes
Widening of Belle Vue
Road (B22) from Petite
Retraite to Laventure
11
12
No. of
Days
Project
Phoenix-Beau Songes Link Road
Additional Costs
Rs
60
2,433,378
123
12,603,815
35
3,884,094
67
4,829,857
Schoenfeld Bypass II
63
4,941,482
14
408,748
Goodlands Bypass
Source: RDA
Publication of Corrigenda
Compulsory acquisition under the LAA involves the publication of Notices by MHL as
required under Sections 6 and 8. However, for construction of roads, it is the practice for
RDA to carry out the preliminary survey of ownership on site, and title deed searches at the
Registrar Generals Department, and also to prepare Notices.
Owner identification is time consuming. At times, after the notices were issued, errors were
detected mainly regarding ownership of land and which required corrigenda to be published.
These corrigenda involved use of additional resources in terms of money and take additional
time for the republication of notices. In a few cases, MHL had to send several reminders for
correction and resubmission of notices for finalizing acquisition procedures (for example in
the case of the project for the Construction of Bidirectional Lanes from St Jean to Pont Fer,
and enlargement of Belle Vue Road B22).
During an examination of a sample of projects, several cases were noted where corrigenda
were published as illustrated in Table 4.
13
Project
No. of
Portions
332
No. of
Corrigenda
23
256
13
Triolet Bypass
205
17
55
15
107
39
Project
Enlargement of Pamplemousses-Grand
Baie Branch Rd
Construction of Triolet Bypass
Verdun-Trianon Link Rd
Construction of Bidirectional Lane from
St Jean to Pont Fer
Request for
Assessment
Reply Date
Months
Taken
07.12.10
19.05.11
Aug/Sep 09
2-9
Jan 11/Apr 11
Sep 11/July 12
8 - 15
Aug 10
April 12
14
Project
Phoenix Beaux
Songes Link Road
Verdun Trianon
Link Road
Port-Louis Ring
Road
Port Louis
Plaisance Dual Way
No. of
Days
Compensation
Rs
Interest
Rs
05.01.10
21.04.11
472
22,000,000
2,275,945
11.04.11
05.10.12
543
35,200,000
4,189,282
16.07.10
03.08.11
384
18,000,000
1,514,959
19.07.11
25.05.12
311
1,180,000
80,434
MHL contended that these interests were paid because the owners were deprived of their
rights on the acquired lands. However, the longer the time taken to pay the compensation, the
higher will be the interests. LAA does not provide for a time frame so as to reduce to a
minimum the interests.
15
Vesting Date
MOLG
MFRS
01.09.1999
MYS
Purpose
Fire Station at Montagne Blanche
Extent
(m2)
4,010
Cost
(Rs million)
1.2
06.05.2003
4,221
4.5
19.01.2005
Gymnasium at Lallmatie
9,554
5.7
15.04.2002
8,572
2.2
09.03.2010
8,006
1.3
As indicated in Table 7, these lands were acquired and vested in the Ministries and
Government Departments on or before year 2010, and as of February 2015 they were not yet
developed. This was attributed to unavailability of funds to implement the projects.
16
17
18
Extent (m2)
Vesting Date
10,552
18.01.13
1,913
10.05.13
11,448
06.06.12
584
01.07.13
Source: MPI-NDU
19
20
CHAPTER FOUR
CONCLUSION AND RECOMMENDATIONS
Several plots of land acquired and vested in the selected Ministries and Government
Departments on or prior to year 2010 were still not developed. Acquisitions were made
without a firm commitment to implement projects. Hence, the objectives set have not been
achieved. This has resulted from the absence of a proper mechanism at MHL to ensure that
the requesting Ministries and Government Departments had funds and structural designs
available at the time of requests. For few cases regarding construction of roads, MHL could
not ensure availability of the lands on time and in the most economical manner. Records of
vested lands and their current statuses at MHL were incomplete.
In the light of the audit findings and conclusion, hereunder are the recommendations
4.1 Land Acquisition
4.1.1 Funding
Consideration may be given for the requesting Ministry and Government Department to make
provision for the payment of compensation to land owners in their respective budgets. The
latter will be accountable for the implementation of the project, including the acquisition of
land. MHL will effect payment on receipt of a Departmental Warrant from them.
21
22
confirmed that MOFED would disburse the funds. A consultative platform needs to be set up
by the requesting Ministry/ Government Department bringing in all stakeholders so that there
is a constructive dialogue and everyone knows his role, responsibilities and obligations. This
will minimise any future unproductive vesting.
As regards lands vested and which have so far not been developed, Ministries and
Government Departments should liaise with MOFED as soon as possible to ensure that funds
would be disbursed for implementing the outstanding projects.
Land acquired and vested should be utilized within reasonable time. If not used, MHL should
be notified so that the lands can be retrieved and vested in other Ministries and Government
Departments to ensure their optimum economic use.
23
July 2015
CONTENTS
Page
ABBREVIATIONS AND ACRONYMS
iii
1
EXECUTIVE SUMMARY
CHAPTER ONE: INTRODUCTION
1.1 Government Office Accommodation
1.2 Motivation
2.2 System Description for Renewal of Lease Agreement and/ or Renting of Additional
Space within Same Building
2.3 Responsibilities and Functions of Stakeholders
12
15
19
4.2 Recommendations
19
TABLES
1 International Benchmarking and Audit Criteria
10
11
APPENDIX
Clearances from Stakeholders before awarding Contract to Lessor
21
ii
GOMU
MOFED
MOHQL
MPI
MFRS
ESD
NAO
OAS
OSHA
PMO
PPA
PPO
TMRSU
TAS
iii
iv
EXECUTIVE SUMMARY
Government Office Accommodation (GOA) portfolio includes both owned and leased
premises and is considered a key factor in supporting the general administration and
operations, including client service functions in Ministries/ Government Departments. The
total expenditure on rental of office accommodation for the years 2010 to 2014 was some
Rs 2.8 billion.
Key Findings
Rental of office accommodation remains a significant annual financial commitment for
both Ministries/ Government Departments. Most of the Government office
accommodation is concentrated in the region of Port Louis, where Government leases its
different office spaces located in some 50 privately owned buildings with an annual
commitment of some Rs 380 million in year 2014, that is, 76 per cent of the total
expenditure on lease in Mauritius.
Cost per employee and occupancy rate are two metrics used to measure cost efficiency.
An analysis of the data available for a sample of Ministries and Government Departments
showed that there are significant variations in these metrics.
Government decided in year 2000 to rationalize the use of office space for public services
through the setting up of a Unit, namely, the General Office Management Unit (GOMU)
under the aegis of the Ministry of Public Infrastructure, and Land Transport (MPI).
However, this Unit has not been able to take off. As of date (January 2015), MPI is still
committed to implement Governments decision to set up GOMU.
Government in the past came up with some construction projects, mainly to cut down
expenditure on rent, to relocate some offices away from the City in order to ease the then
growing traffic problem in Port Louis, and to decentralise the economy and business.
However, these projects did not take off although provisions for some of the projects
were made in the Capital Estimates.
Government took the following initiatives to rationalise office accommodation, but was
unsuccessful in
Conclusion
The cost of leased Government Office Accommodation is still significant, and is likely to
increase in future. The absence of an office accommodation policy and the current practice of
leasing office space do not help Ministries and Government Departments to be cost efficient.
There have been several initiatives taken by Government but these were not successfully
implemented.
Key Recommendations
A long term GOA plan should be developed to rationalize office accommodation. The
plan should have clear objectives, strategies and measurable standards, along with
appropriate time frame for the implementation of the strategies.
Government may consider a coordinated, whole-of-Government approach in the planning
and management of GOA. This should be accompanied with clearly defined role and
responsibility for the development of appropriate policy and strategies. All potential
strategies must be evaluated as a whole rather than separately in order to identify a set of
preferred strategies.
Guidelines or directives on different aspects of office accommodation, such as area
occupied per employee and the rental cost per employee could be developed and
communicated to all Ministries/ Government Departments. A comprehensive database on
office accommodation can help in the development of these guidelines. The database can
include information, such as proportion of office owned and rented, location of buildings,
rates, number of employees housed and details of lessors. A database of all potential
landlords willing to lease their buildings could also be kept for greater efficiency.
All the above recommendations can be achieved by putting in place a mechanism that will
oversee all the activities related to Government Office Accommodation.
CHAPTER ONE
INTRODUCTION
1.1 Government Office Accommodation
Government Office Accommodation (GOA) portfolio includes both owned and leased
premises, and is considered a key factor for supporting the general administration and
operations, including client service functions, in Ministries and Government Departments.
1.2 Motivation
The rental of office accommodation which is a major expense for Government has been
going up constantly over the years. Since year 2000, Government decided to rationalize the
use of office space for public services by taking several initiatives, but was not successful.
On the other hand, the National Audit Office (NAO) conducted two Special Reviews on
rental of GOA in 1994-95 and 2005-06 respectively. Both reviews arrived at the same
conclusion that Government expenditure in connection with rental was on the high side as
Ministries and Government Departments were disbursing large amount of funds on rental of
office building.
This has prompted NAO to carry out this Performance Audit on GOA.
Country
Policy
Papers
Occupancy
Rate per
Employee
Whole of
Government
Approach
Interior
Design
Policy
New Zealand
Canada
United Kingdom
New South Wales
(Australia)
South Australia
Western Australia
Victoria (Australia)
Queensland
(Australia)
Database
Centrally
Managed
Space
CHAPTER TWO
GOVERNMENT OFFICE ACCOMMODATION IN MAURITIUS
This Chapter describes the process for renting office space and renewing lease agreements, the
roles and functions of key players and the audit criteria used in pursuing the audit. It also
examines the expenditure incurred by Government with respect to GOA for the past five years.
2.2 System Description for Renewal of Lease Agreement and/ or Renting of Additional
Space within Same Building
In case, a Ministry/ Government Department wishes to renew the lease for a further period or
to rent additional space within same building, clearances must be sought from the Public
Bodies which are listed below:
MoFED - on the availability of funds, that is, the rental cost is met either within the
Ministrys budget ceiling or additional funding is requested from MoFED
Valuation Real Estate Consultancy Services - on the quantum of rent payable
CHAPTER THREE
FINDINGS
This Chapter analyses the rent paid for office accommodation. It describes the initiatives taken,
as well as constraints faced by Ministries/ Government Departments in acquiring, utilising and
rationalizing office space in view of minimizing cost and delivering better services.
Year
Rs
2010
514,334,348
2011
537,338,991
2012
573,325,860
2013
597,963,030
2014
630,836,639
2,853,798,868
For year 2014, out of a total amount of some Rs 631 million spent, some Rs 501 million were
for office accommodation in Mauritius. This is likely to increase in the future.
One of the major factors that drive cost is the location of the offices. Our analysis of
expenditure for the year 2014 showed that most of the Government office accommodation is
concentrated in the region of Port Louis. Government leases its different office spaces located
in some 50 privately owned buildings in Port Louis, with an annual commitment of some
Rs 380 million, that is, 76 per cent of the total expenditure on office accommodation in
Mauritius. The remaining 24 per cent of the total amount was spent on office accommodation
scattered over the island. Most of these buildings have been rented since a long time, with
successive renewal of contracts, some for more than 10 years. At present, each Ministry and
Government Department manages its own office accommodation. This system has
encouraged the practice for most of the Ministries and Departments to locate in Port Louis.
Cost per employee is one of the metrics used to measure the cost efficiency.
An analysis of a sample of rent paid by Ministries and Government Departments showed that
there are significant variations in the cost per employee as shown in the Table 3.
Table 3 Annual Cost per Employee Year 2014
Annual
Lease Costs
(Rs)
No. of
Annual Cost
Employees per Employee
(Rs)
9,493,428
76
124,913
1,089,851
15
72,655
16,200,000
163
99,386
1,234,800
14
88,200
2,115,816
46
45,996
4,836,624
22
219,846
10
Table 4 Occupancy Rate per Employee at some Ministries and Government Departments
Ministry /
Department
Location
Space Rented
(sq metre)
No of
Employees
Occupancy Rate
per Employee
(sq metre/staff)
Electoral
Commissioners
Office
2,402
76
32
Ministry of Gender
Equality, Child
Protection and
Family Welfare
1,858
126
15
Newton Tower
752
32
23
Ministry of
Fisheries
Trade and
Marketing Center
(Competent
Authority)
272
16
17
Trade and
Marketing Center
(One Stop Shop)
186
15
12
1,028
87
12
4,831
198
24
LIC Centre
Ministry of Labour, Victoria House
Industrial Relations,
Employment &
Training (Labour
Division)
Source: NAO Analysis
11
Government has taken several initiatives to address the problems of rising cost of renting
office space, but has not been successful in implementing same. These are described below:
12
13
Database
A database generating meaningful information would operate as a management tool to assist
in decision making.
In year 2010, MOFED and MPI, through surveys, initiated action to set up a database of all
buildings, rented and owned, forming part of GOA. The database was considered necessary
in order to better manage office space in the public sector. At the request of MPI, the Central
Information System Division, in year 2010, finalized the development of an Office
Accommodation System (OAS) to accommodate data on office accommodation. Moreover,
in April 2013, MoFED intended to set up a database for potential bidders in respect to rental
of office spaces. The aim was to ensure transparency and a reasonable time frame for the
procurement.
MoFED and MPI have in their custody a list of buildings rented and owned by Government,
including the area occupied, number of employees and rent paid by each Ministry and
Department as of 2011 and 2012 respectively. The responsibility of keeping database was
assigned to GOMU. However, as at time of audit (January 2015), neither a database of
potential landlords nor of office space rented and owned by Government has been
established. The OAS developed in year 2010 at the request of MPI has never been put in use
as GOMU has not been set up.
Consolidation of Ministries and Government Departments Under one Roof
In year 2010, PMO and MoFED took laudable initiatives separately towards regrouping
different Divisions of the same Ministry under one roof. PMO, in August 2010, carried out a
survey. The aim was to regroup different divisions of the same Ministries, which are scattered
in different buildings, under one roof, while at the same time making maximum use of
Government owned spaces. In December 2010, MoFED, also proposed to develop
appropriate policy measures to rationalize office space used by Ministries and Government
Departments with a view to bringing efficiency gains and centralizing as far as possible
different Units of same Ministry under one roof.
Attempts have been made in this direction by both MOFED and PMO. However, the idea of
consolidation did not materialize.
Procurement Regulations on Office Space
The Public Procurement Act (PPA) was amended in December 2012 whereby office
accommodation no longer falls under its purview. Subsequently, in January 2014, the PPO
prepared procurement regulations on rental of office space. As of date (March 2015), the
regulations have remained at draft stage. Pending the finalisation of the draft, PPO has since
January 2013 been guiding Ministries and Government Departments on a case to case basis
on procurement of rental of office space.
Standard Occupancy Rate per Employee
A standard occupancy rate per employee helps to reduce rental costs and lower expenses for
office fit out, electricity, security and maintenance. Prescriptive space allocation standard
maximises an agency's capacity to determine its own internal office layout requirements. By
14
calculating accurate occupation density, prime consideration is given in determining the cost
of offices and the potential for savings.
In year 2011, MPI prepared a draft guideline on standard space requirement for various
grades of officers. As at time of audit (January 2015), the draft has not yet been finalized. In
other countries, standards set form part of policy paper, and this is considered in carrying
needs assessment when office space is required.
15
Hot-desking - Desks that are shared, that allow an organisation to increase the number of people supported by
a given building.
16
17
18
CHAPTER FOUR
CONCLUSION AND RECOMMENDATIONS
4.1 Conclusion
Office accommodation supports operations in all Ministries/ Government Departments and is
a key component of the Governments objective to make optimum use of limited resources to
provide core services.
The cost of leased Government Office Accommodation is still significant, and is likely to
increase in future. The absence of an office accommodation policy and the current practice of
leasing office space do not help Ministries and Government Departments to be cost efficient
in this area. There have been several initiatives taken by Government to put in place an
adequate mechanism to ensure office accommodation is acquired and use in a rational
manner. However, these initiatives were not successfully implemented due to the absence of
a whole of Government approach, strategy and long term plans. Also, the initiatives taken did
not form part of a policy document compared to some other foreign countries.
4.2 Recommendations
4.2.1 Long Term Planning
A long term GOA plan should be developed to rationalize office accommodation. The
developed GOA plan should have clear objectives, strategies and measurable standards,
together with appropriate time frame to undergo changes. Means of improving on these
developed standards could be found over time, for example, reduction in the area occupied
per employee across Ministries/ Government Departments, and reduction in accommodation
cost per employee.
19
20
Appendix
Clearances from Stakeholders before awarding Contract to Lessor
Stakeholders
Responsibilities
Ministry of Health
and Quality of Life
(MoHQL)
MoHQL gives clearances for renting office space for the purpose of
accommodating staff on the following conditions:
Continuous and potable water supply are provided
Building is adequately lighted and ventilated
Provision for the proper collection and disposal of solid waste is
made,
Necessary clearances
authorities.
are
obtained
from
other
relevant
Police Force
Traffic Management
and Road Safety Unit
(TMRSU)
Ministry of
Renewable Energy
and Public Utilities Energy Services
Division (ESD)
ESD will ensure that the right connected load of electricity is made
available for all items of equipment and electrical appliances that the
Ministry/Government Department wishes to utilise. It also provides
clearance on condition that the Ministry/Government Department
ensures that all final circuits are being protected by residual current
devices.
21
Appendix (continued)
Stakeholders
Responsibilities
Ministry of Public
Infrastructure and
Land Transport (MPI)
MPI carries out inspection of the building to ensure that there are no
structural defects, that it is sound and fit for renting, and partitioning
and other relevant works are completed.
Ministry of Finance
and Economic
Development
(MoFED)
22
July 2015
CONTENTS
LIST OF ABBREVIATIONS
Page
iii
EXECUTIVE SUMMARY
5
5
5
5
5
6
6
7
8
1.1 Background
1.2 Motivation
1.3 Audit Objective
1.4
1.5
1.6
1.7
1.8
Audit Scope
Audit Design
Audit Methodology
Assessment Criteria
Data Validation Process
2.1
2.2
2.3
2.4
2.5
2.6
Maintenance
Maintenance of Schools at MEHR
Other Key Players and their Activities
Identifying Maintenance Needs, Planning and Monitoring
Process Description
Budgeting and Funding
4.1 Conclusions
4.2 Recommendations
9
9
9
10
11
11
15
17
17
18
18
19
19
22
24
24
27
33
37
39
39
40
Page
FIGURES
1 Audit Questions
2 Reporting Leakages to Waterproofing Contractor
6
36
TABLES
1
2
3
4
5
6
7
8
9
10
11
12
10
13
14
20
21
21
23
23
28
29
35
36
APPENDIX
Appendix
45
ii
ABBREVIATIONS
DC
District Contractors
GS
IMU
IoW
Inspector of Works
MEHR
MPI
MU
NAO
PPA
PPO
PTA
SSS
TO
Technical Officer
WO
Work Order
iii
iv
EXECUTIVE SUMMARY
In line with the Ministry of Education, Human Resources, Tertiary Education and Science
(MEHR) objective to achieve a quality education for all, it is imperative that the quality of
learning environment and infrastructure be of a good standard in educational institutions.
The Ministry incurred some Rs 300 million on maintenance of School Buildings during the
period 2012 to 2014.
Reports from the Ministry of Public Infrastructure, Land Transport and Shipping (MPI),
indicated that defects identified in a few School Buildings were attributable to lack of
maintenance after construction stage, among others. The National Audit Office (NAO), in a
previous Performance Audit, also, found that repairs and maintenance of School buildings
were carried out as and when required. The lack of proper maintenance in Schools is a major
issue as:
value for the money invested in constructions is not being obtained,
the benefits of the buildings are not being reaped over the entire duration of their lives, and
inconvenience to the School community is caused.
It is against this background that the NAO carried out this Performance Audit to assess
whether the MEHR has an appropriate system to maintain its School buildings in a usable
condition. Processes and practices run and operated by the Zones Maintenance Units (MU),
Infrastructure Management Unit (IMU) and the MPI were examined. The audit focussed on
building infrastructures. Mechanical and electrical systems, equipment, furniture and grounds
were excluded.
Substantial grants were paid to Schools Parent Teacher Associations (PTA) and Zone
Directorates approved maintenance projects funded by same. However, a system for their
supervision at Ministrys level to ensure that these jobs meet a minimum standard was not
in place.
The Ministry is not doing enough to make an optimum use of its available labour
resources for maintenance activities. No benefits were derived from part of labour hours
paid for at Zone level.
For IMU and MPI works, proper agreements were drawn with Contractors. However,
compliance with standards and specifications for works, appropriate level of
workmanship, and, thereby, quality of works were not sufficiently ensured through an
adequate level of supervision on most jobs examined. Insufficient documentation during
the execution phase of some of IMU and MPI works was a recurrent feature.
The procurement system for materials, works and services is well established, followed
and that allowed resources to be acquired at the least cost by the Ministry. The late or
non-appointment of MPIs DCs, in recent years, had a negative effect. Priority jobs could
not be carried out and available funds for these jobs could not be spent and lapsed.
Guarantee Certificates for waterproofing works examined did not comply with
Proper plans that allow for monitoring and measurement of performance should be
drawn. Any variance between actual time taken (worked out from Job Sheets) and
preset time on plan should be investigated.
Monitoring and supervision of works should be adequately carried out so that tasks
are fully completed to time, at reasonable cost and be of acceptable quality.
The Ministry should monitor the implementation of the plan to ensure maximum use
of available man hours. It may also consider having recourse to Task Work, as
described in the Pay Research Bureau (PRB) Report.
A system to monitor the quality of works undertaken by PTAs should be set up.
CHAPTER ONE
INTRODUCTION
1.1 Background
School buildings are considered one of the most important assets of the Ministry of
Education, Human Resources, Tertiary Education and Science (MEHR), and it is important
that they are properly maintained. Over the years, the Ministry has invested significantly in
the maintenance of these buildings. Good practices on assets management involve the
planning, acquisition, maintenance and disposal of assets with due regard to economy,
efficiency and effectiveness, as well as full compliance with all applicable Government
regulations. In the Performance Audit at the MEHR carried out in 2009, the different aspects
on planning and construction of School buildings1 were examined. This Report examined the
system on the Maintenance of Government Primary and Secondary School Buildings.
1.2 Motivation
Every year, maintenance of Schools costs the Ministry some Rs 100 million.
Reports, from the Ministry of Public Infrastructure, Land Transport and Shipping (MPI),
identified defects in a few School Buildings. These were attributed to inadequacies during
construction stage and lack of maintenance thereafter. In the previous Performance Audit
Report, mention was made that repairs and maintenance of School buildings were carried out
as and when required.
It is against this background that the National Audit Office (NAO) carried out this
Performance Audit on the Maintenance of Government Primary and Secondary School
Buildings.
The Performance Audit Report, Efficiency and Effectiveness of the School Building Programme was issued
in 2010.
The period under review covered the years 2012 to 2014, and status of selected projects
examined were followed up to April 2015.
Have appropriate
procurement
procedures and
practices been
applied to
mobilise
resources?
Have
maintenance
activities been
adequately
supervised and
monitored, and
contracts
properly
managed?
Are
maintenance
personnel
resources of
the Ministry
being
efficiently
used?
A number of literatures on maintenance contain almost similar practices. The main documents consulted were:
Guidelines for Physical Asset Management issued in 2006 by the then Management Audit Bureau (now Office
of Public Sector Governance) and Maintenance Management Framework, Queensland Government, Australia.
CHAPTER TWO
DESCRIPTION OF THE AUDITED ACTIVITY
This Chapter provides background information and description of the system for maintaining
Government School buildings.
2.1 Maintenance
British Standard 8210 defines maintenance as the combination of all technical and
administrative actions intended to retain an item in, or restore it to a state in which it can
perform its required function(s). The two processes mentioned are retaining which refers to
preventive maintenance works carried out in anticipation of failures, and restoring which
are corrective works carried out after the failures.
Maintenance can be subdivided into two basic categories, with associated subcategories as
follows:
Level
School
Zone MU
IMU
Nature of Work
Minor (e.g. replacing a
defective tap or a broken
window pane)
Minor repairs (e.g.
replacement of doors,
windows, painting, tiling and
fencing works)
Value
Small (met from
Imprest or PTA funds)
Above Rs 500,000
(with special approval
from IMU)
Complex
Up to Rs 500,000
Up to Rs 500,000
Undertaken by
School personnel (e.g.
Caretaker) or private
parties
MU staff comprising
Inspector of Works (IoW),
Assistant Inspector of
Works (AIoW), Masons,
Carpenters, Painters,
Plumbers, Welders,
Electricians and other
Tradesmen, under the
supervision of Technical
Officers (TO)3
Private Contractors under
supervision of TO
Private Contractors under
supervision of IMU
Engineers and TO
Source: MEHR
In the four Zones, there are eight TOs, four IoWs, four AIoWs and some 100 Tradesmen. The TO surveys
School Buildings, prepares scope of work and advises the Zone Director on maintenance and infrastructural
issues.
4
The Rs 50 million threshold allowed under the Public Procurement Act generally applies to new constructions
or major upgrading and not to maintenance works. The IMU has, in recent years, implemented maintenance
projects costing at most Rs 600,000.
10
11
used by the Zones, but basic information, such as School name, rotation number, detailed
description of work to be performed, and brief report on issue/survey/project attended to are
included. Tradesmen and Assistant Tradesmen are required to fill in Job Sheets as a record of
their daily work performed. Job Sheets show work performed, attendance and certification (of
work done) by School management, among others.
Infrastructure Management Unit
In order to implement maintenance projects falling under its responsibility, the IMU has two
Civil Engineers, assisted by TOs. The Unit holds discussions with School management,
carries out surveys, prepares scope of works, drawings, specifications, cost estimates and
bidding documents. Works are carried out by selected private Contractors.
After selection of Contractors, contract documents showing start and completion dates, value
(including Contingency amounts), description and specifications for the work(s) are drawn. 5
Specifications used are the Government of Mauritius Standard Specifications issued by MPI.
These specifications lay down the minimum standards to be observed for materials used and
workmanship during execution of the works. At each step during execution, clear technical
requirements are also specified.6 In addition to the MPI standard specifications, the IMU also
includes its own specifications by customising the former.
Works start following a formal handing over of the site. During the meeting, important
contract requirements are highlighted. The Contractors obligations with regard to submission
of Compliance Certificates for all materials to be used, concrete mix which he intends to use
and concrete cubes test results, if any, are stressed. The Contractor is, also, requested to keep
on site at all times a Site Instruction Book (in triplicate copies), among others. Frequency of
site meetings (fortnightly) and visits (weekly) is also set.
A good practice is the maintenance of documentation on each job, from commencement to
final acceptance of the works. This includes contract documents, minutes of site meetings,
Instruction Sheets, invoices and Payment Certificates, and Partial and Final Taking Over
Certificates, among others. Contract management, monitoring, supervision of works, payment
certification, penalty application, practical and final taking over of works are all performed
by the Engineers and TOs of IMU.
Ministry of Public Infrastructure
Contractors, commonly known as District Contractors (DCs) selected by MPI, enter into
contract with the latter for the Maintenance, Repairs and Rehabilitation of Government
Buildings.7 Contract documents that follow the model recommended by the PPO show start
and end dates, description, specifications8 and rates for each item of work, and drawings.
General Conditions of Contract include those issued by the PPO and the Conditions of
5
12
Contract (First Edition 1999) issued by the Federation Internationale des IngenieursConseils (FIDIC)9.
Maintenance works to be carried out by the Contractors are indicated on Works Orders (WO)
which are signed by representatives of MPI and the Contractor. The steps leading to the issue
of this document and MPIs intervention during the execution phase up to final handing over
are shown in Table 2.
Table 2 Steps Leading to Issue of Works Order and MPIs Intervention until end of Works
Step
Request for maintenance works from
Ministry
MPI meets Ministrys representatives to
discuss scope of works, and carries out
survey and prepares cost estimate.
Confirmation of availability of funds by
Ministry
Works Order (WO) issued
Remarks
At the beginning of the year, the Ministry sends to MPI its list of
priority projects. To undertake each project (on the list or a new
one), a request needs to be made.
Ministrys representatives are IMU and School management
Source: MPI
FIDIC, the International Federation of Consulting Engineers, represents globally the Consulting Engineering
industry. It promotes the business interests of Consulting Engineering organisations, consistent with the
responsibility to provide quality services for the benefit of society and the environment.
13
site meetings, Instruction Sheets, invoices and Payment Certificates, Partial and Final Taking
Over Certificates, among others.
The MPI has a practice to allocate the monitoring and supervision of works to a team of
Engineer and Technical Staff for an average of seven concurrent projects. According to MPI,
this ensures that the workload is not in excess of what its labour force can handle adequately.
2.5.2 Procurement
Procurement for goods and services for maintenance works is carried out at different levels.
Different procurement methods are used. A brief description of the process is at Table 3.
Table 3 Procurement Process at Different Levels
Level
Procurement Method
Remarks
School
Direct Procurement
PTA
Direct Procurement
Direct Procurement
Zone MU
Each Zone has a Procurement Section. Quotations/bids are evaluated by the Zone
Tender Committee. Letter of Awards are issued by the Procurement Section and
contracts are entered with the Zone Directorate.
IMU
Restricted Bidding
Open Advertised
Bidding
The CPB vets bidding documents and notices submitted to it by MPI, receives and publicly
opens bids, selects persons from its list of qualified evaluators to act as members of a Bid
Evaluation Committee, oversees the examination and evaluation of bids, reviews the
recommendations of the Bid Evaluation Committee and approves the award of the contract.
Source: MEHR
10
For each good and service valued between Rs 20,000 and Rs 100,000, three quotations are sought.
The CPB is a body corporate established under the Public Procurement Act, responsible for the approval of
award of major contracts by Public Bodies.
11
14
Funds may be reallocated between Zone Directorates and IMU as and when the need is
felt during the year.
(h) Maintenance expenditures for works carried out by MPIs DCs are mainly met from
Budget Item Upgrading of Schools.
15
16
CHAPTER THREE
FINDINGS
This Chapter describes the findings on whether the Ministry has an appropriate system for
maintaining School Buildings to time, cost and quality. Highlights of the findings precede the
relevant Sections.
Schools visited showed several infrastructural problems. Cracks and leakages were the
most common.
Infrastructural problems noted were widespread in the Zones. Maintenance done was
mainly corrective.
Records kept on infrastructures were not adequate for planning and decision making on
maintenance.
Annual maintenance plans were not drawn and monitoring of works was inadequate.
More than 50 per cent of the prioritised works to be carried out by Zones were still
outstanding at year end.
Funds available were not fully used.
17
12
Maintenance Management Framework of the Department of Housing and Public Works, Queensland
Government, Australia (www.hpw.qld.gov.au)
18
However, the above exercise is not carried out in a planned manner by the Ministry and is
insufficient to provide a periodic assessment of the condition of the buildings and maintain
updated records on their conditions.
3.5 Budgeting
Budget proposal for maintenance prepared by the Ministry was not based on a realistic
calculation of the level of funding needed to maintain its School buildings. Only rough
estimates were worked out for priority lists of works guided by previous years expenditures,
spending capacity and ceilings set by the Ministry of Finance and Economic Development for
inclusion in budget proposals.
19
Funds budgeted under Items Maintenance of schools and Upgrading of Schools in recent
years were not fully used as shown in Table 4.
Table 4 Funds Available and Spent (all four Zones)
Year
Maintenance of Schools
Available**
Spent
%
Rs million
Rs million
Unspent
Upgrading of Schools*
Available**
Spent
%
Rs million
Rs million Unspent
2012
83
76
134
107
20
2013
70
67
191
131
31
2014
81
67
17
158
140
11
Source: MEHR
*Excludes Primary School Renewal Project (PSRP) and Grants to PTA.
** After reallocations
Maintenance works financed from Budget Item Maintenance of Schools were those carried
out mainly by Schools, MU and IMU. Those financed from Upgrading of Schools were
mostly executed by DCs. Maintenance works at Zone level also included refurbishment of
classrooms in Primary Schools under the Sankor Project.13
Since 2011, works under the Sankor Project comprised wall repairs/plastering, painting,
tiling, burglar proofing, as well as electrical works undertaken by the Energy Services
Division of MPI. These works were not included in the Zones priority lists. A significant
proportion of funds was spent on these works. With the reduced level of each Zones funding
and with reallocations, other maintenance works were executed. Relevant figures for 2014 are
in Table 5.
As of end of September 2014, only Rs 398,000 were available for maintenance activities in
Zone 1, and by year end only Rs 300,000 were utilised. Total funds used at this Zone allowed
41 per cent of prioritised works to be executed. The Ministrys practice to reallocate funds
between Zone Directorates and IMU was not availed of by Zone 1. At least 17 per cent of
funds under Maintenance of Schools were available in the Ministrys vote as at September
2014 (see Table 4 above).
In Zone 2, funds totalling Rs 10.5 million were reallocated. This allowed it to carry important
painting works (costs ranging from Rs 900,000 to Rs 3.5 million) at four Schools that were
not originally included in its priority list. These affected execution of other priority works
which had to be deferred, and caused the proportion of overall unattended works to stand at
76 per cent at year end.
13
The Sankor Project involves equipping all Primary Schools with interactive equipment, as well as
educational software with a view to facilitating the provision of education to children through innovative
technologies. The interactive equipment, white boards and projectors, were donated by the French Government.
Classrooms needed to be adequately prepared to accommodate these equipment and for conduct of classes.
20
Zone 1
Zone 2
Primary
Secondary
Primary
Secondary
11.4
6
-
3.1
2
0.05
5.2
6
1.56
4.1
2
8.96
3.6
3.96
60
66
2.40
2.05
3.60
10.96
0.1
11 out of 25
3 out of 9
10 out of 40
6 out of 26
59
76
Source: MEHR
* List is revised to cater for new works identified/ executed during the year
The late or non-appointment of DCs in 2012 and 2013 meant that several maintenance works
could not be executed. Some 25 per cent of available funds under Upgrading of Schools
were unspent during 2012 and 2013 and lapsed. It is worth mentioning that in mid-2013,
MEHR requested its IMU and MPI to launch tenders, as an alternative measure, to have
Schools repaired and maintained.14 This course was, however, not followed as it involved the
time consuming processes of preparing detailed tender documents for each work, floating of
bids, evaluation and award of contracts. Thus, again, voted funds could not be used.
The under spending of funds in a given year generally results in lesser funds being approved
for the next year. Table 6 shows funds applied for by MEHR and approved by the Ministry of
Finance from 2012 to 2014. Less and lesser funds were allocated.
Table 6: Funds Applied for and Approved under Upgrading of Schools
2012
339
446
107
2013
321
234
(87)
2014
336
237
(99)
Source: MEHR
*Gross amount of Vote Item (includes PSRP and PTA Grants)
14
When no WO can be issued to MPIs DCs, the Public Procurement Act allows recourse to sealed quotations
for works less than Rs 5 million, open advertised bidding for works exceeding Rs 5 million and emergency
procurement on a case to case basis. The request for individual tendering was in respect of 28 waterproofing
works, 17 spalling/cracks repairs and 13 upgrading/repairs of toilets.
21
DCs are appointed for a period of 12 months that will inevitably straddle two financial years
if appointment is not made at the start of a financial year. As funds are always made available
for a financial year, the proportion that cannot be used due to unavailability of DCs is likely
to lapse. The utilisation of funds is subject to issue of WO which is itself subject to
availability of resources at MPI. Under these circumstances, it becomes important that DCs
are appointed at the beginning of the financial year to allow a maximum use of allocated
funds.
3.6.1 General
Requests for maintenance of buildings received in Zones 1 and 2 during the period January
2012 to May 2014 were analysed. Maintenance works could be broadly categorised as major
and minor ones. Major works included repairs of cracks, spalling, roof leakages and
repairs/upgrading of toilets. Though the number of requests for these works did not top the
list, they related to the most important problems that disrupted Schools. These are classified
as priority by MEHR and are attended by IMU and MPI. Minor maintenance works comprise
plumbing, tiling and painting, among others, that are dealt with at School, PTA and Zone
level. In both categories, there were backlogs.
Backlog on Important Maintenance Works
Backlogs on these works had built up due to the late or non-appointment of DCs by MPI in
2012 and 2013.15 During the period August 2012 to July 2013, services of DCs were not
available. Thus, not all works scheduled for execution in 2012 and 2013 by MPI could be
carried out. Unattended works had to be rolled over for execution in succeeding years, and as
at December 2014, 15 such works (31 per cent) in both Zones were still outstanding. A few
examples are shown in Table 7.
15
Bidding exercise for selection of 2012 DCs was carried out, but none was appointed. One unsuccessful bidder
lodged a case before Supreme Court. The Attorney Generals Office advised to await judgement before award of
contract. Court hearing in late 2012. Launching of new tenders for 2013 DCs was deferred until January 2013
due to Court hearings in 2012. Award of contract for 2013 DC was challenged before the Independent Review
Panel.
22
Zone
1
1
1
2
2
2
School
Maintenance Works
Ebene SSS
External painting
Replacement of Naco Frames
Upgrading of toilet
Laying of tiles
Upgrading of toilet
Waterproofing & treatment of
expansion joint
Waterproofing works
2012
2012
2013
2012
2013
2013
2014
Source: MEHR
Whenever the services of DCs were available, the established practice of handling seven
Government maintenance projects at any one time by each supervising team (comprising one
Engineer and one TO) was followed by MPI. This allowed only 33 works (out of 48
identified) to be executed/started from 2012 through 2014 in the two Zones. Seven works
could not wait for appointment of DCs. They were so pressing that the Zone MU had to carry
them out.
Backlog on Minor Maintenance Works
The main reasons for the backlog on minor maintenance works were inadequate planning and
monitoring as mentioned at paragraph 3.4 above. Statistics in both Zones were not readily
available. A few examples of works backlogged are given in Table 8.
Table 8 Backlogs in Minor Maintenance Works in Zones 1 and 2
School
Date of
Request
P Louis North
SSS (Zone 1)
5.03.13
B Khemloliva GS
21.3.14
(Zone 1)
Pamplemousses
GS (Zone 1)
Camp de Masque
SSS (Zone 2)
QEC (Zone 2)
M. Rambarrun
GS (Zone 2)
30.06.14
2013
2012-13
2013
Maintenance Work
of
walls
Source: MEHR
23
24
allocated to attend to same recorded thereon. However, how time frames were worked out
could not be explained.
Time Out on Job Sheets in both Zones was in most cases stated as 14.00 pm. Normal
working times for Tradesmen are 7.30 am to 3.30 pm.
On some monthly Job Sheets, description of Work Done or certification by School
management was missing.
25
annually (duty is attended on some 240 days in a year). This is equivalent Rs 2.2 million16
worth of labour paid for every year, for both Zones, but for which no benefits were
derived by the Ministry.
In the PRB Report 2013, it is emphasised that officers should work within prescribed
hours. The Ministry has not taken necessary action against the workers. This has led to a
situation where Tradesmen take it for granted that they can leave early. The labour lost or
foregone might have caused other works to be unduly delayed.
The Ministry explained that when compared to the number of schools and colleges, the
Maintenance Unit is under staffed and is making optimum use of the labour force available.
However, our findings described above, showed that optimum use was not made of available
labour hours.
Quality/Completeness
For some works executed by MU personnel, quality/ completeness was lacking.
At the L.P.K. Boolell GS (Zone 2), tiles laid in classrooms were not levelled. As unlevelled
tiles are prone to breakage, the lifetime of the flooring is most likely to be affected. More
importantly, such a surface is not user friendly. Users run the risk of falling on same. In the
same Zone, at Vele Govinden GS, a washbasin installed in the Headmasters office by the
MU was seen not to be levelled. Pieces of a carton sheets were used by School personnel to
try to keep it horizontal.
16
Productive working hours total seven hours only for a Tradesman in his normal 7.30 am to 15.30 pm daily
working times. The 360 hours lost is thus equivalent to some 51 days (360/7) or 2 months work. This
represents some Rs 1.1 million labour in a Zone
26
27
Xavier Barbe
GS
Emmanuel Anquetil
GS
Description of
Works
Execution
As per contract
except:
screed17 not laid as
per specifications;
As per contract
except no 24 hour
water test done
no 24 hour water
test18 done
Monitoring and
Supervision
Screed
thickness/slope and
primer checked.
Cracks and spalling19
repairs checked.
Approval given for
1st waterproofing
membrane20.
Screed
thickness/slope and
primer checked
Screed thickness/slope
and primer checked
Approval given for 1st
waterproofing
membrane only
Remarks
No documentary
evidence for
inspection of :
No documentary
evidence for:
No documentary
evidence for:
inspection of
cracks, spalling
repairs and
paintwork
paintwork
24 hour water test
in February 2015
inspection of
cracks, spalling
repairs and
paintwork
28
School
R. Balgobin GS
L.P.K. Boolell GS
Description of
Works
Duration: 10 weeks
Duration: 10 weeks
Amount: Rs 392,150
Amount: Rs 299,230
Execution
As per contract.
Monitoring and
Supervision
Remarks
29
30
Zone 2
Of four Maintenance works carried out by MPI through its pre-selected DCs in Zone 2 during
2012 and 2013, those at Quartier Militaire SSS, QEC and Sir Leckraj Teelock SSS were
examined. In two cases, namely at Quartier Militaire SSS and Sir Leckraj Teelock SSS, there
was insufficient documentary evidence on the works.
Quartier Militaire SSS (Girls). The maintenance works at this School comprised
waterproofing and repair of cracks at the Administration and Science Classroom Blocks
and Art Room. From commencement to end of works, no documentary evidence was
available in the Project File that would help one to follow and assess how the works were
executed, monitored and supervised. WOs were issued and the Practical Completion
Certificate, dated 26 July 2012, and the Defects Liability Certificate of 20 December
2012 followed. It was explained that oral instructions were given.
In mid July 2013, several months after Final Taking Over, leakages were reported in the
Administration Block (C) and Science block (D). From records at the Ministry and
information obtained at MPI, the source of the leakage in Block C had not been detected
before or while executing the works in 2012. This shows that works under the WO were
not complete, notwithstanding the issue of the Defects Liability Certificate. As of April
2015, the source of the leakage in Block C was still under investigation.
The School management reported that the continued leakage problem in the
waterproofed Administration Block C was still causing inconvenience to users.
The Ten Year Guarantee Certificate against leakage, defective materials and defective
installation of the completed waterproofing system to be submitted by the Contractor was
not available.
Queen Elizabeth College (QEC). Two jobs relating to repairs to podium and upgrading of
toilets were carried out. Overall maintenance works at this School were properly
executed, monitored, supervised and adequately documented.
Sir Leckraz Teelock SSS. Works at this School comprised repair to timber flooring in
gymnasium, tiling and waterproofing. Details on the maintenance job at this School are:
A WO was issued in October 2013 and at site handing over on 17 October 2013, new
works, such as repairs to flooring (about 20 m2) and upgrading of wooden fascia
(infested with termites) of podium to an aluminium one were found to be necessary. 21
Commencement date was postponed to 21 January 2014 as the Gymnasium was used
to accommodate the end of year SC/HSC Examinations. Works started as scheduled,
but had to be put on hold because the Gymnasium was leaking a lot, with heavy
downpours in late January 2014. Some 30 per cent of timber polishing had been
completed by that time.
21
A request for these, together with other works related to the Gymnasium, was made to the Ministry in late
October 2013 by the Rector. This was attended to by MPI in mid March 2014, and a new WO was issued on 25
April 2014.
31
On 30 July 2014, another request was received from the Rector for new works in the
Gymnasium. It was explained that when the previous survey (second, giving rise to
WO issued on 25 April 2014) was carried out by MPIs and Ministrys TOs, in March
2014, the Changing Rooms and parts of the Hall were packed with refuse... so that a
full assessment of the renovation works was impossible.22
During a site visit at the School on 8 August 2014, works under the first two WOs which
had resumed/started on 21 July 2014 were ongoing.
Comments on this job are as follows:
Three surveys were carried out for the project. No survey reports were available.
The leakage problem may not have been communicated to the survey team, but
anyone about to treat wooden flooring would normally make sure that no rainwater
leaks on such surfaces. During a visit in August 2014, it was clearly observed that
dripping rainwater from the ceiling had bleached the timber flooring, at different
spots. Therefore, waterproofing works were a must-do job there, but were omitted.
Floor marking for practice of sports and timber skirting were also not included.
For the execution phase, no documentation on the works was available in the Project
File. It was explained that instructions were given verbally.
According to the Ministry there is supervision of all works allocated to Contractors by both
its Officers and those of MPI.
However, in some maintenance works examined as described above, supervision by the
Ministry and MPI was inadequate.
22
According to the Rector, following clearing of these areas, leakages, spalling, falling wall tiles and damaged
urinals were observed in the Changing Rooms. Openings, water troughs and mirrors, therein, were, also,
requested to be replaced. For the Hall, tiling works, timber skirting, varnishing of wooden structures and floor
marking for practice of sports were asked for. In both areas, about 20 doors needed replacement. Following a
survey (third), MPI worked out the cost estimate for the additional jobs to some Rs 2.96 million. A WO for
renovation of Hall and Changing Room was issued in October 2014.
32
Agreements entered with both MPI and IMU for waterproofing works require the Contractor,
on satisfactory completion of the waterproofing works,... (to) submit a certificate of
guarantee against leakage, defective materials and defective installation of the completed
waterproofing system. Any such defects or leakage occurring during the guarantee period
shall be promptly and completely attended to, including all affected work, at no additional
cost to the employer. The agreements further state that, the said guarantee shall be in effect
for a period of ten (10) years from the date of the Practical Completion Certificate. The
guarantee shall be signed by the Contractor and shall be submitted to the Engineer, with a
copy to the Employer (for MPI commissioned works), and only to the Employer (for IMU
contracted works).
Guarantee Certificates generally express promptness on the part of the Contractor to carry out
repairs and conditions to be met by Schools for the guarantee to stand. The diligent exercise
of responsibilities by all parties concerned under such a warranty should ensure that buildings
do not suffer from inconveniences due to leakages during the 10 year period (except for brief
intervals23). Unfortunately, this is rarely the case. Incorrect certificates submitted and failure
to attend promptly and completely to defects and leakages by Contractors caused Schools to
suffer from continued leakages over long periods during the warranty term. Non-maintenance
of, and damage caused to, the waterproofing membranes by Schools, also, led warranty to
lapse.
During year 2012 to 2014, 38 waterproofing works in Zones 1 and 2 and amounting to some
Rs 38.7 million were executed/started.
23
Like during the time it takes to contact the Contractor and effect the repairs. At worst, mild leakages, may be
experienced during these times.
33
Grand River North West GS. Guarantee Certificate submitted by Sub Contractor was in
favour of the owners and representative of the DC instead of the employer (MPI).
Petit Raffray GS. The DC submitted a Guarantee Certificate on behalf of the Ministry of
Education instead of one in favour of the employer, namely MPI.
Triolet SSS. The DC submitted a Guarantee Certificate without any mention of its
obligation or commitment for repairing any leakage during the 10 year period.
Xavier Barbe and Pointe aux Sables GS. The Guarantee Certificate did not specify clearly
whether it was in respect of defects arising from bad workmanship and materials.
All the four Certificates did not meet the contractual requirements mentioned above. Despite
these discrepancies MPI and IMU accepted all the above four certificates without ensuring
whether they are legally enforceable. Furthermore, no penalty or legal action that could be
taken in the event the Contractor fails to promptly and completely attend to the repairs within
the ten year period is specified in the contract documents.
34
School
Simadree
Virahsawmy
SSS
Dr James
Burty David
SSS
Port Louis
SSS (Girls)
Leakage and
Action Taken
Three Laboratories
and two Classroom
Blocks leaking
since 2008. Several
reminders, sent to
contractor by MPI
Leakages in
Physics and
Computer
Laboratories since
2010. Six
reminders sent to
Contractor
between May 2010
and April 2013
Leakages in
Science Block
started in 2013 and
were still persistent
in September 2014.
Several reminders
sent to Contractor
in 2014
Contractors
Effect
Response
Attended only one (out Exposed surface of Classroom
of four) site visit block rooftop imply profuse
organised by MPI. leakages. Classroom Blocks and
Started works in March laboratories cannot be used during
2013
on
one rainy periods. Rain water seeping
Classroom Block only. through electrical main board
Existing waterproofing causing damage to equipment. In
membranes
were July 2014, heavy leakages in
removed and surface Laboratories. Due to frequent
left exposed. Works short circuits, Computer Rooms
not completed.
were
put
out
of
use.
Inconvenience more severe during
examination periods.
Attended only one site Inconvenience caused by leakages
visit in October 2012. and risk of electrocution and
Remedial works started damages
to
material
and
in December 2013 equipment.
only.
In contrast, at QEC (Zone 2), repair works were given due attention and correctly executed at
its Multi Purpose Hall, in 2014.
35
Original 10 Year
Warranty
Running Until
Zone 1/ Triolet
SSS (Boys)/
Science Block
Unknown*
Zone 2/QEC/
3 School Blocks
2019
Zone 2/
Quartier
Militaire SSS
(Girls)/ Science
Block
2019
Cost of New
Waterproofing Works
No cleaning of waterproofed
rooftops and tampering
Rs 768,660
(WO issued in
November 2013)
Rs 3.4 million
(WO issued in
December 2014.)
Rs 1.23 million
WO issued in 2012 for
works on Science Block
(along with Visual
Art/Classroom and
Administrative blocks)
Zone
Directorate
Ministry
(IMU)
MPI
District
Contractor
Waterproofing
Contractor
36
during a site visit, the classrooms were still suffering from leakages as the problem had not
been attended to.
In the case of the QEC (Zone 2), the Rector informed the Zone Directorate that in several
Blocks and buildings, there were leakages from roof and these were causing much
inconvenience to students and staff alike, in June 2012 and again in October 2013. On both
occasions, the urgency of the problem was highlighted, and a request to have it attended as
soon as possible was made. No positive response came from the Zone Directorate for these
two requests. It was in late January 2014 (about 1 years later) that the Directorate informed
IMU about the problem and need for urgent action. A site visit by IMU followed in March
2014, and MPI was promptly informed of situation in the same month.
Non-responsiveness of Zone (2) Directorate was, also, noted at Petit Verger GS. Leakage in a
recently built Science Block at the School was notified to the Zone Directorate as early as
July 2010, and again in May 2013 and February 2014. All three requests were not attended
to. The Zone MU explained that it had informed the Ministry about this issue, but no
evidence could be gathered at the Directorate and the Ministry to support this claim. Positive
response came in May 2014 following a site visit by IMU Engineer (in the wake of the 50th
anniversary of the School celebrated in July 2014). The Ministry contacted MPI to call upon
the DC who constructed the building and carried the waterproofing works to attend to the
leakages. As of April 2015, the leakages have not yet been repaired.
Construction of this Block for teaching Science and ICT was completed in 2010 at a cost of
some Rs 1.85 million. Waterproofing works were undertaken on the roof slab, and such
works are still under warranty. Owing to leakages, only half of the building which
accommodates the ICT Classroom can be used. The other half where a mini Science
Laboratory is housed is being used as a store because of the leakage. No Science classes have
ever been held therein. Science Laboratory items purchased, thus, lie idle.
Not attending to the leakage problem, as early as possible, has cost and still costs the Ministry
the inability to run Science classes for the benefit of the Schools students. The benefits of
money invested on construction, waterproofing works and laboratory items are not being
fully derived.
The absence of records, also, affects repairs to works under warranty. Since 2008, there were
leakages in Block C which had been waterproofed in 2004/2005, at S Jugdambi SSS (Zone
1). No remedial works could be undertaken as there were no records on which Contractor
carried out the works still under guarantee. In December 2013, a WO amounting to Rs
541,875 was issued to the then DC to replace the non-performing membranes.
37
Contractors. The latter offer daily and monthly cleaning services based on agreed schedules
for cleaning activities included in their contracts24.
Monitoring is done by School management, and monthly reports are sent to the Zone
Directorate. Each Head of School has to certify satisfactory delivery of service by PTA
Cleaners before the MEHR can refund to the PTA monies paid for the service. 25 For
Contractors, monthly returns and monitoring sheets need to be submitted by the Head of
School indicating the satisfactory (or otherwise) performance of each daily and monthly
cleaning activity set on the agreed schedules. Explanations for any adverse report must be
given. Zone Directorates review these documents before effecting payments. Contracts allow
liquidated damages at twice the daily remuneration rate payable for any service not provided
on site. Any other shortcomings are addressed to the Contractor by the Directorate.
Since mid-2012, the MEHR requested all Schools to ensure the regular maintenance and
cleaning of roofs.
The following observations were made:
Liquidated damages at the appropriate rates were applied in Zone 2, but not in Zone 1, for
contractual services not rendered.
The request made by MEHR to clean rooftops did not take into consideration difficulties
faced by Schools to do same. Heads of Schools visited reported that they did not have the
required equipment (ladder) and School personnel were not willing to do such job. Access
to rooftops and safety of cleaners were important issues preventing maintenance and
cleaning of roofs.
Roof Cleaning was included in the (monthly cleaning) contracts signed for the
22 Schools/Institutions in Zone 2.26 This was a laudable initiative. However, roof
cleaning service and its monitoring were not adequate. During a visit to QEC (one of the
22 Schools/institutions) in August 2014, access to the roof tops was not possible, but from
and adjacent building, it was observed that the waterproofing membranes on one of the
blocks were covered at several places with leaves and debris. The inadequate service and
monitoring are best illustrated at the Directorate itself. In September 2014, the cleaning of
a roof surface by the Contractor was witnessed by my officers. A plant which could have
been more than two months old had grown on the waterproofing membrane and was not
uprooted.
The Ministry stated that appropriate action has already been initiated for regular maintenance
of roofs to prevent lapse of warranty in regards to waterproofing. It is expected that such
problems will be reduced to a minimum in the near future.
However, the difficulties mentioned above in implementing the initiative taken by the
Ministry and inadequate monitoring are preventing the proper maintenance of roofs.
24
Contracts for cleaning services for premises in Schools/institutions in all Zones were awarded by MEHR in
June 2012. The contracts were for a period of three years, renewable on an annual basis subject to satisfactory
performance of the Contractors. In March 2014, Zone 2 Directorate appointed cleaning service Contractors for
22 Schools/Institutions not covered under the MEHR contracts.
25
The refund relates to labour and travelling costs of Cleaners. Cleaning materials are provided by MEHR.
26
This activity was not available in the MEHR contracts with its selected Contractors, and so, no roof cleaning
was done in Zone 1 and at other than the 22 Schools/Institutions in Zone 2.
38
CHAPTER FOUR
CONCLUSION AND RECOMMENDATIONS
4.1 Conclusions
MEHR operates a maintenance system with a view to ensuring that Schools are kept in a
usable condition and running of classes are not disrupted. However, this system does not
provide for timely maintenance at least cost and of acceptable quality, at all times. This is due
to major constraints and non-adherence to certain good practices within the system.
The current maintenance system mainly focuses on corrective actions. The preventive
component that checks deteriorations from creeping in and ensures infrastructures are cared
for early is insufficient.
The system (for the corrective part), in general, has sound processes and good practices.
However, some of these are not being run in an efficient and effective manner. Planning,
monitoring, execution, supervision of maintenance jobs and contract management were not
always effective, and these affected the maintenance of School buildings.
At Zone level, planning, monitoring and supervision were inadequate. This created backlogs
of maintenance works. Some jobs could not be fully executed and were not of reasonable
quality. The Ministry is not efficient in making an optimum use of available labour resources.
Productive labour hours was not fully used.
Priority lists drawn for IMU and MPI works were followed. Terms of contracts (drawn with
selected Contractors) pertaining to start and completion dates, value (including Contingency
amounts), and liquidated damages for late delivery were applied by both IMU and MPI.
However, compliance with standards and specifications for works (included in contract
documents), appropriate level of workmanship and, thereby, quality of works were not
sufficiently ensured through an adequate level of supervision on most jobs.
The procurement system for materials, works and services is well established, followed and
allowed resources to be acquired at the least cost. The late or non-appointment of MPI DCs,
in recent years, had a negative effect. Jobs could not be carried out and created backlogs.
Available funds that could be used for these jobs could not be spent and lapsed.
Guarantee Certificates for waterproofing works examined did not conform to contract
requirements. Their validity could not be ascertained. Repairs to defects by Contractors,
within the guarantee period, were not prompt and complete. Several Schools had experienced
continued leakages that affected the smooth running of classes during the warranty periods.
Conditions for the guarantee to stand were not met by Schools and this caused the warranties
to lapse. Benefits of the warranties were not effectively derived. Costly new waterproofing
works had to be undertaken anew at some Schools. This is not economical.
Substantial grants were paid to Schools PTA and Zone Directorates approved maintenance
projects funded by same. A system for their supervision was, however, not available.
39
4.2 Recommendations
To remedy the above, the following are recommended:
4.2.3 Budgeting
MEHR should use available funds fully for undertaking the maximum number of
maintenance works at Zone level. Zone Directorates should monitor their budgetary
allocations through updated financial status reports at each Infrastructure Committee
Meeting. This will help to ensure funds are available on time for all prioritised jobs through
appropriate requests for reallocations.
40
41
42
Ministrys Reply
(a) The Ministry has been raising the issue of preventive maintenance with MPI and even at
the level of the Public Accounts Committee.
(b) There is a preventive maintenance strategy which includes inter-alia regular painting of
schools and institutions. Regular checks are also carried out by the Technical Officers and
the Engineers to detect possible spalling of concrete.
(c) There is proper planning of both major and minor maintenances to be carried out in any
new financial year. In this respect, the list of these works is well established in order of
priority and available at the Ministry.
(d) The backlog which may be attributed to the delay in appointment of DC is outside the
control of the Ministry as DCs are appointed by MPI.
(e) There is supervision of all works allocated to Contractors by both Officers of this
Ministry as client, and by Officers of the MPI as employer.
(f) When compared to the number of schools and colleges, it is obvious that the Maintenance
Unit is under staffed. This Ministry is in fact making optimum use of the labour force
available. However, it should be reckoned that these workers may be called upon to
operate within the framework of their scheme of duties.
(g) Appropriate action has already been initiated for regular maintenance of roofs to prevent
lapse of warranty in regards to waterproofing. It is expected that such problems will be
reduced to a minimum in the near future.
The Ministry has taken note of recommendations which may be put in place to improve the
system and appropriate actions are being taken at the level of the Ministry. Other
recommendations are being discussed with the MPI.
43
44
Appendix
Assessment Criteria Specifications for Selected Works
Waterproofing
Works
Repair of
Cracks
Repairs to
Spalling
Concrete from
Ceiling
Painting
No-ponding test to be performed to verify adequacy of screed slope (For IMU driven
works, this test is not included as a contractual requirement)
24 hours water test to be carried out to verify leakage. The test should be verified
and approved by the Engineer or representative
Identification and marking of areas needing crack repairs in presence of the Engineer
or his representative
Apply, at spalled location of slab, appropriate and well compacted material to full
thickness and levelled to existing concrete
Concrete Surfaces
Removal of loose paint including washing with high pressure jet and repair of minor
cracks with crack filler
Metal surfaces
Application of one coat of primer, undercoat and two coats hard gloss paint to
internal and external surfaces
Wooden surfaces
45
Appendix (continued)
Assessment Criteria Specifications for Selected Works
Floor tiling
Tiling Works
Supply of all necessary materials and plant, including tile fix cement
Wall Tiling
Backing coat for wall tiling to be in cement and sand mortar of appropriate thickness,
surface of which should be closely combed, while the mortar is still green and left for
a period of 24 hours
Tiles to be soaked in water for 30 minutes and bedded with an adhesive of the
approved manufacture
All tiles to be laid perfectly level, the joints to run straight horizontally and vertically,
and to be pointed in neat cement to an approved colour
Internal and external angles and rounded edges tiles to be of the same manufacture,
colour and thickness as the foregoing
46
July 2015
CONTENTS
Page
ABBREVIATIONS AND ACRONYMS
iii
GLOSSARY OF TERMS
iii
EXECUTIVE SUMMARY
5
5
6
7
7
7
7
8
1.1
1.2
1.3
1.4
1.5
1.6
1.7
Background
Audit Motivation
Audit Methodology
Audit Objective
Audit Scope
Method of Data Collection
Structure of the Report
9
9
9
9
10
10
13
13
13
17
17
18
18
20
23
25
25
26
TABLES
1 Percentage of Population Practising a Sport
2 Sports Facilities under Control of MYS
3 Upgrading and Maintenance Cost for Period 2010 to 2014
4 Sports Facilities under Control of MYS, MSC and Federations
5 Weekly Allocation of Sports Facilities during 2014
6 Time Allocation at Swimming Pools
7 Time Allocation at Stadiums
8 Time Allocation at Football/ Training Grounds
5
5
6
10
14
14
15
16
ii
GLOSSARY OF TERMS
Sports Facility
Utilisation Chart
Fitness Equipment
Reactive Maintenance
Preventive Maintenance
Available Time
Allocated Time
iii
iv
EXECUTIVE SUMMARY
The objectives of the Ministry of Youth and Sports (MYS) are to provide adequate Sports
Facilities in all regions throughout the country, and to assist Sports Federations to promote
and develop their disciplines. It has a pool of 80 Sports Facilities, comprising Gymnasiums,
Stadiums, Swimming Pools, Tennis Courts, Football Playgrounds and Youth Centres. These
Facilities are managed by MYS, the Mauritius Sports Council (MSC) and Sports Federations.
For period 2010 to 2014, some Rs 221 million were spent on the upgrading and maintenance
of Sports Facilities. Despite the investment made by the MYS, the public was still not
satisfied about the services provided. Some of the dissatisfactions taken up by the local media
included Facilities are not available to public for practice of sports, opening hours are not
appropriate for public to get access to, and Facilities are not properly maintained.
The objective of this Performance Audit Report is to ascertain to what extent the MYS is able
to maximise use of Sports Facilities, and how these Facilities are maintained.
Key Findings
MYS did not have a plan to maximise the use of the different Sports Facilities and to fully
implement its objectives of raising awareness on importance of sports and improving the
level of public participation.
Several Sports Facilities were not used to their maximum. Available hours at the different
Facilities were not fully allocated to users. At one Swimming Pool and one Stadium, the
percentage of unallocated hours was 45 and 79 respectively. At present, MYS does not
have a mechanism to monitor the effective use of allocated time to different groups of
users. At Auguste Volaire Stadium, only 35 per cent of the allocated hours were actually
used, while at Le Pavillon and Rivire du Rempart Swimming Pool, the percentage was
56 and 64 respectively. As some 50 per cent of allocated hours at these Facilities were not
used, the risk that the man hours of officers directly related to the use thereof might not
have been effectively used during that time.
The Ministry has constantly identified the lack of awareness on the importance of sports
and low participation in sport activities as a constraint. However, only a few sensitisation
activities have been carried out, and when these were organised, the participation was less
than expected.
Although there is a maintenance policy, both MYS and MSC did not have a maintenance
plan. As a result, repairs were carried out on an ad-hoc basis upon request made by the
Officer in Charge of the Facilities. A condition survey of the Facilities has never been
carried out to evaluate their state in order to prepare such a plan. Repairs to Sports
Facilities by MYS were corrective, reactive and emergency nature, rather than preventive.
Conclusion
Sports Facilities were not used to their maximum. Sports Federations were given priority for
use of Sports Facilities, and yet they were not fully utilising them. MYS did not carry out a
proper monitoring on use of Facilities. Information on the number of users at each Facility
was available at most Sports Facilities, but was not regularly submitted to the Ministry. The
allocated time was not fully used. This might result in ineffective use of available man hours
of officers posted to these Facilities.
One of the reasons identified by the MYS for not using its Facilities was lack of awareness by
the public on the importance of sports. The Ministry was not carrying out enough
sensitisation campaigns to encourage people to participate in sports activities. Besides, no
study has been carried out to identify other factors creating barriers for people to practice
sports activities so that corrective measures may be initiated.
Planning for maintenance works was not done. Maintenance works were carried out on an
ad-hoc basis. Priorities were given to emergency works, and surveys have not been conducted
to know the state of Sports Facilities.
Key Recommendations
Use of Sports Facilities
Planning
MYS should promote a planned approach on the use of the different Sports Facilities.
Planning for the use thereof should be based on a robust and up-to-date assessment of
the needs of users. MYS should conduct a survey based on needs and demands from
the population in order to improve access to Sports Facilities.
Sensitisation
MYS should increase its sensitisation campaign to attract more users to the existing
Sports Facilities. A survey on needs and demands of the population in order to
improve access to Sports Facilities should be carried out by considering a variety of
methods and techniques.
The Ministry may also consider soliciting the cooperation of the Ministry of Health
and Quality of Life and the Ministry of Education, Human Resources, Tertiary
Education and Science to achieve the objectives of reducing the prevalence of Non
Communicable Diseases and promoting sports for all.
Maintenance
MYS should move towards a planned and proactive approach to maintain its different
Sports Facilities, focussing more on preventive maintenance. This will require the
development of a comprehensive Maintenance Plan. In order to develop the plan, MYS
should ensure that it has a complete database of all its Sports Facilities, and a mechanism
to identify and evaluate maintenance needs of the different Facilities through monthly
surveys, and carry out condition assessment of all its Facilities at regular intervals.
CHAPTER ONE
INTRODUCTION
1.1 Background
In line with the National Action Plan for Physical Activities, the Ministry of Youth and
Sports (MYS) has set targets to achieve its objectives of improving participation in sports
activities by public, excellence in sports performance by athletes, and empower young
citizens for a better future. The targets as shown in Table 1 were set in the Programme Based
Budget (PBB) Estimates.
Table 1 Percentage of Population Practising a Sport
Outcome Indicator
2011
Actual
2012
Actual
2014
Target
2016
Target
2023
Target
16
17
19
22
>40
Facility
Gymnasiums/ Sports Complex
Swimming Pools
Number
12
5
Youth Centres
30
Stadiums
11
22
Total
80
The mission of MYS is to create an enabling environment and act as a catalyst and facilitator
for the promotion and development of youth and sports at regional, national and international
levels.
Year
Upgrading
Rs million
Maintenance
Rs million
Total
Rs million
2010
23
13
36
2011
11
19
2012
19
26
2013
53
18
71
2014
54
15
69
Total
148
73
221
Despite significant investment made by the MYS in the construction and maintenance of
Sports Facilities, the public was still not satisfied with the services provided. Some of the
dissatisfactions taken up by the local media were:
Facilities were not available to the public for practising sports
Opening hours were not appropriate for public to get access to Sports Facilities
Sports Facilities were not properly maintained
The National Audit Office (NAO) has consistently reported that several shortcomings exist in
the maintenance of Sports Facilities, which may have an incidence on the use thereof. Some
of them were as follows:
Delays in carrying out maintenance works. Faults reported by Sports Officers in charge of
Sports Facilities were attended to after several months.
Works were of poor quality - for example drains were repaired at the George V Stadium,
but were not functioning well
In several cases, assistance of Ministry of Public Infrastructure was not sought for
supervision of works, and hence, the poor quality of work.
In view of the above, the NAO carried out this Performance Audit on the Use and
Maintenance of Sports Facilities.
1.6.3 Observation
Site visits were carried out at Swimming Pools, Stadiums and Gymnasiums to get acquainted
with the activities carried out, to observe the state of the infrastructure, and to collect
information on use of Sports Facilities kept on site.
1.6.4 Sampling
In order to carry out this Performance Audit, records relating to use and maintenance of 15
Sports Facilities of MYS were examined. Three Stadiums, three Swimming Pools, seven
Gymnasiums, and two Youth Centres were also visited due to their frequency of use, location
and materiality in terms of recent investment.
CHAPTER TWO
DESCRIPTION OF THE AUDIT AREA
This Chapter provides background information on the role, activities and processes of the Ministry
of Youth and Sports, the Mauritius Sports Council and other stakeholders.
MYS deals with the formulation and implementation of Government policies in the field of
Youth and Sports and is divided into two main Sections, namely the Youth Section and the
Sports Section. To manage the Sports Facilities, the country is divided into 12 Regions, each
under the responsibility of a Sports Officer/Coach who is a Technician, primarily responsible
for the coordination of all activities of the Region, and is assisted by Coaches/Senior
Coaches, Advisers and Senior Sports Officers.
are used for training of national teams, conducting talent identification programmes, holding
of regional, national and international competitions, holding of seminars, workshops and
conferences, training of Technical Cadres, mass/leisure practice by the public.
The objectives of the MSC are to, among others:
Develop and improve the practice of sports among the public at large in conjunction with
other bodies dealing with sports in general
Foster and support the provision of facilities for sports
Encourage and support other persons or bodies in carrying out research and studies in
matters concerning any sports and physical activities and dissemination of knowledge and
advice on these matters
MYS
Managed by
MSC Federations
12
5
30
11
22
30
14
10
5
10
8
2
1
-
Total
80
44
33
10
11
12
CHAPTER THREE
FINDINGS
This Chapter describes the findings on whether MYS has adequate mechanism to ascertain that
Sports Facilities are used to their maximum and maintained properly.
13
Swimming Pools
(Hours)
163
218
Football/
Training
Grounds (Hours)
82
74
166
119
Public
114
16
Total
351
400
201
Federations
School/ Public Bodies
Stadiums
(Hours)
As shown in Table 5, the allocation of hours to users varied across different types of Sports
Facilities. Federations were given more time to practise sports in Swimming Pools and
Stadiums compared to Schools/ Public Bodies and the public. No time has been allocated to
the public at Football/ Training Grounds.
The Utilisation Charts of the different types of Sports Facilities for 2014 were further
analysed as follows:
3.2.1 Available and Allocated Hours Swimming Pools
The opening and closing hours of the Swimming Pools varied, which made the time available
for use to differ. Table 6 shows the weekly time available for use and total time allocated to
users.
Table 6 Time Allocation at Swimming Pools
Swimming Pool
Opening Hour
Closing Hour
Available
Hours
Allocated
Hours
Unallocated
Hours
Percentage
Unallocate
d Hours
(%)
Mare dAlbert
0500 - 2215
98
54
44
45
Serge Alfred
0530 - 2100
76
75
Le Pavillon
0500 - 2215
100
85
15
15
Rivire du Rempart
0615 - 2200
83
65
18
22
Souvenir
1000 - 2200*
77
70
The total hours available and allocated also varied from one Swimming Pool to another. Mare
dAlbert Swimming Pool had 44 hours of unallocated time, whereas for Serge Alfred, only
14
one hour time was unallocated. Total weekly available hours not allocated as a percentage of
available hours at Rivire du Rempart, Le Pavillon, Souvenir and Mare d'Albert Swimming
Pools varied from nine to 45 per cent.
According to the Ministry, the analysis for the available hours and allocated hours at
Swimming Pools does not seem to have taken into account population density around the
Facilities, and accessibility including hours of operation of the public transport system.
However, the above analysis was based on the whole population of Swimming Pools. The
factors the Ministry mentioned above should have been taken into consideration prior to the
construction of the Sports Facilities.
3.2.2 Available and Allocated Hours Stadiums
The public has access to stadiums for jogging purposes in the morning, except at St Franois
Xavier Stadium, Harry Latour Stadium and Quartier Militaire Stadium. Of the 11 existing
stadiums, George V Stadium and Maryse Justin Stadium were reserved for national teams,
competitions and for training by high level athletes.
The opening and closing hours of stadiums varied as well. Harry Latour Stadium opened at
0900 hours, compared to the other Stadiums where the opening hour was 0600 hours. Saint
Franois Xavier Stadium was the earliest to close at 1900 hours instead of the usual
2200 hours. Consequently, fewer hours were available for use at Harry Latour and Saint
Franois Xavier Stadiums. Table 7 shows the weekly time available for use and total time
allocated to users.
Table 7 Time Allocation at Stadiums
Stadium
Opening Hour
Closing Hour
Available
Hours
Allocated
Hours
Unallocated
Hours
Percentage
Unallocated
Hours (%)
Anjalay
0600 - 2200
112
80
32
29
Auguste Volaire
0600 - 2200
112
51
61
54
Rose Belle
0600 - 2200
112
42
70
63
St Franois Xavier
0600 - 1900
91
19
72
79
Sir R Ghurburrun
0600 - 2200
112
43
69
62
Rohit Boolakee
0600 - 2130
102
33
69
68
Germain Commarmond
0600 - 2200
112
62
50
45
Harry Latour
0900 - 2130
81
43
38
47
Quartier Militaire
0600 - 2200
112
31
81
72
15
The percentage of unallocated hours varied from 29 per cent at Anjalay Stadium to as high as
79 per cent at Saint Franois Xavier Stadium.
The Ministry stated that almost all the stadiums have natural grass as turf and this has a
limitation on the number of hours during which regular use can be allowed. Anjalay, Auguste
Volaire and Germain Commarmond are national stadiums, unlike the others. Saint Franois
Xavier does not have a lighting system and has to close early.
Yet, according to the findings above, the number of hours allocated weekly by MYS for their
use was as high as 62 and 80 at Germain Commarmond and at Anjalay Stadium respectively.
3.2.3 Available and Allocated Hours Football/ Training Grounds
Football/ Training Grounds were opened from 0600 hours to 2200 hours. Table 8 shows total
weekly hours available and number of hours allocated to users at five Football/ Training
Grounds on a weekly basis based on Utilisation Charts obtained from MSC.
Table 8 Time Allocation at Football/ Training Grounds
Football/Training
Grounds
G. Commarmond
Training Ground
Anjalay Training
Ground
Morc St Andr
Football Ground
Plaines des Papayes
Football Ground
Arsenal Football
Ground
Opening Hour
Closing Hour
Available
Hours
Allocated
Hours
Unallocated
Hours
Percentage
Unallocated
Hours (%)
0600 - 2200
112
32
80
71
0600 - 2200
112
44
68
61
0600 - 2200
112
56
56
50
0600 - 2200
112
50
62
55
0600 - 2200
112
20
92
82
The time available at all the Football/ Training Grounds was not fully allocated. At
Morcellement St Andr and Plaines des Papayes Football Grounds, 30 hours were allocated
for use to Schools on weekdays from 0800 to 1400 hours. The other Football/ Training
Grounds were reserved for use by Clubs registered with the Football Federations.
The percentage of unallocated hours at Football Grounds varied from 50 per cent at
Morcellement Saint Andr to as high as 82 per cent at Arsenal.
The Ministry contended that during certain hours of the day, Sports Facilities are not utilised/
underutilised as the users of these Facilities are mostly students and youngsters who are
required to attend educational institutions between 0800 and 1500 hours during weekdays. As
regards the other categories of users, most of them are at work till late in the evening.
16
Consequently, most of the Facilities are not being utilised except by national Sports
Federations, Sports Clubs, certain individuals, Corporate Bodies, and schools having
structured programmes and Spots Days.
However, according to our findings, MYS had allocated slots from 0800 to 1500 hours on
every week days at most Sports Facilities to schools.
17
year for the Swimming for Health Programme and the fitness activities. However, only
some 600 attended these activities.
For Jeux de lAvenir and Jeux de lEspoir, during the period 2011 to 2013, only a yearly
average of some seven per cent of the population of the respective age group participated.
The only sensitisation activity carried out by the Ministry was in August 2013, when a Salon
Jeunesse et Sport was held with a view to helping people to acquire the maximum
information on sports and leisure activities. Some 3,000 persons attended the Salon. This was
not a planned activity, and some Rs 400,000 were spent.
According to the Sports Act, MSC shall develop and improve among the public at large the
practice of sport in conjunction with the relevant Sports Organisations. Since 2011, MSC has
been carrying out mainly the Sports Medicine Programmes to raise awareness on good
nutrition and benefit of physical activities.There was no monitoring to evaluate how far these
sensitization programmes were successful.
18
A number of literatures on maintenance contain almost similar practices. The main documents consulted are:
Guidelines for Physical Asset Management issued in 2006 by the then MAB (now Office of Public Sector
Governance) and Maintenance Management Framework, Queensland Government, Australia.
19
information on the condition of the building to support informed asset management decisions.
Condition assessment is normally carried out every three to five years. The Maintenance
Management Framework on Government Building of Queensland of Australia2 requires
condition assessment to be carried out every three years.
A condition assessment of the Facilities has never been carried out by MYS to evaluate the
state of the Facilities. In the absence of periodic review of the conditions of the Sports
Facilities, my Officers carried out site visits on 20 May and 16 September 2014.
There were leaks at several places, such as on the roof of the Weight Lifting Room of Pandit
Sahadeo Gymnasium, roof of Weight Lifting Room of George V Stadium, and on the ceiling
of the Administrative Block, stairs, dormitory rooms, kitchen and store of Anjalay Stadium.
There was rust in the structure of George V Stadium and corrugated iron sheets on the roof.
Although the Stadium was closed for repairs, there were birds wastes which rendered it
untidy. Cleaning of metal structure and stairs was not done properly. Grass was growing on
the roof of the Stadium. Also, there was rust on the structure of the building of Anjalay
Stadium.
Maintenance Management Framework policy document contains the policy requirements and general
information for Queensland Government departments about relevant asset management principles and practices
(2012).
20
after one year of purchase, as of March 2015, no such action was taken for its fitness
equipment. Hence, MYS was facing difficulties in repairing some of its fitness equipment for
want of spare parts.
During site visits at the Beau Bassin Gymnasium in May 2014 and May 2015, it was noted
that the fitness equipment was broken. It was stated that it had broken down since long, and
could not be repaired because of non availability of spare parts.
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CHAPTER FOUR
CONCLUSION
Over the years, Government has invested heavily on Sports Facilities for the benefits of users.
The time available and allocated to users differed for the different categories of Sports
Facilities. The unallocated time was significant for most of these Facilities. Moreover, the
allocated time was not fully used. Hence, there is a risk that the man hours of officers directly
related to the use of the Facilities might not have been effectively used.
MYS did not have a mechanism to ensure that its Sports Facilities were used to their
maximum. Also, MYS did not carry out a proper monitoring on how many users were
actually using its Facilities. Information on the number of users at each Facility were
available at most Sports Facilities, but was not regularly submitted to the Ministry.
One of the reasons identified by the MYS for not using its Facilities was lack of awareness by
the public on importance of sports, and yet the Ministry was not carrying out enough
sensitisation campaigns to encourage people to participate in sports activities. Besides, no
study has been carried out to identify other factors creating barriers for people to practice
sports activities so that corrective measures may be initiated.
Also, MYS did not have a proper mechanism to ensure that the Sports Facilities are properly
maintained. MYS did not plan for its maintenance works. Works are normally carried out on
an ad-hoc basis. Priorities were given to emergency works and regular surveys have not been
conducted to ascertain the condition of the Sports Facilities.
23
24
CHAPTER FIVE
RECOMMENDATIONS
In the light of the audit findings and conclusion, hereunder are the recommendations on the
use and maintenance of Sports Facilities:
25
26
(b) A Memorandum of Understanding is being worked out with the Ministry of Education,
Human Resources, Tertiary Education and Science and relevant stakeholders to promote
sports through the optimum utilisation of Sports Facilities available.
(c) A Guideline for the Maintenance of Sports Infrastructures has been devised and circulated
to all Officers in Charge.
(d) During certain hours of the day, Sports Facilities are not being utilised/ under-utilised as
users of these Facilities are mostly students and youngsters who are required to attend
educational institutions between 8.00 and 15.00 hours during weekdays. As regard the
other categories of users, most of them are at work till late in the evening. Consequently,
most of the Facilities are not being fully utilised, except by National Sports Federations,
Sports Clubs, certain individuals, Corporate Bodies, and schools having structured
programmes and Sports Days.
(e) The analysis for available hours and allocated hours at Swimming Pools does not seem to
have taken into account population density around the Facilities, and accessibility
including hours of operation of the public transport system.
(f) Almost all the stadia have natural grass as turf and this has a limitation on the number of
hours during which regular use can be allowed. Anjalay, Auguste Volaire and Germain
Commarmond are national stadia, unlike the others. Saint Franois Xavier Stadium does
not have a lighting system and has to close early.
27