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1 V I C T O R I A Victorian Auditor-General Records Management in the Victorian Public Sector Ordered to be printed VICTORIAN GOVERNMENT PRINTER March 2008 PP No 86, Session
2 ISBN X
3 The Hon. Robert Smith MLC President Legislative Council Parliament House Melbourne The Hon. Jenny Lindell MP Speaker Legislative Assembly Parliament House Melbourne Dear Presiding Officers Under the provisions of section 16AB of the Audit Act 1994, I transmit my report on Records Management in the Victorian Public Sector. Yours faithfully DDR PEARSON Auditor-General 12 March 2008
4 Foreword Records and recordkeeping are fundamental to transparent, accountable government. They are indispensable to the efficient and effective functioning of all government agencies and the responsibility of all their staff. This audit examined how effective the Public Record Office Victoria (PROV) has been in facilitating sound records management across the public sector and whether public sector agencies were managing their records in accordance with the Public Records Act Over the past five years PROV has been implementing an important internal change program designed to assist agencies to manage their records more effectively. For a small agency, PROV can point to considerable achievements; but it has, as this report signals, challenging tasks ahead. The current records legislation was introduced over 35 years ago and hinders the efforts of PROV and agencies to manage records effectively. The legislation should be reviewed to make it relevant to the modern public sector. This audit has identified many areas for improvement by PROV. Key to this is the need for PROV to adopt a more strategic approach to the provision of its services and products and to obtain appropriate information on the state of records across government. It also needs to engage more fully with the public sector, and ensure agencies are fully aware of how PROV can assist them. We found that many agencies had not established effective frameworks to ensure the sound management of their records. Senior management needs to provide greater support and promotion for strategic records management practices in their agencies. Despite the growing use of electronic records, agencies were still requiring their staff to maintain hardcopy records. To manage their electronic records appropriately, agencies need to provide sound, comprehensive guidance and adequate training to ensure all staff are aware of their responsibilities. There are significant risks for government if electronic records are not well managed. Finally, significant amounts of government business are outsourced to external parties, but government agencies are not ensuring contractors are aware of and comply with the agency s recordkeeping requirements. As a result, agency records may not be captured. DDR PEARSON Auditor-General 12 March 2008 Records Management in the Victorian Public Sector v
5 Contents Foreword... v 1. Executive summary Introduction Findings Recommendations About records management Why is managing records important? What is a record? About the Public Record Office Victoria Audit objectives and scope Regulatory framework for managing records The framework for managing public records Legislative requirements for records management in Victoria Audit s assessment of the current records management regulatory framework Public Accounts and Estimates Committee review of PROV Comparison of the Public Records Act 1973 with similar interstate legislation Performance of PROV in facilitating sound records management in the public sector Introduction Establishing records management standards Assisting agencies to better manage their records Records management in the public sector Introduction Records management objectives and policies Management and oversight Strategic planning and resource allocation Operational procedures and systems Records management staff Communications Records management monitoring and reporting Records Management in the Victorian Public Sector vii
6 Contents 6. PROV s management of specific recordkeeping activities Introduction Retention and disposal of records Transfer of records to PROV Records provided to agencies PROV performance measurement and reporting Introduction PROV s performance management Appendix A. Conduct of the audit Appendix B. Agencies involved in the performance audit Appendix C. Glossary Appendix D. Public Accounts and Estimates Committee 1996 Inquiry into the Public Record Office Victoria Recommendations Appendix E. Examples of common administrative public records and their retention periods viii Records Management in the Victorian Public Sector
7 1 Executive summary 1.1 Introduction The public sector s ability to deliver efficient and effective services depends upon accurate, up-to-date records that can be readily accessed as needed. The management of public records is an integral part of the effective administration and governance of public sector agencies and facilitates: sound decision-making efficient and effective customer services managing business information and resources meeting legal, evidential and accountability requirements documenting significant events and preserving historically and culturally important records. The Public Records Act 1973 assigns primary responsibility for records management to the officer-in-charge of government agencies. Records management is also a core responsibility of all individuals in agencies. The Act establishes the Public Record Office Victoria (PROV) to facilitate sound records management in the public sector by establishing records management standards and assisting agencies to better manage their records. This audit examined whether: public sector agencies are managing records in accordance with the Public Records Act 1973 PROV is operating efficiently and effectively in facilitating sound records management in the public sector. To assess records management in agencies, a framework comprising seven principles of good practice in records management was used. The principles are consistent with the Australian Standards for Records Management (AS ISO 15489), and standards issued by PROV. Around 100 agencies undertook a self-assessment of their records management frameworks against the VAGO framework. Eight agencies were selected for more detailed examination. Records Management in the Victorian Public Sector 1
8 Executive summary Establishing an effective records management framework presents a significant business challenge for many agencies. The increasing legislative and other requirements on public administrators and developments in information technology have a direct impact on the way records are managed. 1.2 Findings Records management in public sector agencies Agencies do not have in place comprehensive frameworks to manage their records. While some agencies, driven by the critical importance of their service delivery and an acknowledgement of the risks that poor recordkeeping practices bring, had taken action to address their records management, other agencies had not. In these latter cases, their recordkeeping practices conformed with traditional registry approaches and did not reflect today s business environment. Almost half of the agencies self-assessments considered that the standard of their records management required improvement. Twelve per cent considered their records management frameworks were unsatisfactory. Specifically we found: more needs to be done by senior management to promote and provide support for records management. There is a lack of understanding by senior management of what good records management looks like and, therefore, what should be done. most agencies did not adopt a strategic approach to records management. This is key to advising management of the resources required for them to adequately fulfil their legislative obligations. strategic planning for records management is complex and requires specialist skills and experience. These skills are not normally found in the records management function. the management of electronic records including and websites poses a significant challenge for agencies. Most agencies had yet to implement systems that ensured their business records were captured and would be accessible in the long term. Agencies were still leaving it to staff to capture business s and file them appropriately, mostly using a print-to-paper approach. While most agencies had procedures and practices to assist their staff in managing records, they acknowledged these procedures were inconsistent with records standards and advice provided by PROV. 2 Records Management in the Victorian Public Sector
9 Executive summary Performance of PROV The Public Records Act 1973 establishes PROV and a co-regulatory framework for the management of public records. The Act, however, requires review to bring it up-to-date with current conditions. The existing legislation does not cover all the elements of a sound, contemporary, regulatory framework or outline the roles and responsibilities of PROV and agencies relevant to today s world. PROV, particularly over the past 10 years, has made some significant achievements in facilitating records management to the public sector, albeit with limited resources. This has included the establishment of the digital archive and a range of records management standards and information for public sector agencies, training programs and consultancy services. Primarily, it has assisted departments in their implementation of electronic recordkeeping systems as they seek to comply with the Victorian Electronic Records Strategy and provided the public sector with recordkeeping advice on significant emerging issues. Agencies were generally satisfied with the quality of the services they received from PROV. There is, however, a need to adopt a more strategic approach to servicing the public sector. This would involve PROV: gaining comprehensive information on the state of records management across the Victorian Government, including key risks and the standard of agencies records management frameworks. This will enable PROV to target provision of its services and products to priority areas. actively engaging with the entire public sector to raise awareness of its recordkeeping obligations and how PROV can assist agencies to improve their recordkeeping ensuring the products and services it provides to agencies, such as its records standards and training, remain up-to-date, meet agency needs and are accessible to all agencies ensuring core recordkeeping activities such as processing agencies disposal and record transfers are adequately resourced and efficiently conducted. The information contained in this report about PROV s operations and the state of agencies records management frameworks, should be a useful starting point for PROV to develop a more strategic operational approach. Records Management in the Victorian Public Sector 3
10 Executive summary 1.3 Recommendations Regulatory framework for managing records (refer Part 3 for further details) The Public Records Act 1973 should be comprehensively reviewed to make it relevant and appropriate to the contemporary public sector (Recommendation 3.1). Records management in the public sector (refer Part 5 for further details) In collaboration with the central agencies, PROV should assist all public sector agencies to: adopt a more strategic approach to the management of their records, which encompasses: gaining an understanding of the business identifying records management needs and risks assessing the adequacy of the existing recordkeeping environment and practices developing a strategic plan to ensure records management objectives and needs are addressed (Recommendation 5.4). review their procedures to ensure: they cover all recordkeeping activities, including the management of electronic messaging and web-based information they comply with records standards and advice issued by PROV they are aligned with the agency s records management objectives and policies (Recommendation 5.5). take a more strategic approach to managing their records management staff. This would involve agencies: having processes to identify staff needed to establish an effective records management function periodically assessing the capability of their staff and comparing this capability with their identified resource requirements, to identify staff training and development needs for existing staff and the need for new staff with specific skills developing a plan to manage and monitor their records management staff (Recommendation 5.6). assess whether staff understand the importance of sound recordkeeping and their responsibility for managing records under their control. Based on the results of this assessment, agencies should review the mechanisms used to communicate with staff on records management (Recommendation 5.8). use the results of their assessment of contractor compliance with their own agency s records management requirements to review their communications with contractors (Recommendation 5.8). 4 Records Management in the Victorian Public Sector
11 Executive summary ensure regular monitoring and evaluation of recordkeeping activities, which includes: establishing a compliance program that allows systematic monitoring of agency adherence to required recordkeeping procedures, standards, the operation of recordkeeping systems and progress in delivering key records management strategies generation of information on the performance of the records management function ensuring results of performance monitoring are reported to senior management and that appropriate and timely corrective action is taken (Recommendation 5.9). PROV should: develop and provide advice and guidance to agencies on formulating records management objectives and policies, in conjunction with relevant agencies and industry groups (Recommendation 5.1) establish a program to assist senior agency staff to champion records management in agencies (Recommendation 5.2) assist agencies develop records management strategic plans by establishing guidance material and templates (Recommendation 5.3) continue to liaise with relevant agencies and the State Government in developing strategies that address skill shortages in the records management field (Recommendation 5.7). Performance of PROV in facilitating sound records management in the public sector (refer Part 4 for further details) Records management standards PROV should: review the records management standards regularly, at least every five years (Recommendation 4.1) review its communications approach to better assure agencies are aware of the standards and the legislative requirement for them to comply (Recommendation 4.2) closely monitor its standards review project, to ensure it is completed in accordance with project timelines (Recommendation 4.3) incorporate guidance on strategic records management principles and their application into the revised standards (Recommendation 4.3). Records Management in the Victorian Public Sector 5
12 Executive summary Assisting agencies PROV should: gather comprehensive information on the critical business functions performed by agencies, their broad recordkeeping needs and the major risks facing the Victorian public sector (Recommendation 4.4) develop a strategic approach to the provision of its services and products (Recommendation 4.4) implement its Building Victorian RecordKeeping Capability Strategy and introduce its planned competency-based training program (Recommendation 4.5) introduce additional training courses to address unmet agency training needs (Recommendation 4.5) review the communication of its training courses and implement strategies to raise agency awareness of them (Recommendation 4.5) make training courses more accessible to agency staff, particularly in rural and regional areas (Recommendation 4.5) to ensure continuous improvement, undertake a survey of course participants, after they return to work, to determine the extent to which the training has assisted them improve recordkeeping in agencies (Recommendation 4.6) in consultation with the VERS Steering Committee: ensure that its revision of the primary capability performance criteria does not compromise the quality of systems developed and implemented by departments establish realistic timelines for future reporting to government on stages 2 and 3 of VERS implementation (Recommendation 4.7) develop a comprehensive strategy to support agencies to establish VERS compliant systems. In doing so, it should consult with public sector agencies and industry groups to establish realistic and effective strategies and timelines (Recommendation 4.8) improve its communication with agencies so they are aware of the advice and guidance available (Recommendation 4.9) establish, for the benefit of its staff, guidance on the provision of advice to agencies (Recommendation 4.9) in consultation with agencies, develop a comprehensive, coordinated strategic approach to public sector education and awareness encompassing: a clear delineation of PROV and agencies respective roles and responsibilities identification of target audiences and appropriate communication mechanisms a program of regular activities to promote records management across the public sector (Recommendation 4.10) 6 Records Management in the Victorian Public Sector
13 Executive summary establish mechanisms to periodically report on the cost of providing its principal record services to the public sector. This will assist with determining whether it is using its limited resources cost-effectively (Recommendation 4.11) establish a strategic framework to manage its relationship with agencies that includes: an agency relationship management strategy, together with clear policies and procedures a finalised charter/code of conduct for PROV services mechanisms to ensure PROV is engaging all agencies policies and procedures to manage agency relationships a client management system to document interactions with agencies (Recommendation 4.12). PROV s management of specific recordkeeping activities (refer Part 6 for further details) Retention and disposal of records PROV should: review the adequacy of resources assigned to the review and approval of agency retention and disposal authorities adopt a more proactive approach to assisting agencies in appraising their businesses and establishing appropriate retention and disposal authorities assess the extent to which public sector records generated by agencies are covered by its records retention and disposal authorities ensure that the procedural guidance, established for its staff, in providing agencies with advice and assistance on managing records retention and disposal, is up-to-date monitor agency compliance with the records management standards on retention and disposal of records ensure the review of records standards endorses a program of regular records disposal in line with established disposal authorities (Recommendation 6.1). Transfer of records to PROV PROV should: require agencies to nominate a timeframe after which an agency s administrative use for its various permanent records expires and the records are transferred to PROV. This requirement could be included in the agency s RDAs (Recommendation 6.2) annually gather information on the level, nature and age of permanent records held by agencies to monitor agency compliance and identify future records workflow and storage issues. This information could be obtained by both surveying agencies and reviewing the archival holdings (Recommendation 6.3) Records Management in the Victorian Public Sector 7
14 Executive summary work with agencies holding large volumes of permanent records, to identify and resolve any impediment to the timely transfer to the archives (Recommendation 6.3) develop comprehensive and up-to-date procedures to guide its staff in managing records transfer and to ensure a consistent approach is adopted in dealing with agencies (Recommendation 6.3). Records provided to agencies PROV should continue to pursue the recovery of long overdue, permanent records loaned to agencies (Recommendation 6.4). PROV performance measurement and reporting (refer Part 7 for further details) PROV should: develop a suite of relevant and appropriate targets and indicators to measure its performance both in achieving its objectives and in the standards of recordkeeping in public sector agencies develop comprehensive performance information that can be compared to the established targets to measure PROV performance develop its capacity to report on its own and agency performance (Recommendation 7.1). RESPONSE provided by the Director and Keeper of Public Records, Public Record Office Victoria In general I agree with the findings and recommendations as presented. The report identifies an extensive set of objectives that PROV has across the whole of Victorian government. The report acknowledges that to achieve these PROV has to manage its resources and prioritise its activities. PROV recognises that greater strategic planning would support improved outcomes, but we will still have to work within the constraints of our resources. PROV has used market segmentation and prioritisation to deliver outcomes to limited areas of government based on priorities determined by government funding (e.g. the Victorian Electronic Records Strategy (VERS) program is only funded to provide services to inner budget departments) and our own assessment of greatest need. This type of prioritisation will always be required. In relation to VERS I wish to note that this is a world renowned approach to managing digital records. It has delivered ground breaking outcomes for Victorian government agencies that will allow them to manage digital records over the long term. It underpins the building of a world leading digital archive. It has engaged the software development and vendor market in the certification of products and promoted the development of new products. 8 Records Management in the Victorian Public Sector
15 Executive summary RESPONSE provided by the Director and Keeper of Public Records, Public Record Office Victoria (continued) It has enabled PROV to develop significant knowledge and understanding of the issues confronting government in the management of digital records. This knowledge is used to help agencies meet their electronic records management responsibilities and to work in Australia and across the world on the development of standards in this area. VERS is a strategic approach, albeit one which has operated over 13 years and without a guaranteed funding stream (VERS has been funded through a series of successful budget bids). RESPONSE provided by the Secretary, Department of Premier and Cabinet The department acknowledges the importance of record management as a key business practice for public sector agencies. The department agrees that strengthening public sector records management is an important issue and the Public Record Office Victoria plays an important role in achieving good practice across the sector. Public Record Office Victoria was established under the Public Records Act 1973 and its functions are set out in this Act. The Minister for the Arts has already foreshadowed a review of the Public Records Act 1973 with a view to updating the legislation. This department-led review will take into account the findings and recommendations of the audit. Records Management in the Victorian Public Sector 9
16 About records management 2 About records management 2.1 Why is managing records important? The management of public records is an integral part of the effective administration of public sector agencies. It facilitates: sound decision-making efficient and effective customer services managing business information and resources meeting legal, evidential and accountability requirements documenting significant events and preserving historically and culturally important records. The public sector s ability to deliver efficient and effective services depends upon accurate, up-to-date and easily accessible records. Agencies are also required to manage records in a manner that is consistent with open and accountable government, while protecting the integrity of records and maintaining appropriate security and confidentiality over the information they contain. Full and accurate records are a prerequisite to agencies being able to meet their statutory and legal obligations. Poor recordkeeping practices contribute to organisational inefficiencies, affect the ability of staff to make reliable business decisions and weakens government s accountability. 2.2 What is a record? A record is information (in any form) created or received and maintained by an organisation or person in the transaction of business or the conduct of affairs and kept as evidence of such activity. 1 This information can be recorded on various media including paper documents, maps, diagrams, sound and video recordings, photographs, information produced and stored in computers, in s, blackberrys and USB sticks. 1 The Public Records Act 1973 defines a record as any document within the meaning of the Evidence Act Records Management in the Victorian Public Sector 11
17 About records management Business information includes: contractual agreements commercial contracts, employment contracts policy and procedural documentation information from meetings agendas, minutes, supporting papers, resolutions business correspondence enquiries from the public or staff, file notes of telephone or face-to-face conversations, s, advice/instructions provided, confirmations information on work-related conversations, work planning documents, grievances, professional development plans, performance reviews Public records A public record is any record made or received by a: public officer in the course of his duties court or person acting judicially in Victoria. 2 The types of public records vary from one agency to another and reflect the different business functions, structures, systems, clients and customers. They can include: land titles and property transactions customer or client records medical records student records maps and designs accounting transactions details of criminal offences human resource records such as employment history and leave records contractual arrangements What is records management? Records management 3 is control of the creation, receipt, maintenance, use and disposal of records, including processes for capturing and maintaining evidence of, and information about, business activities. Recordkeeping 4 involves making and maintaining complete, accurate and reliable evidence of business transactions. This is the responsibility of all staff within an agency. 2 Public Records Act 1973, s2. 3 A glossary of recordkeeping terms published on the State Records New South Wales website, < Viewed 13 February Ibid. 12 Records Management in the Victorian Public Sector
18 About records management 2.3 About the Public Record Office Victoria The Public Record Office Victoria (PROV) was established under the Public Records Act 1973 as the State archives and records management authority to ensure the effective and efficient management and preservation and use of the State s public records. PROV is an administrative office attached to the Department of Premier and Cabinet, and is managed by the Keeper of Public Records. PROV s core functions, as outlined in the Act, include: establishing standards for the efficient management of public records assisting public officers in applying the standards to records under their control receiving, securing and preserving permanent records in the State s archives providing facilities for access to public records by the community and the Government of Victoria. The State s records collection is managed by PROV in both physical and electronic (digital archive) repositories. The digital archive was completed in 2005 at a cost of around $5.5 million. The entire collection (both physical and digital records) is valued at around $190 million. PROV s business is broadly structured into two operational areas: Record Services this group assists agencies in their management of public records by providing records management standards and advice on the application of those standards via the provision of training and consultancy services Access Services this group maintains, promotes and provides access by government and the public to the State s archival records. In , PROV had an operating expenditure of almost $7 million (excluding capital asset charges and depreciation) and employed around 70 staff (22 staff in Record Services, 34 staff in Access Services and 14 staff in Executive and Business Services). The Public Records Advisory Council (PRAC) was established under the Act to: advise the Minister on matters relating to the administration of the Act promote cooperation between PROV and other agencies within government, in consultation with the Keeper of Public Records. Records Management in the Victorian Public Sector 13
19 About records management 2.4 Audit objectives and scope The objective of the audit was to determine whether: public sector agencies are managing records in accordance with the Public Records Act 1973 the Public Record Office Victoria is operating efficiently and effectively in facilitating sound records management in the public sector Audit of public sector agencies A records management framework containing seven principles of good practice was developed drawing from authoritative literature, PROV and expert practitioners. The principles are consistent with the Australian Standards for Records Management (AS ISO 15489), and standards issued by PROV. The audit assessed whether a selection of public sector agencies had adopted the principles and practices outlined in this framework. Information on records management in agencies was gathered through: a detailed self-assessment questionnaire sent to eight agencies. 5 Agency management together with relevant records management staff self-assessed their records management against the seven principles of good practice. Audit met with agency staff to discuss and confirm agency responses. Following these discussions the agencies assessment was confirmed or amended a general self-assessment questionnaire sent to 104 agencies 6 to obtain information on records management and an indication of whether the seven principles had been adopted across the Victorian public sector Audit of PROV The audit of PROV focussed on the services it provides to public sector agencies to facilitate sound recordkeeping and records management practice. Audit evidence was gathered through interviews with PROV staff, review of PROV documents and discussions with stakeholders and staff from similar offices interstate. There were three main focus areas for this work: PROV s role in assisting agencies to better manage their records PROV s compliance with its legislative obligations implementation of the Victorian Electronic Records Strategy (VERS). The audit did not include a review of community and government access to the archives or PROV s inspection and approval of agency storage facilities. Further information on the conduct of the audit, agencies involved in the audit and other relevant information is contained in Appendixes A to E of this report. 5 Refer to Appendix B for details of the eight agencies. 6 Refer to Appendix B for details of the 104 public sector agencies. 14 Records Management in the Victorian Public Sector
20 About records management The audit was performed in accordance with the Australian auditing standards applicable to performance audits, and included tests and procedures sufficient to enable audit conclusions to be reached Report structure This report is structured as follows: an overview of the regulatory framework for managing records PROV s performance in facilitating sound records management records management in the public sector PROV s management of specific recordkeeping activities PROV performance measurement and reporting. The total cost of the audit was $ This cost includes staff time, overheads, expert advice and printing. Records Management in the Victorian Public Sector 15
21 3 Regulatory framework for managing records At a glance Background The Public Records Act 1973 establishes a co-regulatory framework for sound management of public records in Victoria. Since 1973, there have been substantial changes to the public sector environment that have impacted on recordkeeping and records management. In particular, there has been a significant movement from paperbased records to electronic records and a wider range of legislative, policy and administrative requirements that have recordkeeping implications. Key findings It cannot be assured that records management objectives are being met as the current framework does not include systemic mechanisms to monitor compliance with the Act and the records management standards. PROV s penalties for non-compliance with the Act are amongst the lowest of all other state and commonwealth records offices and, are inconsistent with recent amendments to other Victorian legislation. The current Victorian penalties trivialise the seriousness of non-compliance. The Public Records Act 1973 requires review to bring it up-to-date with contemporary circumstances, to clarify the roles and responsibilities of PROV and government agencies and to strengthen the records management framework. The Minister has indicated an intention to review the Public Records Act 1973 over the next 12 to 18 months. Key recommendation The Public Records Act 1973 should be comprehensively reviewed to make it relevant and appropriate to the contemporary public sector. The review should involve consultation with key stakeholders including the central agencies, to consider mechanisms to heighten the awareness of records management as a core governance function. It should also include consideration of the recommendations of the 1996 PAEC review. Records Management in the Victorian Public Sector 17
22 Regulatory framework for managing records 3.1 The framework for managing public records One of the State Government s broad policy objectives is to manage public records effectively in order to: support the business of government maintain a record of the business of government (accountability) preserve records for their cultural or historical significance. The Public Record Act 1973 (the Act) establishes a co-regulatory framework for the purpose of ensuring sound management of public records in Victoria. Regulation is an important mechanism available to the government, to influence agency behaviour and practice to achieve its strategic policy objectives. The key characteristics of a sound regulatory system are outlined in Figure 3A. Figure 3A Key characteristics of a sound regulatory system Key characteristics Setting the requirements Managing the relationship between the regulator and the entities subject to regulation Discussion Regulation should: clearly outline what government seeks to achieve, how these objectives are to be achieved, what regulated entities are required to do and the roles and functions of individuals and agencies established to facilitate the effective administration of the legislation achieve policy objectives with minimum side effects including costs (to both government and regulated entities) be of an appropriate level given the impact of non-compliance be enforceable be flexible to encourage continuous improvement. Regulators are increasingly applying a client focus to entities they regulate. This involves the regulator treating the regulated entities as clients or customers and seeking to understand the environment in which they operate and their needs. This information is then used by the regulator in determining how it will undertake its regulatory role. The challenge for regulators choosing this approach is to balance the enforcement of regulatory requirements while also adhering to customer service principles. For there to be an effective relationship between the regulator and entities subject to regulation: relationship outcomes need to be clearly defined and agreed all parties need to understand their roles, obligations and commitments there need to be mechanisms in place to facilitate effective communication the regulator needs to assist entities in complying with regulatory requirements procedures for handling disagreements need to be established. 18 Records Management in the Victorian Public Sector
23 Regulatory framework for managing records Key characteristics Monitoring compliance Managing non-compliance Promoting sound records management Reporting on compliance with regulation Ensuring the rules remain relevant Figure 3A Key characteristics of a sound regulatory system - continued Discussion Regulators have a responsibility to provide assurance to the government and the community that regulated entities are meeting mandated requirements. In order to provide this assurance, the regulator needs to monitor the level of entity compliance. Mechanisms used to monitor compliance include audits, inspections, self monitoring and third party monitoring. In choosing monitoring mechanisms it is important to consider the effectiveness of detection systems (for example, responding to complaints is likely to be less effective than systematic inspections). In order for monitoring mechanisms to be cost-effective they should be focussed on high risk areas or targeted at entities with a history of non-compliance. A regulation is neither efficient nor effective if it is not complied with or cannot be effectively enforced. One way to facilitate compliance is to require the responsible officer of the entity to provide a formal representation that the agency complies with specific requirements. Without adequate enforcement, the credibility of the regulation may be compromised and the desired objectives are unlikely to be achieved. To encourage compliance there needs to be a system of penalties for breaches (warnings, persuasion, financial penalties and prosecution). To adequately address non-compliance the regulator needs to determine the appropriate response to identified non-compliance and have a process to ensure the response is appropriate and consistently applied, in view of the risks posed by the non-compliance. Mechanisms that are useful in promoting sound records management include: presentations on records management at forums and conferences briefings to secretaries and heads of public sector agencies. In order for the government to gain assurance that its strategic policy objectives are being implemented, it needs information on the extent to which regulated entities are complying with the legislative requirements. This would normally involve the regulator periodically reporting to government on the outcome of its compliance monitoring and providing details of where there is significant non-compliance with the legislation. Regulation (including the standards) should be reviewed regularly to ensure that it is meeting its specified objectives. If the objectives are not being met, then consideration should be given to changing the nature of the regulation or relying on other measures to achieve the desired outcomes. The Government s Delivering Good Government policy requires all of the State s legislation to be reviewed and modernised by 2010 and all laws to be written in clear English so they can be easily understood. The Subordinate Legislation Act 1994 (section 5), requires all regulations to be remade at least every ten years. In establishing the regulatory framework consideration should be given to establishing requirements for: periodic reviews of the legislation development of a review strategy (including information to be collected and how the achievement of the government objectives will be measured and assessed). Sources: Victorian Auditor-General s Office; Victorian Guide to Regulation, second edition, April 2007, Department of Treasury and Finance; Administering Regulation, Better Practice Guide, March 2007, Australian National Audit Office. Records Management in the Victorian Public Sector 19
24 Regulatory framework for managing records 3.2 Legislative requirements for records management in Victoria The role of PROV is to assist and influence public sector agencies, in order to achieve the Government s records management objective. The Public Records Act 1973 is the oldest act of its kind in any jurisdiction in Australia and New Zealand. With the exception of some minor amendments, the legislation has remained unchanged for 35 years. The Act outlines the requirement for the management of records in public sector agencies, referred to in the legislation as public bodies. In addition to the Public Records Act 1973, several other acts and regulations include recordkeeping requirements dealing with access to personal information, security of records and the nature of records to be maintained. These acts and regulations are outlined in Figure 3B. Figure 3B Legislation and regulations that impact on records management and recordkeeping Public Records Act 1973 Industryspecific Acts Industry specific regulations Equal Opportunity Act 1995 Evidence Act 1958 Health Records Act 2001 Recordkeeping FOI Act 1982 Accident Compensation (OHS) Act 1986 Privacy Act 2000 Financial Management Act 1994 Electronic Transactions Act 2000 Crimes Act 1958 Source: Public Record Office Victoria, Good Records, Good Business, Good Governance Presentation, September Records Management in the Victorian Public Sector
25 Regulatory framework for managing records In addition, the code of conduct for Victorian public sector employees of special bodies 1 indicates that all public servants (including consultants, contractors, part-time workers, remote workers and casual staff) have an obligation to maintain accurate and reliable records. 3.3 Audit s assessment of the current records management regulatory framework We assessed Victoria s records management regulatory framework against each of the seven key characteristics listed in Figure 3A. The results of this assessment are shown in Figure 3C. The extent to which PROV undertakes certain functions and exercises the powers provided in the legislation is outlined in bold. Characteristics of a sound regulatory framework Figure 3C Characteristics of a sound regulatory framework results of audit s assessment Current records management framework (legislative requirements) Setting the requirements PROV: exists for the better preservation, management and utilisation of the State s public records establishes records management standards for the efficient management of public records. PROV undertakes both these tasks. Managing the relationship between the regulator and entities subject to regulation The Keeper of Public Records: assists public officers in applying the records standards to records under their control publishes articles concerning the activities of, and the facilities provided by PROV. PROV undertakes both these tasks but has not established a relationship with all agencies. 1 code of conduct for Victorian public sector employees of special bodies, section 5.4, open to scrutiny. The Code is binding on all public sector employees of special bodies and contravention of the code constitutes misconduct. Records Management in the Victorian Public Sector 21
26 Regulatory framework for managing records Characteristics of a sound regulatory framework Figure 3C Characteristics of a sound regulatory framework results of audit s assessment continued Current records management framework (legislative requirements) Monitoring compliance with the requirements General requirements Public sector agencies are required to: keep full and accurate records of the business carry out a program of records management in accordance with the standards. Responsibility for monitoring agency compliance with the legislation is not assigned. There is very limited monitoring by public sector agencies and PROV undertakes some select monitoring of agency compliance, i.e. electronic recordkeeping system assessments and agency disposal notifications. The legislation provides the Keeper with the power to enter agency premises to inspect their: storage and conservation of public records program of records management. PROV usually only inspects agency storage arrangements and records management programs when requested to do so by the agency. Specific requirements Public offices must transfer permanent public records to PROV where the records are over 25 years old and no longer required by the agency. Responsibility for monitoring agency compliance is not assigned. PROV does not monitor agency compliance and does not have the power to compel agencies to transfer their records to the archive. The legislation outlines requirements for the removal, sale or destruction of public records and establishes penalties for the unlawful sale, removal, damage or destruction of public records (i.e. 5 penalty units 2 ). Responsibility for monitoring agency compliance is not assigned. PROV investigates incidents brought to its attention. 2 A penalty unit equates to $ Records Management in the Victorian Public Sector
27 Regulatory framework for managing records Characteristics of a sound regulatory framework Figure 3C Characteristics of a sound regulatory framework results of audit s assessment continued Current records management framework (legislative requirements) Managing non-compliance The legislation provides penalties for non-compliance with the Act. For example: unlawful sale, removal, damage or destruction of a public record 5 penalty units contravention of the conditions placed on an individual s access to public records in its care 5 penalty units failure to produce a prescribed record to PROV within 21 days 1 penalty unit. Responsibility for managing agency non-compliance is not assigned and PROV has not taken action to enforce the penalties for non-compliance (even where it is aware of the non-compliance). Low penalties are unlikely to influence agency behaviour. Promoting sound records management Reporting on agency compliance with the legislation and the records standards Ensuring the rules remain relevant The legislation does not explicitly provide for the promotion of sound records management in the public sector. Responsibility for reporting on agency compliance is not specifically assigned in the legislation. PROV is required to prepare and lodge an annual report to the Minister for tabling in the Parliament. PRAC has the power to report and make recommendations to the Minister on any matter relating to the administration of the Act. PROV prepares an annual report on its operations and provides this report to the Minister. PRAC has made only limited use of its reporting powers. Agency compliance with the legislation or PROV standards is not reported. There is no requirement for the regulatory framework or the standards to be reviewed Source: Victorian Auditor-General s Office. The Act was enacted almost 35 years ago and has only had minor revisions since then. Over the past five years the Public Records Advisory Council has made consistent submissions to government for a review of the legislation (refer to part 3.5). The Minister has indicated an intention to review the Act over the next 12 to 18 months. PROV s records standards are currently being reviewed, the first review since they were developed almost ten years ago (refer to part 4.2). Records Management in the Victorian Public Sector 23
28 Regulatory framework for managing records Since 1973 substantial change to the environment in which the public sector operates has significantly impacted on recordkeeping and records management, for example: the significant movement from paper-based records to electronic records and recordkeeping systems businesses operate in progressively more complex technological environments there are now more legislative, policy and administrative requirements impacting on records management privacy considerations, data protection and identity theft have required both greater accessibility to records and more stringent security measures over records access increased litigation concerning the wilful destruction of records. These factors further reinforce the need for the Act to be reviewed. Selection of newspaper headlines and articles outlining recent incidents of poor recordkeeping Monitoring compliance with PROV standards When agencies were asked (via the self-assessment questionnaire) whether their compliance with PROV standards should be monitored: 60 per cent of respondents said yes 30 per cent of respondents said they did not know if compliance with standards should be monitored 10 per cent of respondents said they did not consider compliance should be monitored. Agencies considered that more than one agency should undertake the compliance monitoring role. Most agencies (68 per cent and smaller agencies) favoured selfassessment of their compliance with the standards, a significant number of agencies considered there was scope for PROV (39 per cent) and other external parties (24 per cent) to be involved in compliance monitoring. 24 Records Management in the Victorian Public Sector
29 Regulatory framework for managing records Conclusion The current records management framework in Victoria does not include systemic mechanisms to: monitor compliance with the Act and records management standards investigate and manage non-compliance with the Act and records management standards (including the enforcement of penalties) report on agency compliance with the Act and records management standards. In the absence of these mechanisms, the State cannot be assured that its records management objectives are being met. The Public Records Act 1973 is out-of-date and the penalties specified in the Act are unlikely to provide a sufficient incentive to comply with the Act. 3.4 Public Accounts and Estimates Committee review of PROV In October 1996 the Public Accounts and Estimates Committee (PAEC) reviewed the operations of PROV 3 to identify: options available to the Government and PROV to meet the future storage needs for the State s public records ways in which PROV could re-engineer its records management process to meet its storage, preservation and access responsibilities for the State s electronic records strategies that could be used to manage the increasing quantity of records being generated by the Government in Victoria ways in which PROV could better meet increasing demand for access to the State s archival records. The final report included 57 recommendations aimed at enhancing PROV s operations and ability to meet its objectives (Refer to Appendix D for a listing of the recommendations). The PAEC also sought an improved legislative framework to ensure that the responsibilities of the Public Record Office and each government agency in relation to the preservation of public records can be improved upon. 4 Specific areas of recommendation by the PAEC included: the Director/Keeper [of PROV] report directly to the Parliament by way of specific annual report, on the performance of government agencies in meeting their responsibilities under the Act. The report should identify any government agency which, in the opinion of the Keeper, is not complying with the public records standards 3 Public Accounts and Estimates Committee, Inquiry into the Public Record Office Victoria, Report to the Parliament, October Ibid. p. ix. Records Management in the Victorian Public Sector 25