Baw Baw Shire Council, VIC - Local Government Managers Australia

strengthen
engaged
communities
together
Information, opinions and statements in
this report can be attributed only to the
team members (listed below) and may
not represent the views of the Baw Baw
Shire Council.
The Baw Baw Blokes LGMA team hereby
give permission to LGMA National to use
the information in this report as required.
baw baw shire council lgma management challenge
The Baw Baw Blokes - Cameron Gray, Matthew Driessen, Robert Barr, Sasee Manodeepan and Garry Websdale

section one - understanding the baw baw community
a) about baw baw shire
Baw Baw Shire is approximately 100 kilometres east of Melbourne in the heart of West Gippsland. It has an area of
4,027 square kilometres and was formed in 1994 from the amalgamation of the former Buln Buln and Narracan
Shires, the Rural City of Warragul (previously the Shire of Warragul), and some parts of the Shire of Upper Yarra.
The northern half of the shire is heavily forested and lies in the Great Dividing Range and its foothills, including parts
of the Mt Baw Baw National Park, while the shire is bounded by the Strzelecki Range and its foothills to the south. The
„middle‟ part of the shire is more densely populated, particularly in areas close to the Princes Highway and the
Gippsland railway line, but still retains its rural environment. Baw Baw is bordered by South Gippsland, Cardinia, Yarra
Ranges, Mansfield Shire, Wellington Shire, and Latrobe City.
As the suburbs situated along the periphery of Melbourne have become more densely populated, the population in the
towns of Warragul and Drouin are rising steeply. From 2006 to 2011, Baw Baw Shire's population increased by 5,688
people (15.3%). This represents an average annual population change of 2.89% per year over the period.
Analysis of the demographic age groups of Baw Baw Shire in 2011 is similar when compared to Regional Victoria.
Overall, 24.5% of the population was aged between 0 and 17, and 23.5% were aged 60 years and over, compared
with 23.5% and 24.2% respectively for Regional Victoria.
b) snapshots of baw baw shire
population In 2011 was 44,042
genders
49% men and 51% women
39 years (Australia: 37)
median age
Over 55 ~ 27.5%
indigenous 0.9% (Australia: 2.3%)
9.8% (Australia: 22.2%)
born overseas
Majority from UK, NZ and Europe
Table 1: Snapshot statistical profile of Baw Baw
Baw Baw Shire is largely rural in nature, and is
currently experiencing unprecedented residential
expansion. The larger towns of Warragul (12,943),
Drouin (7,523) and Trafalgar (2,684) sit alongside
a handful of smaller towns with populations
ranging from 597 to 1,600 and a sprinkling of
smaller communities with a population below 500.
2009/10 Australian Bureau of Statistic (ABS) data
indicates that Baw Baw Shire was the sixth (6th)
fastest growing LGA in Victoria.
The projected population of Baw Baw is expected to increase by 31.8% from the period 2011 to 2026 (as projected by
DPCP - Victorian In Future). Below is the estimated population growth of residents in Baw Baw Shire. 1
2011 2016 2021 2026 2031 Number Percentage
Population 44,042 49,174 54,439 59,578 64,608 20,566 31.83
The projected age structure sees a decline in persons 0 – 59 years generally (with the exception of the 25 – 34 year
age group which is expected in increase slightly), and an increase in persons 60 years +. The largest increase is
anticipated in the 70 – 84 year age group which is expected to increase by 1.95% during this period.
In 2011, Baw Baw Shire had a higher median weekly household income than both Latrobe City and the Gippsland
Region, however lower than the Victorian median. On average, individuals in Baw Baw receive $38 per week more
than individuals in the Gippsland region, and $50 less than the state average.
In 2011, a higher proportion of Baw Baw residents aged between 15 and 64 years were working full time compared to
Latrobe and Gippsland residents of this age. Baw Baw had a lower proportion of people in this age group working full
1 Central West Gippsland Primary Care Partnership

time compared to Victoria as a whole. Baw Baw had as many residents not in the labour force as were working full
time, whilst the number of people not in the labour force was 1.2 times those employed full time in Latrobe LGA. .
According to ABS 2011 Census data, the three industries with the highest proportion of population employed in Baw
Baw were: Health Care and Social Support, Construction and Retail. In 2011, Baw Baw had a significantly higher
proportion of the population working in agriculture, than Latrobe and Victoria as a whole. This was also true of
Gippsland as a whole. Baw Baw had 4 times the percentage of population working in agriculture, forestry and fishing
compared to Latrobe and Victoria as a whole. 91% of homes in Baw Baw Shire Council have access to the internet,
which is higher than the Victorian average.
c) key shifts and changes in baw baw shire
Baw Baw is currently experiencing a period of significant population growth which is expected to continue into
the future. By 2026 there may be an additional 16,000 people living in the shire, and if this rate of growth
continues, by 2050 there could be double our current population living in the municipality. The urbanisation
puts pressure on the residents to pay more in rates and charges in order to keep up with the infrastructure
needs of the community. Increase in developments increases pressure on the roads, drainage and
environment which increases the need for maintenance.
The aging profile of Baw Baw is resulting in increasing demand for services for the aged and access to
services is becoming a significant issue for older residents in smaller townships and communities. Baw Baw‟s
older population are increasingly socially isolated and there is a greater need on building connections for the
community. In Baw Baw younger adults tend to leave the region for education and employment opportunities
in the city and don‟t often return.
The average household size is declining with more households without children and single person
households. At present, there is an average of 1.7 people living in each household while at the same time
houses are getting bigger. As a result of the increase in population and this trend for smaller households in
bigger houses it is estimated an additional 1,000 hectares of land is needed by 2050.
With such significant population growth expected, it is likely that there will be an impact on local amenity,
character and lifestyle. The guidelines and local policies that are put into place over the next few years will
determine whether the growth will be handled in a beneficial way.
Regional township development within peri-urban regions sometimes replicates many of the problems of low
density metropolitan sprawl. Most importantly, fragmentation can significantly reduce the land resources
required for viable rural production.
Baw Baw is becoming subject to the strong influence of Melbourne, accentuated by the excellent rail and road
linkage, whilst having the attributes of a substantially rural municipality.
section two - engagement
d) introduction to engagement at baw baw shire council
In 2008 Council established its Community Consultation and Engagement Framework with the aim to
communicate a clear and consistent framework for community consultation and engagement and was
based around the International Association for Public Participation‟s (IAP2) Spectrum of Public
Participation. In 2012 it was identified that this framework mainly focused on informing and consulting the
community and fell short in providing direction in regards to involving, collaborating and empowering the
community to capture the full IAP2 spectrum.
Current engagement work is extensive across the organisation and continues to grow each year on specific
projects, activities and policies however there has not been any community engagement specifically about
Council‟s community engagement processes.
e) how we engage
Using media releases and advertising.
we inform by
Contacting community through direct and indirect mail outs.
Producing and providing newsletters

Broadcasting information online and via social media
we consult by
we involve by
we collaborate by
Requesting and receiving submissions and public comment.
Providing opportunities to network with stakeholders.
Hosting discussions and public forums/meetings.
Producing and releasing surveys.
Hosting workshops and forums
Building consensus with networks and stakeholders
Establishing advisory groups that provide recommendations to Council
we empower by
Delegating to Section 86 committees to make decisions on behalf of Council
Table 2: Councils Current Engagement Methods and Techniques
In 2011 Council engaged on 163 different topics and facilitated around 600 different engagement activities with more
than 18,000 community members. Below are some examples of these engagements:
who engages about what how they have engaged
Growth and Development
Planning Scheme Amendments
Inform via media outlets and direct
mail outs
Settlement Strategy Implementation
Inform via media outlets and direct
mail outs. Consult by receiving
submission and public comments.
Community Care and Strengthening
Community Services Planning
Inform via newsletters and consult
by receiving submissions.
Municipal Public Health Plan
Inform via media and mail outs.
Consult by receiving submissions
and public comment. Involve through
the hosting of workshops and
collaborate by building consensus
with key stakeholders and networks.
Corporate Service
Council‟s Annual Budget
Table 3: Examples of some Councils Community Engagement
Inform via media outlets and consult
at public meetings.
f) engaging on baw baw community vision
In 2010, Baw Baw Shire Council embarked on an extensive community consultation and engagement
process involving 670 community members to identify and discuss issues facing the community, its future
directions, values and visions. Resulting from this was the BawBaw 2050 Community Vision which
identified a number of directions to achieve the Shires future aspirations: managing growth; vibrant
community living; lifelong learning; education; skills development and knowledge; valuing our environment;
building responsible leadership and; building prosperity.
As part of the BawBaw 2050 Community Vision project the following engagement methods were used:

we informed the
community
A public talk by futurist Dr. Peter Ellyard was held.
Media articles and stories were published.
Progress updates and reports distributed to the community.
Community open days were hosted were the information gathered and the ideas
shared was displayed for the community to view.
we consult the
community
A photographic exhibition was held were participants were asked to provide a
submission using photographic mediums.
Surveys were produced, distributed and responses considered.
Online and paper based submissions were received and considered.
we involve the
community
Workshops were held with young people, Council staff, local indigenous community
and small townships.
we collaborate the
community
A futures conference was held were members of the community had direct input into
the shaping of the community vision over two dedicated days.
A community reference group was formed and referred to.
Table 4: Community Engagement on the Baw Baw 2050 Community Vision Project
g) comparing and assessing our engagement
It has been identified that engagement is often adhoc and although often completed well, it is sometimes
executed poorly. The Council has lacked a clear position as to when to engage, why engage and how to
engage depending on the situation. It has also been identified that Council‟s internal engagement process‟
lack clarity. Some members of Council‟s workforce are well skilled in engagement however majority of staff
lack the skill set to engage effectively. There is also a strong negative opinion of Council‟s current
engagement within the community.
In comparing and assessing our engagement processes we have considered the following principles of
best practise:
1. Are the engagement processes based on an effective methodology?
2. When engaging, do they use wide reaching, various and inclusive methods of engagement and are
they using social media and online?
3. Do they consider the effectiveness of the methods of engagement?
4. Do they provide ongoing engagement training for staff?
5. Have they engaged the community in a conversation about community engagement?

Our
Engagement
Other Organisations Engagment
Organisation
1.Based on
methodology?
2.Wide reaching,
various and inclusive
methods?
3.Effectiveness
considered?
4.Engagement
Training?
5.Community
engagement about
community
engagement?
Latrobe City Council
(LCC)
Yes, the IAP2 Spectrum
of Public Participation.
LCC consider this
methodology best
practice.
Yes, LCC use variety of
methods of
engagement that met
the community needs,
including online and
web based methods.
Yes, LCC consider the
effectiveness is
considered in a matrix
that identifies which
methods are most
effective for different
situations.
No. Ongoing training is
not provided however
in their Engagement
Plan they have
identified the need to
provide targeted
training and resources.
Yes, the community
were consulted in the
production of the
Engagement Plan.
South Gippsland Shire
Yes the IAP2 Spectrum
of Public Participation.
Consider this
methodology best
practice.
Yes, SGSC use a
variety of methods of
engagement that met
the community needs,
including online and
web based methods.
Yes, SGSC consider
the effectiveness of the
different methods and
has specific methods
for sub population
groups eg. Youth
engagement.
Targeted training will
be rolled out to key
staff further training
subject to Council
acceptance of draft
document.
No, council will review
the draft plan and then
further community
consultation may be
conducted.
Cardinia Shire Council
Yes the IAP2 Spectrum
of Public Participation.
Yes, CSC has a
considerable number
of engagement
methods including
online.
Yes, CSC has criteria
for assessing the most
effective methods for
engagement and also
consider evaluation at
the planning stages.
Council does not have
funding for specific
training however some
in house training is
proposed for key staff.
No, council has not
engaged the
community in the
development of their
plan. This is under
review.
National Australia Bank
No reference to IAP2
method .
An 8 step plan based
on community
participation. Targeted
at employee health and
well being.
This method looks at
statistics on outcomes
where volunteering in
the community
improves health and
profit.
No specific training
program.
No specific procedure
in place.
Baw Baw Shire Council
Framework and
processes based on
IAP2. Council
considers IAP2 best
practise
Council has limited
engagement methods
in a framework or plan.
Different methods are
chosen adhoc by
officers as they require.
No formal framework
for considering the
effectiveness of the
methods exists. Again
this is considered on a
adhoc basis.
No formal engagement
training is provided,
however, extensive
training is planned
subject to council
approval.
Council has not
engaged with the
community about
community
engagement.
Table 5: Comparing Councils engagement to other organisations.

h) engaging with social media and web 2.0
Studies have shown that councils see the greatest value of social media is in promoting events and general
community engagement 2 . The most popular method is using Facebook and Twitter to promote particular
events and posting of high level news stories. This is mirrored in Baw Baw where recently Facebook was
used to promote the Ficifolia Festival and Twitter was used to spread information about active bushfires.
Conversely surveys of the community use of social media show that engaging with local government ranks
very lowly on the reasons for using social media 3 . However, we consider there are opportunities for Baw
Baw Shire Council to improve and expand on the use of social media to enable better community
engagement. The best source of online information remains the Baw Baw Shire Council website, and
increased use of other social media outlets will help drive traffic to this site.
i) increasing the conversation online
Social media and web 2.0 allow the community and the Council to have a “conversation” however presently
Council‟s use of social media is directed mostly one way and the tools are only being used to broadcast
and inform the community. Social media presents opportunities to be more interactive, immediate and
responsive and thus engage with community members at a time and in a space of their choosing and could
extend the engagement to consulting, involving and collaborating.
Recent research has shown all age groups use social media. As might be expected the frequency of use
decreased with age. More than half (53%) found that social networking sites increased their contact with
friends and family and increased their participation in social activities (26%). The increased social
participation leads to an improvement in self-esteem and mental health and using this evidence Council is
in the position to increase quality of life and wellbeing of the residents by promoting social participation
online 4 .
benefits social media presents
Increased conversation and extension of engagement to
consulting, involving and collaborating
Opportunity to engage with the community in “their”
space during “their time” for example the physically hard
to reach, those with a disability or socially isolated.
Not having to rely on journalistic interpretation.
Disseminate a wide range of information effectively and
efficiently and making cost savings
barriers social media presents
Lack of understanding and knowledge of the potential
uses and benefits.
The digital divide – the inequality between groups in
terms of access to, use of, or knowledge of information
and communication technologies.
The fear of losing control over the message and
conversation and the fear of damaging reputation.
Additional cost and resources on Council to manage
Social Media Engagement.
Promoting a stronger sense of community and building
positive resilience.
The community are there already and the conversations
are already happening.
Learn what issues are important to the community
Table 6: Identified benefits and barriers of social media 5
2 ACELG
3 Sensis 2011
4 The Social and Psychological Impact of Online Social Networking APS National Psychology Week Survey 2010 – Mathews and Cameron
5 Information identified from various sources including: Headspace; Howard, A.2012;

j) new possibilities in social media and web 2.0
Web 2.0 presents the opportunity to create online space where community members could have a standalone
online user accounts, similar to online banking, where all interactions with Council could occur online
and the space could allow for user-controlled preferences. This opportunity would allow Council to engage
in the space and manner the user defines as well as opportunities to directly broadcast to the community. A
space like this could also allow community to pay bills, access information, report concerns, provide
feedback and request services. It would also provide Council with a holistic snap shot of the user‟s
interaction with Council to provide better customer service and engagement.
Web 2.0 and social media also allows Council to better understand community perspective and the
conversations that happen online can shape and inform policy and initiatives, making the community the
initiators of change. The community are already having these conversations, web 2.0 and social media
better allows Council to listen. The potential exists for Council to programmatically pick up and gather
information from discussions, comments, conversations and broadcasts that are happening about Council
and our services and also build consultation and engagement specific web environments.
section three community governance
k) introduction to community governance at baw baw shire council
At Baw Baw Shire Council community governance means sharing & collaboration between staff and
community members or groups to develop plans for now and the future covering all aspects of Council‟s
responsibilities. This could include all stages from planning to implementation and review.
Council needs to ensure community governance is set up in a way that our many diverse communities are
all represented when and where appropriate. Council and the communities need to have an understanding
of the part they play in shaping the municipality, including infrastructure, services and programs.
Councils systems need to have the ability to foster community governance and involvement particularly
when issues arise.
l) benefits of community governance for baw baw shire
benefits for the organisation
benefits for the community
Opportunity to learn and get an in depth understanding of
what the community wants and needs are for now and in
the future. This will allow council to better plan for the
future and understand and respond to the real issues
Feeling that the council is not hiding decision from them
and that council is communicating and listening to them
Breaking down the silos within council to work with
community groups as a whole rather than individually
Ensuring all levels of local government not just
councilors, CEO and senior management are involved
with the community therefore all staff gain greater
experience at working with different communities
There is an incredible amount of knowledge and
expertise in our diverse communities for council to utilise
to further enhance any planning and decision making
process
If involved in a project from the planning stage then they
will have more confidence and ownership in the
proposed outcome
By sharing the power of decisions it will empower the
community to be more involved in further decisions that
affect them
They will feel a sense of pride, belonging and doing a
good deed for where they live as they have helped to
shape the way their communities are

Better service, infrastructure, economic value,
environmental quality and enhancing communities
wellbeing
Solve issues proactively rather than waiting for the
community to complain about it.
They will learn about the different needs of other
communities within the region and how to balance all of
their needs fairly
It ensures that all community members get a say not just
the noisy ones
Opportunity to solve complex issues by working with
multiple communities
This will bring individual communities together and find
new ways to increase community spirit
Table 7: benefits of community governance
m) achieving community governance in baw baw shire
Baw Baw Shire Council conducts many community planning activities and has an overarching Community
Plan in „Baw Baw 2050‟. The Council planning process refers to and responds to the priorities in the plan.
The Council Plan ends up being the commitment from the elected group to the community on what they are
going to achieve in their four year term. There is a legislated community consultation process required
before any Council Plan and Budget is endorsed by Council which gives the community a further
opportunity to validate or query if the plan and the budget is meeting their needs and priorities.
Formal delegation to the community also occur through a number of s86 committees. Each committee has
been developed independently and as a response to specific community needs at that time.
n) best practise in community governance
Organisation and what they are
doing to achieve community
governance
Manningham City Council
Created a Generation 2030 Community
Plan which encompasses the needs and
wishes of their community now and into the
future (2030)
Benalla Rural Council
Formed a Benalla & District Community
Taskforce in response to a study that
identified Benalla in the top 15% of the
most socially disadvantaged postcodes in
Victoria
Good practice examples of achieving community
governance
Engaged with a large number of community members to create 20,000
wishes for improvements to the community. Identified that there is a
incredible wealth of knowledge and commitment that local residents
want to share
The completed plan will inform and guide the development of all future
councils policies and strategies.
The plan has four main stages: Understand our community, community
vision, action planning and implementation and monitoring. These
stages ensure that all aspects of community governance are adhered
too and followed up on a continued basis.
Involved more than 300 organsations including government and nongovernment
agencies, service clubs, church‟s, philanthropic, business
and other community groups. Involving such a broad section of the
community ensure that a majority of the community are represented in
the plan
Focus action teams created to ensure they had specific tasks and
targets to achieve to keep on track and monitor and review.
Ensured consultation with the community groups as research enabled
the collection of a wide range of information and data

Bendigo and Adelaide Bank
Created a Generation 2030 Community
Plan which encompasses the needs and
wishes of their community now and into the
future (2030)
Centre for Aboriginal Economic Policy
Research
Investigated the nature of indigenous
community governance to understand what
works, what doesn‟t work and why and
have formulated this into a report:
Indigenous Community Governance
Project 2005.
Table 8: organisations achieving community governance 6
Good networks and knowledge on what is happening within their
communities
The bank invests back into the community via their charitable arm,
Community Enterprise Foundation. This has helped to create stronger
and more sustainable communities which have a flow on affect
creating more sustainable businesses.
Listens to what the community‟s needs are and supporting them to
realise these to increase economic stability for themselves and the
community around them.
The relationship between decision making in indigenous community
governance is shaped by historical, cultural and political relationships.
These need to be understood otherwise it will not work.
There is no one size fits all approach to each community governance
as individual community will respond to community governance
differently and methods need to be changed to accommodate this.
Leadership within each community can be a foundation stone for
community governance to ensure that consensus, negotiation and
consultation is followed by all involved.
o) comparing community governance in baw baw shire to best practice
Community Governance in practice in Baw Baw is a moveable feast. Council has adopted the IAP2
framework yet continues to conduct practices that are adhoc, lack clarity and fail to reference to the
overarching council plan. On the other hand there are many examples of good practice in community
engagement and governance, the Baw Baw 2050 Plan is a prime demonstration of a job well done.
However, the follow up to this good piece of work remains adhoc and is dependent on individual
departments, or even individuals, understanding of the plan and the relevance to their particular goal.
In conclusion it is important to note that Baw Baw Shire Council devotes a significant amounts of time,
resources and importance on Community Governance. There are many and varied good practice examples
both current and historic across the organisation. On the other hand Council is still trying to coordinate a
structure that will be implemented across the organisation as a whole. As such overall analysis of
Community Governance, and Community Engagement, in Baw Baw is difficult. The organisation is working
towards adopting an overarching framework and it can be assumed that this in itself will improve outcomes
for Council and the community of Baw Baw.
In addition to the adoption of a holistic framework, it is considered that other actions could be implemented
to improve practice across the Baw Baw Shire, these are outlined below.
action plan
Engagement Goal: Council aims to facilitate and partner with an actively engaged community, enabling
quality change and progress for the Baw Baw area, working towards a shared vision and goals. Where the
community and Council have a more holistic view of the numerous issues and demands on the Shire.
6 Information identified from various sources including Manningham City Council – Generation 2030 Community Plan, Benalla
&District Community Taskforce Annual Report 2010/11, Bendigo Bank– Community Bank, Sustainable Communities and Building
Better Communitie, Centre for Aboriginal Economic Policy Research. ANU College of Arts & Social Sciences

1. Action Area: Have a consistent engagement processes and framework
By the end of 2014 Council will have adopted a sound and robust community engagement process that will provide
consistency and structure of all engagement across the organisation
Council will conduct an internal review to ensure that staff understand the concepts of community engagement and
governance. Furthermore, ask staff to reflect upon current practice and inform of all existing practice. Information
gathered from this review will be incorporated into the draft framework and policy (based on IAP2).
At this point Council will engage the community on the framework and policy and implement feedback and
suggestions as appropriate, ensuring that we answer the key question “How do the community want to engage with
Council?” Further consultation with the community on the framework will be completed before it is fully adopted.
2. Action Area: Promote Community Engagement and Community Governance
By the end of 2014 all of Councils services, programs and projects will reflect Councils overall goal to have an actively
engaged Baw Baw community.
Review and adapt all council policy and procedures to ensure all of Councils work has referenced the adopted
community engagement framework.
An annual review will be conducted, and report to council on the effectiveness of the engagement framework and
ensure that the community‟s needs and wishes have become core to council business.
3. Action Area: Provide staff training on community engagement
By the end of 2015, 100% of Council staff will have received an appropriate level of training in engagement to
understanding the importance and relevance of engagement to their work.
Produce and conduct training that fosters understanding and knowledge of the community engagement framework.
Ensuring an understanding of the importance of a holistic engagement process across all roles within the Council.
Monitoring and evaluation systems will be established to ensure all staff receive appropriate level of training. This
training will form part of the induction process for all new staff and will form part of Councils Code of Conduct and HR
Policies.
4. Action Area: Enter Web 2.0 and Reducing the Digital Divide
By the end of 2016, 50% of Council interactions and services will be available online in an interactive and engaging
space.
Council will identify possible processes and technologies available and then engage the community on their wishes
and priorities in this area. Alongside this, an internal organisational wide review will identify services that could be
made available online. As a result of both consultations a GAP analysis will be conducted to identify where existing
„out of the box‟ technology will not meet the identified needs.
A training program will be developed for both internal staff and the community on any and all new processes. This
may include developing opportunities for assisted online processing within customer service centres – For example
kiosks similar to the self service check out areas in supermarkets, with staff on hand to guide customers.
Council will expand on existing Social Media use and will use online portals to drive traffic to and from the different
media pages. This is in effort to encourage a greater online conversation and therefore more informal engagement.
It is expected that increased use of the Web 2.0 and Social Media technologies described above will highlight the
digital divide. As such Council will implement requirements for all appropriate subdivisions to be NBN ready, provide
targeted community computer and web training and promote community leadership and programs that aim to reduce
this divide. Furthermore, Council will lobby state and federal government to provide funding to assist the above
programs.
In addition Council will continue to recognise that although digital solutions will continue to grow, it is important to
retain the existing systems that the community recognise and request, such as face to face customer service centres.