Most watchers of government might have suspected that restructures and redundancies were used to quietly get rid of the worst performers. Some have se
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Home Features Waiting for TRIM and training, concerns as child protection files get lost in transit
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DEPARTMENTSVic Department of Education and Training, Victorian Auditor General's Office, Vic Department of Health and Human Services
TAGS Records management, Public records, records, information management
It’s been a bumpy ride for Victorian departments as they upgrade and strengthen records management. A new report warns of risk of fraud and child endangerment, but there have been achievements too.
It’s often seen as one of governments’ thankless achievements, despite helping build civilisations. Records management, the tool helping drive so many services for the community, has taken another battering — on this occasion because widespread gaps have exposed the Victorian government to potential fraud, or worse crimes.
Building upon the recent corruption findings in the state, the Victorian Auditor General Andrew Greaves has published a new report into records management oversight from the Public Record Office Victoria (PROV) and the practices at the departments of Education and Training (DET) and Health and Human Services (DHHS). There was uniform agreement with the aim of modernising and lifting, not merely the ICT, but the practices and standards agencies are held to.
Gaps in the state’s records and poor controls give staff the opportunity to destroy or alter records without drawing alarm, warned Greaves. Both DET and DHHS have begun work to address these issues in their portfolio.
DET in particular has serious issues with even knowing how many records it holds and where they are. Across the agency, more than 50 different locations are being used for records storage, but the records management unit has no control of them or access to them. There is also a large but unknown number of storage units, storerooms, filing cabinets and other storage repositories spread across the agency in undocumented locations, the report reveals, containing potentially many thousands of boxes of records.
It is perhaps unsurprising record keeping is a big challenge in both departments — DET employs nearly 60,000 people and DHHS over 10,000, each with multiple locations.
Digital locations were also a problem, even for the more advanced setup at DHHS which has moved over to TRIM. An estimated 16,800 files out of 7 million are recorded missing in its TRIM system, but a further 100 million electronic documents are flowing around its network drives and shadow systems. Nobody could tell how many recorded were held in email systems.
Perhaps most worryingly, 622 child protection files were among those known to be missing.
Its historical records and information management has previously been criticised in relation to investigations around child sex abuse and wards of the state, with poor management having rendered evidence irretrievable, potentially protecting offenders.
A core reason for so many documents not being captured within DHHS’s endorsed electronic document and records management system, TRIM, may be because it has only been deployed to 20% of the workforce, argued Greaves.
“However, where staff are choosing to manage their records outside of TRIM, in breach of the Capture specification, the records management unit does not have the authority to compel them to lawfully manage their records.”
“DHHS’s central records management unit has worked hard to establish a system that supports effective records management. However, with so many documents sitting outside of TRIM, this work is not being used effectively throughout the agency. As a result, DHHS is not fully realising the potential benefits of its records management system or managing its risks.”
Greaves was concerned that staff aren’t receiving the training they need. Though many public servants find dealing with their agency’s electronic documents and records management system a drag, is it both essential and invaluable.
However, there isn’t enough money for comprehensive records management training for all Victorian public sector users covered by legislative requirements drafted in 1973. Justine Heazlewood, the state’s Keeper of Public Records flagged the enormity of such a scope: “PROV’s Act covers state and local government, government health bodies, primary, secondary, and tertiary education bodies, and public utilities. Further research into the costs and mechanisms for skills improvement will be undertaken in 2017/18 in order to determine the most cost efficient and effective way of meeting the objective of this recommendation; which is improved records management skills in the public sector.”
There is already an online e-learning PROV course, free of charge to all public sector workers, “to ensure staff in your agency have a common understanding of basic recordkeeping concepts and the recordkeeping standards.” There is also a Records Management Network run by PROV to facilitate peer education.
The Department of Premier and Cabinet is reviewing the legislation, in part to address the complexities and risks for records management arising from increased outsourcing arrangements and advances in technology since the Public Records Act 1973 was first drafted.
DHHS has indexed a million records for state wards and carers. Some records are more than 150 years old.
Records management isn’t merely a bureaucratic or criminal concern, as many records have very real community public value. VAGO noted DHHS’s recent achievement with the completion of the Ward Records Plan. DHHS secretary Kym Peake noted the improved access:
“This includes the indexing of more than one million historical paper-based records relating to Victorian children, young people and adults placed in a range of institutions, including former wards of the state and care leavers. The project’s concluding milestone was the 1 December 2016 publication of the website, www.findingrecords.dhhs.vic.gov.au, which provides care leavers with access to more than 200 guides to the department’s collections of historic archival records.”
Past experience show there are a few key lessons that can help your agency get the most out of its EDRMS.
The records management experts at the National Archives point to 10 key lessons for agencies implementing an EDRMS:
Having a plan to encourage user acceptance can help with uptake of the EDRMS — Geoscience Australia boosted acceptance of its upgraded system with an incentive where staff would receive an additional pay rise for the period if a certain quota of documents were correctly registered within the system. Visible support from senior levels also helped bolster efforts to roll it out.
The Department of Parliamentary Services’ experience rolling out a new EDRMS demonstrates the importance of post-implementation review. By going back and checking how things were panning out, the department was able to work out that although it had reached its overall objectives, there were still issues to be ironed out, such as problems with integration with other applications, remote access, limited use of workflow technologies and restrictive document controls.
David Donaldson is a journalist at The Mandarin based in Melbourne. He's previously written for The Guardian and Crikey and holds a masters in international relations.
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Phyllis Williams is not only a highly respected archivist, but she is also the only one in the country working for two tiers of government at the same time.
Most watchers of government might have suspected that restructures and redundancies were used to quietly get rid of the worst performers. Some have seen it first hand. Now, it's official.
It’s time for a rethink in Records Management to orient systems around people and not the other way around. The problems at DET and DHHS are fixable, but not by throwing more fuel on the fire.
Here are some basic questions:
Q1) Why are only 20% of people trained in TRIM?
A Because after all the time they’ve had the system (years and years), it is so user-hostile no-one wants to know, or they’ve left, or they missed the training day. etc. etc.
Q2). Will more training fix the problem?
No, because usability is hopeless. No-one is going to fill in 50 metadata fields or write down a file name on a separate piece of paper, because that’s the only way to find stuff.
Q3) Why is content in DET spread over 50 locations?
A. Because central systems are too hard to use, no-one can find stuff and people are not remunerated on their metadata capture capability. They have a job to do and they find workarounds.
The National Archives Lessons learned are a good start, but they represent last century thinking.
We would like to see a fresh approach:
# Retrofitting Classification
Rather than expect users to fill in metadata fields (WHICH WILL NEVER HAPPEN), how about retrofitting Tags to every document? There is technology that does this and it transforms the way people find info.
# Listener capabilities
Rather than rely on authors to haphazardly update information, why not instead use “listener technology” that tells users and authors that a new document version has been released, or that the current version needs to be reviewed.
# Rationalising systems
Google Drive, One Drive, Dropbox, Box etc all do the same job. I bet the Departments above have them. While 15 or 20 repositories are too many, it’s better than 50.
# The Internet
Imagine using a web-based front end that would allow a user to go to any system and search based on Topic,
# Standardising formats
While leaving the PDF Records in TRIM Imagine turning all those living Word and PDFs into web format, so that they can be shared, cross-referenced, contextually linked
# Related Documents
Imagine if they could all be aggregated into a single place.
A chronic Waste of Money
Besides the tragedy of losing important documents, the time lost in looking for information is criminal , # $14 million per annum – This is cost to DHHS if each employee spends 10 minutes a day looking for stuff. for every 10 minutes each for each 10 minutes
DET and DHHS don’t have a Records Management Problem – they have a Useability problem wrapped around old methodologies and desktop formats.
The tools are here now to fix these problems – these classify, convert, migrate, cross reference, link disparate systems, retrofit classification and make the old systems workable.
Oh everyone who sells software has a solution for this problem, and it’s always their software. What a surprise! At least you are honest about what you are selling Bruce.