Agenda Reports Pack (Public) 25/04/2013, 19.00

Public Document Pack

Councillors in the Cabinet: Cabinet Ray Puddifoot (Chairman) Leader of the Council Date: THURSDAY, 25 APRIL 2013 David Simmonds (Vice-Chairman) Time: 7.00 PM Deputy Leader / Education & Children’s Services

Jonathan Bianco Venue: COMMITTEE ROOM 6 - Finance, Property & Business Services CIVIC CENTRE, HIGH Keith Burrows STREET, UXBRIDGE, Planning, Transportation & Recycling UB8 1UW Philip Corthorne Social Services, Health & Housing

Meeting Members of the Public and Douglas Mills Details: Press are welcome to attend Community, Commerce & Regeneration

this meeting Scott Seaman-Digby Central Services

This agenda and associated reports can be made available in other languages, in braille, Published: Wednesday, 17 April 2013 large print or on audio tape on Contact: Mark Braddock request. Please contact us for Tel: 01895 250470 further information. Fax: 01895 277373 Email: mbraddock@hillingdon.gov.uk

This Agenda is available online at: www.hillingdon.gov.uk

Lloyd White Head of Democratic Services London Borough of Hillingdon, 3E/05, Civic Centre, High Street, Uxbridge, UB8 1UW www.hillingdon.gov.uk

Useful information for residents and visitors

Travel and parking

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Notice (5-day)

Notice of Intention to conduct business in private, any representations received and any urgent key decisions

Whilst much of the business on the agenda for this meeting will be open to the public and media to attend, there will be some business to be considered that contains, for example, confidential, commercially sensitive or personal information. This is shown in Part 2 of the agenda. This is formal notice under The Local Authorities (Executive Arrangements) (Meetings and Access to Information) (England) Regulations 2012 to confirm that the Cabinet meeting to be held on:

CABINET 25 April 2013 7pm, Committee Room 6 will be held partly in private. The reason for this is because the private (Part 2) reports listed on the agenda for the meeting will contain either confidential information or exempt information under Part 1 of Schedule 12A to the Local Government (Access to Information) Act 1985 (as amended) and that the public interest in withholding the information outweighs the public interest in disclosing it. A list of the reports which are expected to be considered at this meeting in both public and private are set out in a list on this agenda and notice, including a number indicating the reason why a particular decision will be taken in private under the categories set out below:

(1) information relating to any individual (2) information which is likely to reveal the identity of an individual (3) information relating to the financial or business affairs of any particular person (including the authority holding that information) (4) information relating to any consultations or negotiations, or contemplated consultations or negotiations, in connection with any labour relations matter arising between the authority or a Minister of the Crown and employees of, or office holders under, the authority. (5) Information in respect of which a claim to legal professional privilege could be maintained in legal proceedings. (6) Information which reveals that the authority proposes (a) to give under any enactment a notice under or by virtue of which requirements are imposed on a person; or (b) to make an order or direction under any enactment. (7) Information relating to any action taken or to be taken in connection with the prevention, investigation or prosecution of crime.

28 clear days notice of this Cabinet meeting (part to be held in private) and the decisions to be made has been given. The only exceptions to this are the two decision reports (no. 16) Lake Farm – appropriation of open space to planning purposes and (no.23) Former Master Brewer Site, Hillingdon Circus , where it was impracticable to give sufficient notice due to the need to progress these planning and land asset matters in a timely manner. The Chairman of the Executive Scrutiny Committee was notified in writing about this forthcoming decision.

No representations have been received regarding this meeting.

Agenda

1 Apologies for Absence

2 Declarations of Interest in matters before this meeting

3 To approve the minutes of the last Cabinet meeting 1 - 16

4 To confirm that the items of business marked Part 1 will be considered in public and that the items of business marked Part 2 in private

Cabinet Reports - Part 1 (Public)

5 Policy Overview Committee Review: Cemeteries and Burial Grounds 17 - 76 within Hillingdon (Cllr Bianco)

6 Policy Overview Committee Review: Adult Community Mental Health 77 - 176 Services (Cllr Corthorne)

7 Accessible Hillingdon Supplementary Planning Document 177 - 188 (Cllr Burrows) POLICY FRAMEWORK

8 Interim Planning Policy on Houses in Multiple Occupation 189 - 208 (Cllr Burrows) POLICY FRAMEWORK

9 Hillingdon Housing Strategies and Policies (Cllr Corthorne) 209 - 222 POLICY FRAMEWORK

10 Local List of Buildings of Architectural or Historic Importance 223 - 258 (Cllr Burrows)

11 Hillingdon's Joint Health & Wellbeing Strategy 259 - 300 (Cllrs Puddifoot & Corthorne)

12 Gift Funding: St Andrew's Park (Cllr Burrows) 301 - 306

13 Gift Funding: Nanaksar Free School (Cllr Burrows) 307 - 312

14 Council Monthly Budget Monitoring (Cllr Bianco) 313 - 344

15 School Places Planning Update 2013-2022 (Cllr Simmonds) 345 - 358

16 Lake Farm - Appropriation of Open Space to Planning Purposes 359 - 366 (Cllr Bianco)

Cabinet Reports - Part 2 (Private and Not for Publication)

17 School Capital Programme Update (Cllrs Bianco & Simmonds) 367 - 378

18 Integrating Public Health in Hillingdon (Cllrs Puddifoot & Corthorne) 379 - 396

19 Award of Contract: Parking Enforcement (Cllr Burrows) 397 - 406

20 Award of Contract: Civic Centre Multi-Storey Car Park Surfacing 407 - 418 Works (Cllr Bianco)

21 Award of Contract: Collection and Treatment of Co-Mingled Dry 419 - 428 Recyclables (Cllr Burrows)

22 Acceptance of Bid: Tasman House, Maple Road, Hayes (Cllr Bianco) 429 - 438

23 Former Master Brewer Site, Hillingdon Circus (Cllr Bianco)

Report to follow

The reports listed above in Part 2 are not made public because they contains exempt information under Part 1 of Schedule 12A to the Local Government (Access to Information) Act 1985 (as amended) and that the public interest in withholding the information outweighs the public interest in disclosing it.

24 Any other items the Chairman agrees are relevant or urgent

This page is intentionally left blank Agenda Item 3

Minutes

Cabinet Thursday, 21 March 2013 Meeting held at Committee Room 6 - Civic Centre, High Street, Uxbridge, UB8 1UW

Published on: 22 March 2013 Come into effect on: 2 April 2013 *

Cabinet Members Present: Ray Puddifoot (Chairman) David Simmonds (Vice-Chairman) Keith Burrows Philip Corthorne Douglas Mills Scott Seaman-Digby

Members also Present: Henry Higgins John Riley Wayne Bridges George Cooper Brian Crowe Peter Curling Catherine Dann Dominic Gilham Paul Harmsworth John Morgan Michael White

724. APOLOGIES FOR ABSENCE

Apologies were received from Councillor Jonathan Bianco.

725. DECLARATIONS OF INTEREST IN MATTERS BEFORE THIS MEETING

There were no declarations of interest at this meeting.

726. TO APPROVE THE MINUTES OF THE LAST CABINET MEETING

The decisions and minutes of the last Cabinet meeting held on 14 February 2013 were approved as a correct record.

727. TO CONFIRM THAT THE ITEMS OF BUSINESS MARKED PART 1 WILL BE CONSIDERED IN PUBLIC AND THAT THE ITEMS OF BUSINESS MARKED PART 2 IN PRIVATE

This was confirmed.

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Page- Page 1 1 - 728. EDUCATION AND CHILDREN’S SERVICE POLICY OVERVIEW COMMITTEE - REVIEW ON SAFEGUARDING CHILDREN THAT ARE REPORTED MISSING

The Chairman of the Education and Children’s Services Policy Overview Committee, Councillor Catherine Dann, presented her Committee’s review, which was warmly endorsed by Cabinet.

RESOLVED:

That Cabinet:

1. Welcomes the attached report of the Education & Children’s Services Policy Overview Committee on the review into Safeguarding Children who are Reported Missing.

2. Accepts the recommendations of the Policy Overview Committee.

3. Notes with concern the recent decision by Home Office Ministers to delay interviewing Children and Young People arriving at UK borders to claim asylum as a result of the "Landing in Dover report". In addition, Cabinet notes that following the matter being brought to the Home Secretary's attention by the Deputy Leader of Hillingdon Council, the Home Office has confirmed that full implementation of the decision has been delayed.

Reasons for decision

Cabinet welcomed the Committee’s excellent report, which reviewed local practices in respect of implementing the statutory duties of the Council and partner agencies with regard to children and young people who are reported missing. Cabinet thanked the Chairman, Members, Officers and witnesses involved and agreed to take forward their findings.

Alternative options considered and rejected

Cabinet could have decided to reject or amend one or more of the Committee’s recommendations.

Officer to action:

Steven Maiden / Khalid Ahmed, Administration Directorate

729. EXTERNAL SERVICES SCRUTINY COMMITTEE - REVIEW ON THE ROLE OF SPECIAL CONSTABLES

The Chairman of the External Services Scrutiny Committee, Councillor Michael White, presented the report from the Working Group on Special Constables, which was welcomed by Cabinet.

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- Page 2 - Page 2 RESOLVED:

That the Cabinet welcomes the report of the role of Special Constable Working Group and, in noting the recommendations of the Working Group report, agrees they will be forwarded onto the Hillingdon Safer Partnership for due consideration.

Reasons for decision

Cabinet welcomed a review highlighting the work that Special Constables do and the positive effect they have on community safety. Cabinet agreed that the review’s findings to improve the understanding of their role and support available to them, would be taken forward by the Safer Hillingdon Partnership.

Cabinet thanked the Chairman of the Working Group, Councillor Gilham, Members, Officers and witnesses involved for a professional piece of work.

Alternative options considered and rejected

Cabinet could have decided to reject or amend one or more of the Committee’s recommendations.

Officers to action:

Nav Johal / Danielle Watson, Administration Directorate

730. LOCAL PLAN PART 2 – PROGRAMME FOR PREPARATION

RESOLVED:

That Cabinet:

1. Notes the progress made by officers on preparatory work to inform Part 2 of the Hillingdon Local Plan;

2. Instructs officers to undertake the appropriate initial consultation required to prepare a Proposed Submission version of Part 2 of the Hillingdon Local Plan, which is likely to commence in mid April 2013 for a period of six weeks; and

3. Notes the proposed programme of work on Part 2 of the Hillingdon Local Plan as outlined in this report.

Reasons for decision

Cabinet noted the initial work on Part 2 of the Hillingdon Local Plan and agreed to undertake further work and public consultation to enable the Council to make meaningful progress on it.

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- Page 3 - Page 3 It was noted that Part 2 of the Plan would contain the detailed local policies on land use and design which would be required to determine planning applications and appeals.

Alternative options considered and rejected

Cabinet could have decided not to prepare for Part 2 of the Plan, which would have prejudiced progress and left the Council with a dated set of policies to deal with future development proposals.

Officer to action:

Jales Tippell – Residents Services

731. CHARTER FOR CARE LEAVERS

RESOLVED:

That Cabinet:

1. Adopt the prinicples of the Charter for Care Leavers (Appendix 1) and;

2. Approve Hillingdon’s Charter for Care Leavers which sets out how the principles of the Government’s Charter will be implemented and delivered locally (Appendix 2)

Reasons for decision

Cabinet agreed to adopt both the national and a local Charter for Care Leavers to meet the needs to care leavers by clearly setting out the principles, expectations, aspirations and understanding of what both the Government and Council will do as good ‘Corporate Parents‘.

Alternative options considered and rejected

Cabinet could have decided not to adopt any Charter.

Officer to action:

Linda Sanders, Social Care and Health

732. 'BEDS IN SHEDS' IN HILLINGDON: PROGRESS REPORT

RESOLVED:

That the Cabinet:

1. Notes the content of the report, and progress made.

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- Page 4 - Page 4 2. Endorses the approach taken, including the inter departmental forum involving Planning, Enforcement, Private Sector Housing, Legal Services and Corporate Communications to exchange views, intelligence and to work corporately & closely in dealing with unauthorised outbuildings.

3. Notes the submission of a bid application to the Department for Communities and Local Government to respond to the ‘beds in sheds’ issue.

Reason for decisions

Cabinet received an update on the Council’s hard-hitting approach to combat the problems in relation to 'beds and sheds' or the use of outbuildings as residential accommodation. Cabinet gave approval for officers to continue with its multi-agency approach, fast-tracking problem cases to prosecution.

Alternative options considered and rejected

Cabinet could have decided to deal with such cases in the same way as other breaches of planning control, but felt that this would not be in the best interests of the local communities concerned.

Officer to action:

Jales Tippell, Residents Services

733. DELEGATION OF POWERS TO THE ENGLAND ILLEGAL MONEY LENDING TEAM

RESOLVED:

That Cabinet:

1. Authorises officers to negotiate the detailed terms of the protocol and delegation document in order to protect the Council’s interests;

2. Authorises the Deputy Chief Executive and Corporate Director of Residents Services, together with the Leader of the Council, to agree and sign the relevant delegation document and protocol with Birmingham City Council on behalf of the London Borough of Hillingdon, once they are finalised.

Reasons for decision

Cabinet made the necessary decisions to allow the England Illegal Money Lending Team to investigate and institute proceedings against illegal money lenders operating in the London Borough of Hillingdon. It was noted that there was no

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- Page 5 - Page 5 financial cost to the Council as the service was directly funded by Central Government.

Alternative options considered and rejected

Cabinet could have decided not to authorise the delegation and protocol, which would have deprived any specialist support and enforcement for Hillingdon residents, where required.

Officer to action:

Sue Pollitt, Residents Services

734. QUARTERLY PLANNING OBLIGATIONS MONITORING

RESOLVED:

That the Cabinet notes the updated financial information attached to the report.

Reasons for decision

Cabinet noted the report which detailed the financial planning obligations held by the Council and what progress had, and was, being made.

Alternative options considered and rejected

To not report to Cabinet. However, Cabinet believed it was an example of good practice to monitor income and expenditure against specific planning agreements.

Officer to action:

Nicola Wyatt, Residents Service

735. MONTHLY COUNCIL BUDGET MONITORING

RECOMMENDATIONS

That Cabinet:

1. Note the forecast management budget position for revenue and capital as at Month 10. 2. Note the treasury Month 10 update at Appendix B. 3. Approves the addition of £167k of Youth Justice Board grant funding to revenue budgets, meeting the cost of new burdens for 2012/13 and 2013/14 in relation to Looked After Children on Remand transferring to the Council under the Legal Aid, Sentencing and Punishment of Offenders Act 2012.

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- Page 6 - Page 6 4. Accepts the Department of Energy and Climate Change grant of £107k for Fuel Poverty Funding, include this in the 2013/14 capital general fund budget and approve capital release to enable works to commence. 5. Approves the addition of £70k Department of Work and Pensions grant funding to 2012/13 revenue budgets to fund transitional costs associated with welfare reform. 6. Approves the addition of £84k Department for Communities and Local Government grant funding to 2013/14 revenue budgets to fund transitional costs associated with implementation of the local Council Tax Reduction scheme. 7. Approves submission of a grant application to the All London Green Grid (the Mayor’s ‘Big Green Fund) for improvements to the banks of the River Pinn and surrounding habitat. 8. Delegate authority to the Deputy Chief Executive and Corporate Director of Residents Services, in consultation with the Leader of the Council, to agree the fees and charges set out in Appendix C. 9. Delegate authority up until the 25 July 2013 Cabinet meeting to the Chief Executive to approve any consultancy and agency assignments over £50k, with the final sign-off of any assignments made by the Leader of the Council. 10. Delegate authority to the Chief Executive and Corporate Director of Administration, in consultation with the Leader of the Council and Cabinet Member for Finance, Property and Business Services, to procure through single tender action, Google Vault and Cloudlock products in preparation for the Council’s move to collaborative working with Google Apps.

Reasons for decision

Cabinet was informed of the latest forecast revenue, capital and treasury position for the current year 2012/13 to ensure the Council achieved its budgetary and service objectives. Additionally, Cabinet made a number of decisions to accept external grants for particular projects and delegated authority for agreeing agency staff and consultants along with fees and charges for certain Leisure and Arts services. Furthermore, as part of the Council’s trailblazing move to Google, Cabinet agreed to the procurement of key products that would assist in the deployment of Google Apps collaborative tools across the organisation.

Alternative options considered and rejected

None.

Officer to action:

Paul Whaymand, Finance Directorate

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- Page 7 - Page 7

736. SCHOOL CAPITAL PROGRAMME UPDATE

RESOLVED:

That Cabinet:

1. Note the progress made with Phases 1, 2 and 3 of the Primary School Expansion Programme.

2. Delegate authority to the Leader of the Council and Cabinet Member for Finance, Property and Business Services, in consultation with Deputy Chief Executive and Director of Residents Services to:

• Place a building contracts for, the Multi Use Games Area (MUGA), moving existing temporary classrooms and supplying a new temporary classroom as part of the enabling works at Glebe Primary School.

• Place a building contract for the temporary classroom at Chantry.

• Appoint Scape as design consultants for stages K-L at Lake Farm and RAF Uxbridge.

• Appoint Willmott Dixon on a NEC3 contract as the main contractor for Lake Farm and RAF Uxbridge.

• Place building contracts for construction works at the School’s identified as requiring additional accommodation as part of Phase 3A for the September 2013 bulge year.

3. Approve the variation to Mace appointment at a cost of £6,000 to act as Multi-Disciplinary Consultants for the temporary classroom at Chantry School.

4. Approves the placing of orders for Statutory Authorities (utilities) and enabling works up to a value of £50,000 for Phase 2 schemes.

5. Approves the provision of an additional temporary classroom at Rosedale College when needed in order to accommodate the bulge year they will be taking from September 2013.

6. Approve the licensing of 2 parcels of land in private ownership adjacent to Heathrow Primary at the value set out in the report to facilitate the contractor access and site compound and;

7. Note the progress made on Phase 3A and the requirement for the potential over supply of places in September 2013 in order mitigate the risk of not having sufficient school places and also provide additional in-year capacity for the 2013/14 academic year. ______

- Page 8 - Page 8

8. Note the variation to Mace contract for Phase 2 to act as Multi- Disciplinary Consultants for Phase 3A for RIBA stages A-L at the cost of £63,000;

9. Note the possible procurement routes under consideration as a means of providing a temporary classroom provision for a bulge year intake at Cherry Lane in September 2013;

10. Agree the principle of informing the schools of their budget for Furniture, Fixtures and Equipment (FF&E) and;

11. Request that the Chairman of the Executive Scrutiny Committee waives the scrutiny call-in on all these recommendations to ensure the programme can progress swiftly and that the necessary contractual commitments can be met on time.

Reasons for decision

Cabinet received an update on the primary school capital programme and made a number of decisions to progress the provision of sufficient school places, including those relating to the necessary building contracts and project funding.

Alternative options considered and rejected

Cabinet could have decided to delay or not progress aspects of the building programme, which would have impacted upon the Council’s ability to provide sufficient school places.

Officer to action:

David Murnaghan – Residents Services

Exempt Information

This report was included in Part II as it contained information relating to the financial or business affairs of any particular person (including the Authority holding that information) and the public interest in withholding the information outweighed the public interest in disclosing it (exempt information under paragraph 3 of Part 1 of Schedule 12A to the Local Government (Access to Information) Act 1985 as amended.

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- Page 9 - Page 9

737. ACADEMY CONVERSION – BROOKSIDE PRIMARY SCHOOL

RESOLVED:

That Cabinet:

1. Approves the grant of a 125 year lease of Brookside Primary School on the main terms outlined in this report as part of the process of conversion of the school to an academy.

2. Request that the Chairman of the Executive Scrutiny Committee waives the scrutiny call-in on all these recommendations to meet the Department for Education deadlines for conversion.

Reasons for decision

Cabinet agreed the grant of a 125 year lease to Brookside Primary School to facilitate their conversion to Academy status. Cabinet noted that decisions regarding academies were made by the Secretary of State for Education and therefore the Council had no choice other than to progress with the transfer of the premises.

Alternative options to consider and action

None.

Officers to action:

Julien Kramer, Mike Paterson, Venetia Rogers - Residents Services

Exempt Information

738. ACADEMY CONVERSION – COTEFORD JUNIOR SCHOOL

RESOLVED:

That Cabinet:

1. approves the grant of a 125 year lease of Coteford Junior School on the main terms outlined in this report as part of the process of conversion of the school to an academy. ______

- Page 10 - Page 10

2. Request that the Chairman of the Executive Scrutiny Committee waives the scrutiny call-in on all these recommendations to meet the Department for Education deadlines for conversion.

Reasons for decision

Cabinet agreed the grant of a 125 year lease to Coteford Junior School to facilitate their conversion to Academy status. Cabinet noted that decisions regarding academies were made by the Secretary of State for Education and therefore the Council had no choice other than to progress with the transfer of the premises.

Alternative options to consider and action

None.

Officers to action:

Julien Kramer, Mike Paterson, Venetia Rogers - Residents Services

Exempt Information

739. ACADEMY CONVERSION - LAUREL LANE PRIMARY SCHOOL

RESOLVED:

That Cabinet:

1. Approves the grant of a 125 year lease of Laurel Lane Primary School on the main terms outlined in this report as part of the process of conversion of the school to an academy.

2. Approves the grant of a lease of 7 years less 10 days on the main terms outlined in this report of the area identified as the overprovision of playing fields on the existing school site.

3. Delegate authority to the Deputy Chief Executive and Corporate Director of Residents Services, in consultation with the Leader of the Council and Cabinet Member for Finance, Property and Business Services, to procure and release capital funds for works at Laurel Lane School.

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- Page 11 - Page 11 4. Request that the Chairman of the Executive Scrutiny Committee waives the scrutiny call-in on all these recommendations to meet the Department for Education deadlines for conversion.

Reasons for decision

Cabinet agreed the grant of a 125 year lease to Laurel Lane Primary School to facilitate their conversion to Academy status. Cabinet noted that decisions regarding academies were made by the Secretary of State for Education and therefore the Council had no choice other than to progress with the transfer of the premises. Cabinet also granted a lease to the school with regard to the playing fields and delegated authority for certain works at the school.

Alternative options to consider and action

None.

Officers to action:

Julien Kramer, Mike Paterson, Venetia Rogers - Residents Services

Exempt Information

740. UXBRIDGE CENTRAL LIBRARY REFURBISHMENT

RESOLVED:

That Cabinet:

1. Agrees to the use of the Scape National Minor Works Framework operated by Kier Construction for the modernisation of Uxbridge Library.

2. Agrees to the appointment of Kier to provide Pre-Construction Services to progress the design proposals to RIBA Stage F for the refurbishment of the Uxbridge Library and to provide a price for the main building works package for fees as set out in the report.

3. Agrees to the appointment of Kier to carry out the enabling works packages to progress the refurbishment programme for the sum of £298,331

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- Page 12 - Page 12 4. Agrees to the closure of Uxbridge Central Library from the 28th March 2013 and the temporary relocation of its library facilities to no’s 20 and 26 Chequers Square in the Mall – Uxbridge.

5. Agrees to the delegation of all necessary decisions to accelerate the delivery of the project to the Deputy Chief Executive and Corporate Director of Residents Services, in consultation with the Leader of the Council and the Cabinet Member for Finance, Property and Business Services.

6. Agrees to the taking of two leases on the main terms set out in the report for two units in the Mall Shopping Centre at no’s 20 and 26 Chequers Square for a maximum term of two years.

7. Notes the expenditure of £120,724 incurred relocating and storing the books and other equipment.

8. Notes the total costs of £157,500 for the temporary library as cover when the Uxbridge library is being refurbished.

9. Agrees to withdraw the exempt nature of relevant parts of the report solely for Officers of the Council to use to provide public information about this initiative and for other related purposes.

Reason for decisions

Cabinet agreed to continue the Council’s trailblazing Libraries Refurbishment and Enhancement Programme by making key decisions to progress the modernisation of the Borough’s flagship library venue in Uxbridge. It was noted that a nearby temporary library would be set up for residents during the refurbishment period.

Cabinet welcomed the fact that this programme had transformed the interior and in some cases the exterior of 14 of the Borough’s libraries which had provided a modern and welcoming environment and increased opening hours that had seen usage increase by an average of 54%.

Alternative Options Considered and rejected

Cabinet could have decided not to progress the modernisation of Uxbridge Central Library or delayed the works to it.

Officer to action:

Mohamed Bhimani, Residents Services

Exempt Information

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- Page 13 - Page 13 public interest in disclosing it (exempt information under paragraph 3 of Part 1 of Schedule 12A to the Local Government (Access to Information) Act 1985 as amended.

741. USE OF FINANCIAL CONSULTANTS TO MAXIMISE PLANNING OBLIGATIONS

RESOLVED:

That the Cabinet agree to delegate authority to the Cabinet Member for Planning, Transportation and Recycling, in consultation with the Deputy Chief Executive and Corporate Director of Residents Services, to take all necessary steps to procure independent, appropriately qualified, third part financial consultants to assess the accuracy of Financial Viability Appraisals (FVA's) that accompany planning applications.

Reasons for decision

Cabinet agreed to progress the appointment of specialist consultancy services in relation to the assessment of Financial Viability Appraisals submitted in support of planning applications.

Alternative options considered and rejected

Cabinet could have decided not to make use of consultants for this type of work, however, this would risk not obtaining the maximum amount of planning gain from development proposals.

Officer to action:

Matthew Duigan, Residents Services

Exempt Information

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- Page 14 - Page 14

742. ANY OTHER ITEMS THE CHAIRMAN AGREES ARE RELEVANT OR URGENT

No additional items were considered by the Cabinet.

The meeting closed at 7.35pm

* IMPORTANT INFORMATION

DECISION AUTHORITY

Meeting after Cabinet, the Executive Scrutiny Committee fully endorsed all of Cabinet’s decisions. The decisions of the Cabinet come into effect from 5pm, Tuesday 2 April 2013, with the following exceptions:

• Item 13 (minute 736) – School Capital Programme - to ensure that the programme progressed swiftly and that the necessary contractual commitments could be met on time, all decisions on this item come into effect immediately, following the agreement to waive the scrutiny call-in period by the Chairman of the Executive Scrutiny Committee.

• Items 14, 15 & 16 (minutes 737, 738 & 739) - Academy Conversions – to ensure that the necessary paperwork can be submitted to the Department for Education on time, these decisions take immediate effect, following the agreement to waive the scrutiny call-in period by the Chairman of the Executive Scrutiny Committee.

All decisions on items 13, 14, 15 & 16 come into immediate effect.

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Page 16 Agenda Item 5 RESIDENTS’ AND ENVIRONMENTAL SERVICES POLICY OVERVIEW COMMITTEE: REVIEW OF REGULATIONS AND BYELAWS RELATING TO CEMETERIES AND BURIAL GROUNDS WITHIN HILLINGDON

Cabinet Member Councillor Jonathan Bianco

Cabinet Portfolio Finance, Property and Business Services

Officer Contact Steven Maiden, Administration Directorate

Papers with report 1. Residents’ and Environmental Services Policy Overview Committee review of the Regulations and Byelaws relating to Cemeteries and Burial Grounds within Hillingdon. 2. Redrafted Cemeteries Regulations. 3. Equality Impact Assessment.

HEADLINE INFORMATION

Purpose of report To receive the Residents’ and Environmental Services Policy Overview Committee’s review of the Regulations and Byelaws relating to Cemeteries and Burial Grounds within Hillingdon.

Contribution to our Putting our residents first. plans and strategies

Financial Cost To be contained within budget.

Relevant Policy Residents’ and Environmental Services Overview Committee

Ward(s) affected N/A

RECOMMENDATIONS

That Cabinet:

1. Welcomes the report from the Residents’ and Environmental Services Policy Overview Committee (as in Appendix 1) on the review into the Cemeteries Regulations.

2. Endorses the recommendations of the Policy Overview Committee as reflected below.

3. Approves the redrafted Cemeteries Regulations (as in Appendix 2).

Cabinet – 25 April 2013 Page 17

Policy Overview Committee Recommendations

Sustainability / Fairer Usage by All

a) That Cabinet agree the revised set of Cemetery Regulations that have been updated to make the rules clearer and fairer for all residents and users of different religious beliefs. This includes the necessary promotion of the rules both to funeral directors and bereaved families in a suitable and sensitive manner.

Resident Engagement

b) Support any ‘friends’ groups that may wish to be established in relation to local cemeteries; additionally, that the Council continues to work closely with the Safer Neighbourhood Team (SNT) and ask officers to agree a local procedure on how to deal with anti-social behaviour, specifically within cemeteries.

c) Ask officers to investigate the reintroduction of leaflets and a pictorial booklet to summarise key elements of the regulations to be circulated to bereaved families via Funeral Directors.

Good Maintenance

d) Considers the best way for officers to inspect memorials in cemeteries and how to best achieve this in line with health and safety objectives;

e) Welcome Cabinet’s decision to bring cemetery grounds maintenance back 'in- house' as part of the award winning Green Spaces team.

f) That Cabinet agree to the creation of a long-term (5 year minimum) rolling strategy for the Council’s cemeteries, which should be published on the Council’s website and at the cemeteries office. This should include, in particular, a winter rolling programme of works to cemeteries be publicised to residents so they are clear when essential works are taking place.

g) Having reviewed the grounds and facilities across the Borough and following evidence received from witnesses, to note three particular service improvements, which Cabinet may wish to investigate further and consider as part of the service and budget planning process: • To explore more cost effective options of using machinery to break down clay soil used for graves; • The lack of toilet facilities and a shelters for families to congregate at any of the Borough’s cemeteries with the exception of Hillingdon, noting that there is also a lack of places of prayer; • The condition of the Grade I arch at the entrance of Hillingdon & Uxbridge cemetery.

Reasons for recommendations

The main objective of this review was to modernise and update the Council’s Cemeteries Regulations, which were no longer seen to be fit for the purposes of providing a sustainable and culturally sensitive service to the Borough’s diverse communities. The regulations, first produced in 1994, required redrafting to accommodate some of the specific needs of different cultural and

Cabinet – 25 April 2013 Page 18 religious groups as well as to ensure that they provided an equitable and enforceable usage policy throughout the Borough.

The review also sought to assess the maintenance of existing facilities at the Borough’s Cemeteries that had, at times, received a service level below the high standards that the Council aimed to achieve in this area. The Committee’s priorities here were to ensure the safety of the Borough’s memorial headstones and to improve the level of service provided to residents in all of Hillingdon’s cemeteries.

Alternative options considered / risk management

The Cabinet could decide to reject some or all of the Committee’s recommendations.

Supporting Information

1. The Terms of Reference of the review were as follows:

• To look at the cemeteries and burial grounds within the Borough, and to examine how they are maintained to ensure they are at a good standard. • To review the existing Council policies, rules, regulations and byelaws as they relate to cemeteries and to look at their application and enforcement. • To look at the different religious and cultural requirements for burials and memorials within the Borough and how the Bereavement Service provides this. • To investigate best practice and experiences of other local authorities in relation to their cemeteries and burial grounds. • To examine the long-term capacity and space, which will be required at the Borough’s cemeteries and burial grounds. • To make recommendations to Cabinet on the outcome of this review.

2. The review took place between July and December 2012 and received evidence from: • Council officers from Bereavement Services and the Civil Protection Service, • The Council’s Green Spaces, Sports and Leisure Senior Manager, • Harrow Council’s Green Spaces Sports and Leisure Manager, • The Council’s Anti-Social Behaviour Service Manager, • A representative from the Metropolitan Police, • The Borough Solicitor, • Service users of some of the Council’s cemeteries, and • Representatives from local Funeral Directors.

3. Many of the recommendations of this review relate to the redrafting of the Council’s Cemeteries Regulations. Based on the discussions of the Committee, officers provided a redrafted copy of the Regulations that was agreed by Members as accurately reflecting the needs of residents as presented by witnesses. These were redrafted with the assistance of the Borough Solicitor to ensure their compliance with the relevant legislation. The updated Cemeteries Regulations are attached to the report and Cabinet is asked to approve them alongside the report itself.

4. For information, the accompanying Equality Impact Assessment is also appended.

5. The review was carried out with the understanding that any suggested recommendations for any possible enhancements to the facilities at the cemeteries would only be undertaken with

Cabinet – 25 April 2013 Page 19 further feasibility work by officers and Cabinet as part of the service and budget planning process.

6. It is proposed to undertake a full building services report on the Gatehouse at Uxbridge Cemetery to identify the scope of works required to restore the building and arrest its deterioration. In this regard, a briefing was given to relevant Cabinet Members in February 2013 on the outcome of a tender exercise for the relevant consultants carried out by officers at the request of the Cabinet Member for Finance, Property and Business Services. It was agreed informally to proceed with funding the survey, though given the expected value, a Cabinet Member report will be required for formal approval. Once this is given, it is expected to take up to 6 weeks to complete the survey. The survey will identify the scope of works and provide estimated costs for a budget strategy to be formulated to present to Cabinet Members for consideration.

Financial Implications

It is expected that Recommendations (a) to (f) of the Committee’s report can be implemented within existing expenditure budgets for the management of the Council’s cemeteries. Where there are specific service improvements identified in Recommendation (g), these will, subject to the views of the Cabinet Member for Finance Property and Business Services, be costed and any capital investment implications identified for further consideration within the Council’s Medium Term Financial Forecast (MTFF) process.

EFFECT ON RESIDENTS, SERVICE USERS & COMMUNITIES

What will be the effect of the recommendations?

The implementation of the modernised and updated Cemeteries Regulations will help to ensure that the services provided by the Council’s Bereavement Services and Green Spaces Team will be sensitive to the needs of the Borough’s diverse communities as well as being equitable, sustainable and well maintained.

Consultation Carried Out or Required

The Committee heard evidence from the witnesses listed above and undertook site visits to the Borough’s cemeteries.

CORPORATE IMPLICATIONS

Corporate Property and Construction

Corporate Property and Construction supports the recommendations made in this report.

Corporate Finance

Corporate Finance has reviewed this report and concurs with the financial implications set out above, noting that the recommendations (a) to (f) of the Committee’s report could be implemented within existing resources whereas recommendation (g) could potentially require additional resources. Such additional resources could either be identified through the MTFF process or existing unallocated growth budgets.

Cabinet – 25 April 2013 Page 20 As noted within the report, a separate report will be presented to the Cabinet Member for Finance, Property & Business Services recommending appointment of a contractor to undertake survey works on the arch at Uxbridge Cemetery.

Legal

The Regulations as contained in Appendix 2 of the report comply with the Local Authorities Cemetaries Order 1977 (as amended). It is open to Cabinet to accept, reject or amend the proposed Regulations, subject to amendments conforming with the Local Authorities Cemeteries Order 1977 (as amended).

BACKGROUND PAPERS

None.

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Page 22

Report of the Residents’ and Environmental Services Policy Overview Committee 2012/13

Review of Regulations and Byelaws relating to Cemeteries and Burial Grounds within Hillingdon

Members of the Committee

Cllr Susan O’Brien (Chairman) Cllr Mary O’Connor (Vice-Chairman) Cllr Carol Melvin Cllr David Payne Cllr Michael White Cllr David Yarrow Cllr Lynne Allen Cllr Kuldeep Lakhmana

Page 23 CONTENTS

Chairman’s Foreword Page 3

Summary of Recommendations Page 4

About the Review Page 6

Background Information Page 8

Sustainability Page 11

Fairer Usage by All Page 13

Resident Engagement Page 16

Good Maintenance Page 18

Page 24

Chairman’s Foreword

I am delighted to present this review on the Regulations and Byelaws relating to Cemeteries and Burial Grounds in Hillingdon. As a Borough, like London as a whole, we have a growing, ageing and increasingly diverse population requiring services that accommodate a vast range of cultural, religious and practical needs. Services provided by the Council’s cemeteries and burial grounds are no exception.

This review looked at the Council’s current Cemeteries Regulations and practices with a view to modernising and updating them so that they met the diverse needs of the Borough’s communities as they paid their respects at the graveside. Of paramount importance, this review was ensuring that our recommendations would provide users of the Council’s cemeteries with a safe, sensitive and fair environment in which the dignity of mourners was respected.

With only an estimated 15-20 years of burial capacity left in the Borough, the review also sought to redraft the Regulations to ensure that they led to sustainable and fair usage by all. This included reviewing the maintenance arrangements currently in place to ensure that cemeteries and burial grounds were kept to a high standard and that anti-social behaviour was acted upon swiftly and sensitively.

The review heard evidence on the issues relating to the Borough’s own cemeteries and regulations as well as those of other London boroughs. Expert witnesses provided valuable information and offered their views on how to create a sustainable and culturally sensitive service for future generations.

I would like to thank the external witnesses and officers for participating in the review and ask that Cabinet kindly consider the recommendations contained in the report.

Councillor Susan O’Brien

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Summary of Recommendations

On the Basis of the evidence received, the Committee made the following recommendations to Cabinet:

RECOMMENDATIONS

Sustainability / Fairer Usage by All

1) That Cabinet agree the revised set of Cemetery Regulations that have been updated to make the rules clearer and fairer for all residents and users of different religious beliefs. This includes the necessary promotion of the rules both to Funeral Directors and bereaved families in a suitable and sensitive manner.

Resident Engagement

2) Support any ‘friends’ groups that may wish to be established in relation to local cemeteries; additionally, that the Council continues to work closely with the Safer Neighbourhood Team (SNT) and ask officers to agree a local procedure on how to deal with anti-social behaviour, specifically within cemeteries.

3) Ask officers to investigate the reintroduction of leaflets and a pictorial booklet to summarise key elements of the regulations to be circulated to bereaved families via Funeral Directors.

Good Maintenance

4) Considers the best way for officers to inspect memorials in cemeteries and how to best achieve this in line with health and safety objectives;

5) Welcome Cabinet’s decision to bring cemetery grounds maintenance back 'in-house' as part of the award winning Green Spaces team.

6) That Cabinet agree to the creation of a long-term (5 year minimum) rolling strategy for the Council’s cemeteries, which should be published on the Council’s website and at the cemeteries office. This should include in particular a winter rolling programme of works to cemeteries be publicised to residents so they are clear when essential works are taking place.

7) Having reviewed the grounds and facilities across the Borough and following evidence received from witnesses, to note three particular service improvements, which Cabinet may wish to

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investigate further and consider as part of the service and budget planning process: • To explore more cost effective options of using machinery to break down clay soil used for graves; • The lack of toilet facilities and a shelters for families to congregate at any of the Borough’s cemeteries with the exception of Hillingdon, noting that there is also a lack of places of prayer; • The condition of the Grade I arch at the entrance of Hillingdon & Uxbridge cemetery.

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About the Review

OBJECTIVES

The review also sought to assess the maintenance of existing facilities at the Borough’s Cemeteries that had, at times, received a service level below the high standards that the Council aimed to achieve in this area. One of the Committee’s priorities was to ensure the safety of the Borough’s memorial headstones, 60-70% of which were estimated to be in need of repair.

With this in mind, the Committee aimed to contribute to the redrafting of the regulations and, in so doing, sought to strike a sensitive balance in the Council’s accommodation of the needs of a diverse population. In order to achieve this, Members were presented with evidence and research on the different ways in which various groups paid their respects at the graveside, current maintenance arrangements, information on existing regulations and the practices of neighbouring authorities.

In undertaking this review the Committee also aimed to contribute to the Council’s policies by ensuring that: • The needs of the Borough’s diverse communities are put first. • The Council’s cemeteries are inclusive by promoting equality and diversity. • There is a continued improvement of the Council’s green and open spaces for the benefit of residents.

TERMS OF REFERENCE

The terms of reference of the review were as follows: • To look at the cemeteries and burial grounds within the Borough, and to examine how they are maintained to ensure they are at a good standard. • To review the existing Council policies, rules, regulations and byelaws as they relate to cemeteries and to look at their application and enforcement. • To look at the different religious and cultural requirements for burials and memorials within the Borough and how the Bereavement Service provides this. • To investigate best practice and experiences of other local authorities in relation to their cemeteries and burial grounds. • To examine the long-term capacity and space, which will be required at the Borough’s cemeteries and burial grounds.

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• To make recommendations to Cabinet on the outcome of this review.

WITNESSES

This review was undertaken over 5 meetings from July to December 2012 and the following witnesses presented evidence:

• Council officers from Bereavement Services and the Civil Protection Service, • The Council’s Green Spaces, Sports and Leisure Senior Manager; • Harrow Council’s Green Spaces Sports and Leisure Manager; • The Council’s Anti-Social Behaviour Service Manager; • A representative from the Metropolitan Police; • The Borough Solicitor; • Service users of some of the Council’s cemeteries; and • Representatives from local Funeral Directors.

In addition to its formal evidence collection, the Committee also conducted a site visit to some of the Borough’s cemeteries on 4 September 2012.

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Background Information

HILLINGDON’S CEMETERIES AND BURIAL GROUNDS

The London Borough of Hillingdon is London’s second largest borough by area and has an estimated population of roughly 274,000 people. For the purposes of this review it is worth noting that roughly 34,000 (12.9%) of the population are over 65 and that it has been estimated that this age group will increase by 7.1% between 2012 and 2017. 1 As well as having an ageing population, the Borough also has a growing proportion of ethnic minority communities with rises from 20% of the total population in 2001, to 32% in 2011, to a predicted 38% in 2021. 2

The significant changes to the demographics of the Borough have implications both on the sustainability of the Council’s cemeteries and on the type of burials, graves and memorials that they are required to accommodate. The burial needs of this diverse population are partly met by the Council’s 8 cemeteries and burial grounds which are detailed below:

Cemeteries at capacity Cemeteries with space remaining Harmondsworth Cemetery Harlington Burial Ground Hillingdon and Uxbridge Cemetery Cherry Lane Victoria Lane Cemetery Northwood Cemetery West Drayton Cemetery Woodland Burial Ground (Forming part of West Drayton Cemetery)

With 3 of the Council’s 8 cemeteries at capacity, the issue of sustainability is being considered and there are plans to expand the West Drayton Cemetery to provide more burial space. However, increases in the number of plots being purchased is leading to the overall capacity across the Borough rapidly diminishing. Taking this into consideration, it has been estimated that Hillingdon currently has burial capacity for only a further 15 to 20 years.

EXISTING REGULATIONS

The Council’s Cemeteries are currently subject to Cemeteries Regulations drafted in 1994. These Regulations contain detailed information on many aspects of burials of which the Committee looked at the following key, outdated areas: • The Council allowed graves to be leased for exclusive rights of burial and exclusive right to a memorial for 100 years. • Individuals were able to purchase up to 5 graves at any one time.

1 Office of National Statistics 2 Joint Strategic Needs Assessment (JSNA) 2012

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• The issues of enforcement, sanctions and prosecutions for non- compliance and/or anti-social behaviour were not explicit. • Enforcement action on non-compliant headstones was difficult because there was no explicit information on the sizes and shapes allowed. • There were aspects of the guidance provided that did not accommodate the needs of certain sections of the community.

Officers advised that these areas of the regulations were no longer fit for purpose and were contributing to some of the challenges that were faced at cemeteries by Bereavement Services and the Grounds Maintenance Team. It was also noted that work had to be undertaken on the Regulations document by consolidating information, reformatting, improving accessibility and simplifying the language used.

MAINTENANCE

Due, in part, to ambiguities in the current Regulations and poor communication, there is currently a degree of confusion with grave owners and their families over where responsibility lies for the maintenance of graves and cemeteries. It is important to be clear that the maintenance of cemeteries themselves (which includes the roads, communal areas, facilities, etc.) is the Council’s responsibility and has been undertaken by the Grounds Maintenance Team as of 1 January 2013.

However, owners of graves or their families are responsible for the upkeep of the graves themselves in as much as they are required to ensure that nothing on the grave encroaches into communal areas.

Where this division of responsibility becomes more complex is in the maintenance of headstones and other memorials. Local Authorities are responsible for the health and safety of their cemeteries and, as such, have a vested interest in the safety of headstones and other memorials. However, importantly, ownership and maintenance of headstones and memorials lies with the owner of the grave or their families. This means that any action that the Council undertakes has to be done in conjunction with owners. This is an important area as unsafe headstones, caused by sub-standard masonry and memorials becoming unstable over time, is a major issues faced by the Council’s cemeteries.

ENQUIRY

Based on this background information and the evidence provided by expert witnesses, the Committee was able to develop findings and recommendations that aimed to produce a more sensitive, sustainable and high-quality service founded on a set of relevant and up-to-date Regulations. For ease of reference, evidence, findings and recommendations are set out below under the following sections: 1. Sustainability

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2. Fairer Usage by All 3. Resident Engagement 4. Good Maintenance

APPENDICES

Re-drafted Cemeteries and Burial Grounds Regulations

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1. Sustainability

This review highlighted 3 main sustainability issues with the current arrangements for Hillingdon’s cemeteries, all of which centred on the purchasing of burial plots. These are set out in detail below.

PURCHASING MULTIPLE PLOTS

The Committee heard that the existing Regulations, which had partly been drafted with a view to income generation in the early 1990s, allowed individuals to purchase up to 5 plots at any one time. This generous provision was noted to have serious implications on the long-term capacity of the Borough’s Cemeteries and it was agreed that new regulations should be more sustainable and that there should be a reduction in the maximum purchase of plots from 5 to 2. Furthermore, the option to pre-purchase graves was to be removed in the redrafted Regulations in line with standard practice across London.

As each plot could have up to 3 interments and also the facility to have several cremated remains (ashes) interred within the plot, the Committee did not consider that this would have an unacceptable impact on residents when understood in the context of a diminishing burial capacity across the Borough. In fact, the Committee felt that this reduction would lead to more equitable usage and ensure that all residents, now and in the future, would have fair access to the Borough’s cemeteries.

EXCLUSIVE RIGHTS OF BURIALS AND MEMORIALS

Similarly, the existing Regulations stipulated that an Exclusive Right of Burial and an Exclusive Right to a Memorial should be granted for 100 years in the first instance. Expert witnesses both from Hillingdon’s and Harrow Council’s cemeteries informed the Committee that this was not in line with common practice in London. Harrow Council had a maximum lease of 50 years with possible extensions on family request. Furthermore, a recent survey of other local authorities showed that most offered burial rights from between 50 and 70 years. For the Council to continue offering 100-year Exclusive Rights was deemed by the Committee to threaten the sustainability of the service.

To address this, the Committee suggested that the maximum period for Exclusive Right of Burial and the Exclusive Right to a Memorial were to be set at 30 years in the redrafted Regulations. The option to extend these Rights in 10-year blocks for up to 100 years from the date of grant was also provided for in the appended redraft. This timeframe would be in line with the introduction of Memorial Masons being required to agree to a Guarantee of Conformity for 30 years. More information on the Guarantee of Conformity is set out in the Good Maintenance section below and in the redrafted regulations themselves.

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RESIDENTS AND NON-RESIDENTS

Unlike in many other boroughs, residents and non-residents of Hillingdon were able to purchase plots at the same price. Officers advised that new fees and charges had been introduced both to deal with the increasing number of non-residents buying up plots in the cemeteries and to bring the charges for non-residents in line with those charged by other local authorities. Since the introduction of these arrangements there has been a significant decrease in the number of non-residents buying plots in Hillingdon. In addition, it is important to note that, when compared to other local authorities, the Council still charges its own residents low fees and charges.

However, an issue that the Committee were keen to address was the definition of the term ‘resident’. It was noted that there were many reasons why people who had lived in the Borough for most of their lives might leave towards the ends of their lives and still wish to be buried in Hillingdon’s cemeteries. The redrafted Regulations therefore included the following qualification to the term, “resident”:

The only exception being if the deceased person was a resident of the Borough prior to death, who was transferred outside the Borough due to ill health to reside in a hospice, nursing home or with relatives, or, in the case of a stillborn child, at least one parent was living in the Borough at the time of death. 3

Given Members’ concerns, the Committee welcomed the Cabinet’s recent decision to amend cemetery fees and charges for non-residents to align them better with those of neighbouring local authorities.

Findings and Recommendations

In summary, the Committee found that: 1. The Cemeteries Regulations should be redrafted to reduce the number of plots an individual can purchase from 5 to 2. 2. The Cemeteries Regulations should be redrafted to amend the Exclusive Rights of Burial and the Exclusive Rights to a Memorial from 100 to 30 years. 3. That the Cabinet’s decision to amend cemetery fees and charges for non- residents should be welcomed.

Recommendation 1

That Cabinet agree the revised set of Cemetery Regulations that have been updated to make the rules clearer and fairer for all residents and users of different religious beliefs. This includes the necessary promotion of the rules both to funeral directors and bereaved families in a suitable and sensitive manner.

3 3 Excerpt taken from the Hillingdon – Cemetery Regulations 2012

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2. Fairer Usage by All

ANTI-SOCIAL BEHAVIOUR: FINES, ENFORCEMENT AND SANCTIONS

Throughout the review the Committee was reminded that one of the major issues with the current Cemeteries Regulations was that they were difficult to enforce and, throughout almost 20 years in operation, had not led to a single prosecution. This was of concern to the Committee given the rise in complaints received by the Council regarding anti-social behaviour at cemeteries. However, it should be noted that increasing prosecutions was not an aim of the review and that this would only be used as a means to improve services for residents.

The Council saw 3 categories of anti-social behaviour in cemeteries and burial grounds: • Those relating to the building/erection of non-compliant headstones and other related structures; • Acts of vandalism on the sites; and • Issues with public order that were, at times, related to funeral ceremonies. Witnesses provided information and examples on all of these types of Anti-Social Behaviour.

The Committee’s approach to this issue was simple; Members requested that the redrafted regulations be made more explicit both in terms of what constituted a breach and how breaches were enforced. The redrafted Regulations therefore contain clear and explicit information on the “Behaviour of visitors”, on the “Enforcement of the Regulations and associated penalties” and the details on what was allowed and was not allowed to be erected as a memorial. This was designed specifically to ensure that, when breaches do occur, appropriate and enforceable penalties could be incurred.

Specifically, the redrafted regulations make it clear that breaches of the expected behaviour of visitors would, as a last resort, be dealt with by a prosecution. If offences did not lead to prosecution they would attract a maximum fine of £100 and, in the case of a continuing offence, a fine not exceeding £10 per day during which the offence continued. The Regulations also made provisions for anti-social behaviour being dealt with by the Council and the Police under the relevant legislation should the need arise. Furthermore, the Regulations provide clear dimensions for acceptable memorials, the need to receive permission before erecting a memorial and the enforcement route the council will take for any breaches.

However, in order to enforce, the Council also needed to collect information on those who offended at cemeteries. Witnesses informed the Committee that most anti-social behaviour took place over the weekend and, as no officers were present, it was therefore difficult to find the perpetrators. As a way of combating this problem, the Committee suggested that a series of signs be put up around cemeteries providing information on who to notify if visitors experienced anti-social behaviour. This would provide the Contact Centre number to call. Officers in the Green Spaces Team would then be contacted to deal with any problems in conjunction with the Safer Neighbourhood Team (SNT).

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It was felt that such revisions to the Regulations and the introduction of practical steps to enforce them would help to ensure that all users of the Council’s cemeteries were provided with a sensitive environment in which the dignity of mourners was respected.

ACCOMMODATING OUR DIVERSE POPULATION

A variety of witnesses provided information on the different ways in which sections of the Borough’s communities memorialise and mourn their dead. The existing Regulations did not accommodate these specific needs and there were certain issues that officers felt needed to be addressed to ensure that all religions and cultures were provided for fairly.

Although this report will not go into any great detail as to the different burial practices of sections of the community, it should be noted that over the past 20 years, Hillingdon, like many local authorities, has moved away from providing traditional graves and towards providing lawn graves. This decision was made, in part, due to the reduced costs involved and in the ease of maintaining a lawn grave. This reflected a national trend and has led to the vast majority of the Borough’s burial areas not accommodating traditional graves. However, there are significant sections of the community who, for religious and cultural reasons, tend towards burials in traditional graves. This is currently only provided for in the Muslim Section of the Cherry Lane Cemetery.

The Committee felt that the predominance of lawn graves did not promote equality and fair usage for all of the Borough’s residents as it was not sensitive towards the needs of minority groups. Consequently, it was recommended that all of the Borough’s cemeteries and burial grounds have areas set aside for traditional graves.

To avoid any unnecessary segregation of different groups in cemeteries, the Committee suggested three further revisions to the Regulations as follows: 1. It should be possible for individual graves to be consecrated rather than whole sections of a cemetery. 2. Everyone should have the right to be buried in a shroud rather than only Muslims as is the current arrangement. 3. Greater flexibility for burials on a Saturday should be introduced. In particular this would accommodate the needs of Muslims who are required to bury their loved ones as soon as possible after death.

Findings and recommendations

In summary, the Committee found that: 1. Cemeteries Regulations needed to be redrafted in order to make more clear and explicit the expected behaviour of visitors to the cemeteries and the penalties that would be incurred should these expectations not be met. 2. Information should be collected from the grave owners and their families to ensure that, if and when breaches of Regulations occur, the Council is able to ensure swiftly and sensitively. This is currently only the case for grant holders.

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3. The Regulations should explicitly state that all cemeteries should have areas set aside for use as traditional graves.

The recommendation to achieve the above is set out in Recommendation 1 under, Sustainability.

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3. Resident Engagement

The Committee strongly believed that successful, well-maintained and sustainable cemeteries and burial grounds would only be fully realised with resident engagement. In the Committee’s view this could be facilitated in three main ways; firstly, by raising awareness of the regulations amongst residents, secondly, by encouraging and supporting any local Friends’ Groups that emerge and, thirdly, by the Council continuing to work closely with the Metropolitan Police’s Safer Neighbourhoods Team (SNT) to combat anti-social behaviour.

DISSEMINATION OF INFORMATION

One of the ways in which the Committee felt that residents could be engaged in the ongoing improvement of cemeteries was through the clear communication of the Council’s redrafted Regulations. Witnesses from local Funeral Directors highlighted a perception amongst users of the cemeteries that the rules and regulations that were in place were not enforced consistently or fairly. It was felt that, alongside the introduction of more explicit penalties for breaching the regulations, awareness should be raised amongst residents of what was expected of them and what they could expect of the Council. In making clear to residents that they are expected to behave in a certain manner and that the Council has begun to enforce regulations more strictly, it was hoped that there would be an increased level of compliance as well as renewed resident confidence, ownership and pride in the cemeteries.

One of the simplest ways to achieve that was felt to be through the reformatting and simplification of the Regulations to ensure that they could be accessed by all. It was suggested that the following revisions be made to the document itself: § It should be brought in line with corporate branding. § An improved contents page should be introduced for ease of navigation. § The overall content should be reordered to improve accessibility. § Language should be simplified language as much as possible whilst ensuring that the Regulations were still clear and enforceable. § Any text which did not add value should be removed. § There should be an extended and clearer set of definitions, including greater clarity on the term ‘Resident’.

Furthermore, witnesses had noted that, in 2000, the Council stopped producing and circulating a booklet with extracts from the Regulations to funeral directors and families due to reasons that were unknown to current officers. The Committee agreed that officers should be asked to investigate the reintroduction of this information to be circulated to funeral directors and, through them, to bereaved families. This would be a pictorial booklet that depicted information on the changes to the regulations set out in this report, including details of the new 30-year Exclusive Burial Rights / Right to a Memorial and the introduction of a 2 grave purchase limit.

DEALING WITH ANTI-SOCIAL BEHAVIOUR

As set out above, the Committee has put forward a redrafted set of Regulations that are aimed to ensure that anti-social behaviour and breaches are taken seriously and

Residents’ & Environmental Services Policy Overview Committee Major Review – Cemeteries & Burial Grounds - 2012/2013 Review Page 16 Page 38 result in penalties and prosecutions. Yet this cannot simply be achieved by introducing Regulations and must also be dealt with by continuing to work with SNTs in the Borough to combat persistent problems with anti-social behaviour. SNTs are themselves local and seek to engage residents and deal with the concerns that they have in their local communities.

With this in mind, the Committee encouraged officers to continue to work closely with SNTs to develop a local procedure on how to deal with anti-social behaviour with a particular focus on cemeteries.

Furthermore, it was felt that the Council should seek to support actively any cemetery Friends’ Groups that might emerge to reassure residents that their voices are heard and that the Council will take action on any areas that fall below the high standards that they expect.

Findings and Recommendations

In summary, the Committee found that: 1. The printing and dissemination of leaflets to funeral directors concerning expectations and a summary of what was and was not allowed should be explored. 2. These leaflets should be kept well stocked at all times to ensure that they are always made available to residents and funeral directors. 3. Resident engagement with cemeteries or burial grounds should be encouraged and the Council should support any local Friends’ Groups that emerge. 4. All funeral directors should receive a full re-drafted version of the Cemeteries Regulations to ensure that they comply and pass such information on to bereaved families. 5. The excellent work that is already undertaken by the Council and the Metropolitan Police’s Safer Neighbourhoods Team should continue. 6. Officers should agree a local procedure on how to deal with anti-social behaviour, especially in cemeteries.

Recommendation 2

Support any ‘friends’ groups that may wish to be established in relation to local cemeteries; additionally, that the Council continues to work closely with the Safer Neighbourhood Team (SNT) and ask officers to agree a local procedure on how to deal with anti-social behaviour, specifically within cemeteries.

Recommendation 3

Ask officers to investigate the reintroduction of leaflets and a pictorial booklet to summarise key elements of the regulations to be circulated to bereaved families via Funeral Directors.

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4. Good Maintenance

CEMETERY MAINTENANCE

Until recently cemeteries in the Borough were maintained by a variety of contractors and, through the witness sessions, it was noted that a number of the maintenance issues at cemeteries were due to poor service from these contractors. However, following the Cabinet’s decision to bring maintenance in house as of 01 January 2013, cemeteries will be maintained by the Green Spaces Team. It is believed that this will improve the level of service provided by the cemeteries and will deliver savings to residents.

On behalf of the Committee the Chairman has noted that “the Committee welcomes Cabinet's confirmation that cemetery grounds maintenance has come back to an 'in- house' team and will be part of the award winning Green Spaces team. I believe that residents will welcome this too.”

LONG-TERM PLANNING

Currently, much of the work undertaken at the Council’s cemeteries is done reactively. This leads to irregular investment and upkeep, with a focus on those cemeteries that have spare capacity. As a result, sometimes complaints are received from residents who attend graves at ‘closed’ cemeteries. Much of the maintenance work is seasonal and the overall scale of the work means it must be spread over a number of years.

To ensure investment, income, maintenance, safety inspections and general upkeep and improvements occur in a timely, cost-effective and transparent way a longer-term, planned strategy for the Council’s cemeteries would provide great value.

As one of the major issues caused by this lack of long-term planning was seen to be maintenance during the winter months, the Committee emphasised that, alongside the production of a plan covering a minimum of 5 years, there should be a winter rolling programme of works to cemeteries. To ensure that the Council’s activities are seen as transparent and fair, the Committee recommends that this information is published on the website in due course.

FACILITY IMPROVEMENTS

The Committee acknowledged in this review that the Council is currently operating within a difficult economic climate and that any expenditure must be considered in the light of this. With this in mind, the Committee did not wish to make specific suggestions as to what works should be undertaken on the cemeteries and instead sought to provide areas for improvement to be considered by the relevant officers and Cabinet Member.

Based on evidence provided by all witnesses there were three areas that were felt to be of particular importance.

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• Considering the use of more cost effective machinery to break down clay soil used for graves; • Considering solutions to the lack of toilet facilities and a shelter for families to congregate at Cherry Lane cemetery, noting that there is no place of prayer at this particular ground; and • Considering the condition of the Grade I arch at the entrance of Hillingdon & Uxbridge cemetery.

HEADSTONES AND MEMORIALS

One of the major challenges faced by the Council in maintaining its cemeteries is the condition of headstones in the Borough and a lack of awareness by grave owners of their responsibilities. An officer from a neighbouring local authority had recently commented that approximately 60-70% of the headstones in the Council’s cemeteries were deemed to be unsafe. It was identified that safety issues were related to the poor quality of masonry, the unsafe erection of memorials and lack of memorial maintenance by grave owners. As a way of combating the reoccurrence of this problem in the future, the Committee agreed that the redrafted Regulations should stipulate that no work could be carried out on any grave space except by a mason accredited to the British Registration of Approved Monumental Masons Scheme (BRAMM), or National Association of Memorial Masons (NAMM), or an equivalent scheme which will satisfy the Council’s requirements. It was further agreed that all memorials installed in any cemeteries from the date of installation must be subject to a “Guarantee of Conformity” granted by the mason. Such a guarantee would given to confirm that the memorial has been fixed to the best standard set by NAMM at the date of fixing and should last for a minimum of 30 years.

Prior to undertaking any works to resolve safety issues, officers would be required to assess comprehensively the memorials across the Borough. As mentioned above, the Council is responsible for the health and safety of its cemeteries but, as it does not own memorials, any work must be undertaken in consultation with grave owners, this would therefore be likely to take a number of years. The Committee therefore felt that the most appropriate way to resolve these issues was to ask officers to consider the best way to inspect memorials and achieve improvements in line with health and safety objectives, linking to the long-term strategy.

Findings and Recommendations

In summary, the Committee found that: 1. The Cabinet’s work to bring maintenance of the Borough’s cemeteries in house should be welcomed as a decision that will improve services and benefit residents. 2. To ensure transparency, the winter programme of works should be published for residents. 3. Officers should investigate how best to assess the safety of the headstones in the Borough. 4. Options on how to improve the facilities and machinery used at cemeteries should be explored by officers with the relevant Cabinet Members.

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Recommendation 4

Considers the best way for officers to inspect memorials in cemeteries and how to best achieve this in line with health and safety objectives;

Recommendation 5

Welcome Cabinet’s decision to bring cemetery grounds maintenance back 'in- house' as part of the award winning Green Spaces team.

Recommendation 6

That Cabinet agree to the creation of a long-term (5 year minimum) rolling strategy for the Council’s cemeteries, which should be published on the Council’s website and at the cemeteries office. This should include in particular a winter rolling programme of works to cemeteries be publicised to residents so they are clear when essential works are taking place.

Recommendation 7

Having reviewed the grounds and facilities across the Borough and following evidence received from witnesses, to note three particular service improvements, which Cabinet may wish to investigate further and consider as part of the service and budget planning process: • To explore more cost effective options of using machinery to break down clay soil used for graves; • The lack of toilet facilities and a shelters for families to congregate at any of the Borough’s cemeteries with the exception of Hillingdon, noting that there is also a lack of places of prayer; • The condition of the Grade I arch at the entrance of Hillingdon & Uxbridge cemetery.

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HILLINGDON COUNCIL CEMETERIES REGULATIONS

In accordance with the Local Authorities Cemeteries Order 1977

Published: 10 th April 2013

Version: DRAFT 0.5.4 (for Cabinet)

Page 43 Hillingdon Council – Cemeteries Regulations

Contents

1. INTRODUCTION 4

2. ADMINISTRATION 4

3. DEFINITIONS 5

4. GENERAL 6

4.1. OPENING HOURS 6 4.2. FEES AND CHARGES 6 4.3. GRATUITIES 6 4.4. CHILDREN 6 4.5. ANIMALS 6 4.6. FLOWERS AND WREATHS 6 4.7. VEHICLES 7 4.8. LIABILITY OF THE COUNCIL 7 4.9. PHOTOGRAPHY AND FILMING 7 4.10. FIREARMS 7 4.11. BANNERS 7 4.12. RUBBISH 7 4.13. SALE OF GOODS AND SOLICITING OF ORDERS 8 4.14. BEHAVIOUR OF VISITORS 8 4.14.1. THE 1977 ORDER 8 4.14.2. EXPECTED BEHAVIOUR 8 4.15. ENFORCEMENT OF THE REGULATIONS AND ASSOCIATED PENALTIES 8 4.15.1. PENALTIES 9

5. BURIAL 9

5.1. EXCLUSIVE RIGHT OF BURIAL 9 5.1.1. THE PURCHASE OF EXCLUSIVE RIGHT OF BURIAL 10 5.1.2. TRANSFER OF GRANT OF EXCLUSIVE RIGHT OF BURIAL 10 5.2. PLAN OF THE CEMETERY 11 5.3. BURIALS IN THE MUSLIM SECTION (C HERRY LANE CEMETERY ) 11 5.4. THE BURIAL PROCESS 11 5.5. REGISTER OF BURIALS 12 5.6. BURIALS IN PRIVATE GRAVES 12 5.7. BURIALS IN PUBLIC GRAVES 13 5.8. DIGGING AND OPENING OF GRAVES 13 5.9. TIMES OF BURIALS 13 5.10. REGISTRAR ’S CERTIFICATE FOR DISPOSAL /CORONER ’S ORDER FOR BURIAL 13

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5.11. COFFINS AND SHROUDS , AND CONTAINERS FOR CREMATED REMAINS 14 5.12. ATTENDANCE OF MINISTERS OF RELIGION 14 5.13. DURATION OF SERVICE IN THE CHAPEL 14 5.14. INFECTIOUS DISEASE (PUBLIC HEALTH ACT 1984) 14 5.15. POSTPONEMENT OR CANCELLATION OF INTERMENT 14

6. MEMORIALS 14

6.1. MEMORIAL AT A FULL ‘TRADITIONAL ’ GRAVE 15 6.1.1. DIMENSIONS 16 6.1.2. PAVING , ROCKWORK AND CHIPPINGS 16 6.1.3. VASES 16 6.2. MEMORIAL AT A LAWN GRAVE 16 6.2.1. DIMENSIONS 16 6.2.2. VASES 17 6.2.3. CHIPPINGS , KERBINGS AND PAVING 17 6.3. MEMORIAL AT A GRAVE FOR CREMATED REMAINS 17 6.4. MEMORIAL THAT IS NOT ASSOCIATED WITH A GRAVE 17 6.5. MEMORIAL IN CHILDREN ’S SECTION 17 6.5.1. HILLINGDON & NORTHWOOD CEMETERIES 17 6.5.2. CHERRY LANE CEMETERY 17 6.6. MEMORIAL IN THE MUSLIM SECTION (C HERRY LANE CEMETERY ) 18 6.7. MEMORIAL MASONS 18 6.8. THE SAFETY AND INSPECTIONS OF MEMORIALS 18 6.9. REMOVAL OF UNAUTHORISED MEMORIALS 18

7. SCATTERING OF CREMATED REMAINS 19

7.1. APPLICATIONS FOR THE SCATTERING OF CREMATED REMAINS 19 7.2. LOCATION FOR SCATTERING OF CREMATED REMAINS 19 7.3. CERTIFICATE OF CREMATION 19

APPENDIX A – ACCEPTABLE FORMS OF IDENTIFICATION TO PROVE RESIDENCY 20

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1. Introduction We respect the rights and needs of the individual and have therefore prepared these Regulations with a balance that will enable us to manage the Cemeteries effectively and maintain the highest possible standards without placing unnecessary restrictions on individual choices.

The Regulations apply to those cemeteries that are owned or managed by Hillingdon Council (full addresses found in the appendices):

§ Cherry Lane Cemetery § Harlington Burial Ground § Harmondsworth Cemetery § Hillingdon and Uxbridge Cemetery § Northwood Cemetery § Victoria Lane Cemetery § West Drayton Cemetery § Woodland Burial Ground (at the rear of West Drayton Cemetery) We aim to provide the highest possible standards of care, choice and dignity to those who suffer bereavement and to create and maintain an environment where the bereaved can pay their respects and remember loved ones in the ways they feel most appropriate.

To assist with this, all visitors to our Cemeteries must follow these Regulations.

Please be aware that the Council reserve the right to change these Regulations from time to time and that compliance with any change is required. 2. Administration The Cemeteries Office is situated at:

Breakspear Crematorium,

Breakspear Road, Ruislip, Middlesex. HA4 7SJ

Telephone: (01895) 250650

Fax: (01895) 624209

e-mail: [email protected]

website: www.hillingdon.gov.uk/bereavement

The office is open 9.00 a.m. to 5.00 p.m. Monday to Friday. The office is closed on Saturdays, Sundays and Public Holidays.

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3. Definitions The following terms are used throughout the document:

§ “The 1977 Order” means the Local Authorities Cemeteries Order 1977, as amended by the Local Authority Cemeteries (Amended) 1986 Order. § “Bereavement Services Manager” means the person holding office by that designation under the Council and the person who shall be acting for him in his absence. § “The Borough” means the area in which The Council is the Local Authority. § “The Cemetery, Cemeteries or The Site” means the cemetery site currently owned or managed by the Council. § “The Council” means the Council of the London Borough of Hillingdon. § “Cremated remains Grave” means a miniature grave which can hold up to X# caskets of cremated remains in which exclusive right of burial has been purchased. § “Fees and charges table” means the list on which the costs for interment are listed, which is available from the Cemeteries Officer or the Council’s website. § “Full ‘traditional’ grave” means a grave laid out where the whole of the surface area of the grave may be used to create a memorial (in line with the restrictions herein). § “The Grant holder” means the owner of the Exclusive Right of Burial or Memorial. § “Lawn grave” means a grave laid out on the lawn principle where there is a defined area in front of the headstone that may be planted, while the rest of the grave must be turfed and level § “Memorial beam” means the concrete beam laid by the Council at the head of a grave which provides a stable base upon which a memorial can be placed. § “Memorial” means the inanimate object upon which inscription about the deceased is often found; its dimensions and materials are restricted for safety and aesthetical reasons. Examples include headstones, pillars, crosses and open books. § “Public Grave” means a grave in which the exclusive right of burial cannot be purchased. § “Purchased Grave/Private Grave/Grave With Exclusive Rights” means a grave in which the Exclusive Right of Burial has been purchased. § “Registrar” means the person appointed by the Council as the Registrar of the Cemetery or, in their absence, any person authorised by them. § “Resident” means a person who permanently resides in the London Borough of Hillingdon and can demonstrate this with one of the forms of acceptable identification listed in Appendix A. The only exception being if the deceased person was a resident of the Borough prior to death, who was transferred outside the Borough due to ill health to reside in a hospice, nursing home or with relatives, or, in the case of a stillborn child, at least one parent was living in the Borough at the time of death.

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4. General The Cemeteries are managed under the terms of The 1977 Order, which forms the basis of these regulations. Extracts of this and other relevant legislation can be found in the appendices.

4.1. Opening hours The opening hours for all the Cemeteries are Monday to Saturday:

Winter (1 st October– 31 st March) from 9am to 4pm

Summer (1 st April – 30 th September ) from 9am to 8pm

Sundays, Good Friday, Bank Holidays, Christmas Day from 10am to usual time.

The Council may vary the above times without notice.

4.2. Fees and charges The Council is granted the right 1 to levy fees and charges for costs in connection with burials, the grant of a right to place and maintain a tombstone or other memorial, and any grant of a right to put additional inscription to a tombstone or memorial. The fees are applicable to residents of the Borough, for all others the fees will be doubled. The only exception being in the case of a stillborn child, at least one parent was living in the Borough at the time of death.

A full breakdown of the Cemeteries’ Fees and Charges is available from the Cemeteries Office, during opening hours, and the Council’s website in the form of a table.

4.3. Gratuities No employee of the Council, or its contractors, is allowed to ask for or receive gratuities, tips or any other gifts.

4.4. Children For the purposes of safety, a child under 10 years of age is only allowed into the grounds of the Cemeteries when accompanied by and under the care of a responsible adult.

4.5. Animals Dogs and horses (other than guide dogs for the blind or deaf and horses used in or as part of a funeral cortege) are prohibited in the cemeteries.

4.6. Flowers and wreaths Flowers and wreaths place upon a grave on the day of the interment may remain for 14 days only, after which time the Council will remove them. Subsequently, all flowers and wreaths shall be restricted to the area of the earth border at the head of the grave. Where flowers are

1 The 1977 Order, Article 15 (1)

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wilted/decayed, or where artificial flowers are faded, ground staff will remove and dispose of them.

Annual bedding plants or bulbs are permitted within the earth border at the head of the grave. Trees, shrubs, Conifers, Roses and any plants found to be other than the above will be removed and disposed of without notice.

4.7. Vehicles Motor vehicles shall be driven in accordance with on-site signage and markings, keeping strictly to the roads and shall not be driven over any kerb, along any footpath, over grass, beds, shrubs, trees or over any grave, memorial or area designated for the scattering of cremated remains.

Vehicle engines must not be revved excessively and must not be left running or idling unnecessarily. Sound systems in vehicles must not be allowed to play loudly so as to disturb mourners, visitors or neighbouring properties.

Cycling is not permitted in any of the Cemeteries

4.8. Liability of the Council No liability whatsoever is accepted by the Council for any injury to any person or damage to property arising out of anything existing at the Cemetery or done by the Council, its employees, agents or contractors or by any independent contractor at or in connection with the Cemetery.

However the Council acknowledges that it cannot by this clause or otherwise, exclude liability for negligence occasioning personal injury to any person.

The Council shall not be responsible or accept any liability for orders or documents sent by post. Neither will responsibility be accepted for errors following telephone instructions.

4.9. Photography and filming Photographs, drawings, filming, etc of any grave or funeral procession will only be allowed with consent of the grave owner or Chief Mourner.

Furthermore, written permission from The Bereavement Services Manager must be obtained to undertake any filming, videoing or photography for commercial purposes. There may be a charge for use of the Cemetery for commercial purposes.

4.10. Firearms Firearms shall not be discharged within the Cemetery with the exception of ceremonial salute and with the prior written consent of The Bereavement Services Manager.

4.11. Banners Banners shall not be displayed within the Cemetery without the prior written consent of The Bereavement Services Manager.

4.12. Rubbish Dead flowers and other rubbish must be put in the bins provided for this purpose.

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4.13. Sale of Goods and Soliciting of orders The sale of goods, services, plants or articles, the soliciting of orders for the erection or repair of monuments or memorials or for the work connected with the graves is strictly prohibited within the cemetery.

Memorial Masons and other people shall not distribute business cards, or ask of, or attempt to obtain from an employee, information concerning grave owners.

4.14. Behaviour of visitors 4.14.1. The 1977 Order 2 No Person shall:

1. Wilfully create any disturbance in a cemetery;

2. Commit any nuisance in a cemetery;

3. Wilfully interfere with any burial taking place in a cemetery;

4. Wilfully interfere with any grave or vault, any tombstone or other memorial or any flowers or plants on any such matter; or

5. Play any game or sport in a cemetery

No unauthorised person shall enter or remain in a cemetery at any time when it is closed to the public.

4.14.2. Expected behaviour Visitors to the Cemeteries must conduct themselves in a quiet, orderly manner. No person shall deliberately without good cause climb upon or over any full length or mounded grave, memorial, boundary fence or gate. No person shall cause or permit the playing of amplified music or consume alcoholic beverages at any time in the Cemeteries’ grounds. It is prohibited for people to gather in any cemetery other than for purposes of remembrance or a funeral service.

While the Council realises the stressful circumstances of a bereavement, it cannot accept and shall not tolerate any violence or aggression, be it verbal, physical or psychological, towards its staff, contractors or other visitors to the Cemeteries. Any situation where someone is abused, threatened or assaulted in a cemetery will be treated seriously and, where appropriate, enforcement and penalties shall ensue.

4.15. Enforcement of the Regulations and associated penalties To help ensure our standards are met and the dignity of the mourners and other visitors are respected, it is necessary to have clearly defined Regulations, and how they will be enforced and the associated penalties.

2 Article 18 (1),(2)

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4.15.1. Penalties Behaviours listed in Regulation 4.14.1. shall, as a last resort, be dealt with by a prosecution which attracts a maximum fine of £100 and in the case of a continuing offence to a fine not exceeding £10 per day during which the offence continues.

Anti-social behaviour shall be dealt with under the powers given to the Council and the Police under anti-social behaviour legislation or any other relevant legislation. 5. Burial There are 4 types of grave available at Hillingdon’s Cemeteries, for which a Grant of Exclusive Right of Burial can be purchased for the first 3. All grave styles have restrictions in their size and type and size of memorial that can be included with them (detailed in the subsequent sections of the Regulations). Some grave styles are only available in certain Cemeteries or are only available in certain parts of a Cemetery.

1. Full ‘traditional’ grave

2. Lawn grave

3. Cremated remains grave (Columbaria)

4. Public grave

All burials are subject to the statutory provisions in accordance with Schedule 2, Part 1 or the 1977 Order.

No body shall be buried, or cremated remains interred or scattered, in or over any grave or vault in which the Exclusive Right of Burial exists unless the owner has given approval in writing (or the deceased is the owner).

Any open grave is a potential danger, even those where shoring has been installed. No one may therefore enter an open grave, should they do so it is entirely at their own risk.

Lowering and covering boards can be supplied at cost if required. Alternatively, they may be supplied by the person arranging the funeral.

5.1. Exclusive Right of Burial

The Council may grant upon such terms and conditions as it considers appropriate to any individual an Exclusive Right of Burial. It does not constitute any ownership of land. It is purely the right to have a burial in a selected grave. Enquiries relating to such rights can be made to the Cemeteries Office. At the time of issuing of Grant of Exclusive Right of Burial (and Transfer of the Grant of Exclusive Right of Burial), the Grant Owner shall be provided with a copy of the Regulations for which they shall sign to acknowledge receipt and compliance. The Council will take reasonable step to ensure Grave Owners are made aware of any changes to the Regulations.

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Full ‘traditional’ or Lawn graves can be used for 1, 2 or 3 interments (this will need to be confirmed at the time of the first interment). Cremated remains graves (Columbaria) can be used for up to 2 interments.

5.1.1. The purchase of Exclusive Right of Burial

An Exclusive Right of Burial allows the purchaser of such a right to burial in an agreed grave space. The allocation of gravespaces is under the control of the Bereavement Services Manager and granted serially.

Although statute prescribes that an exclusive right of burial may be granted for a maximum period of 100 years, the Council has decided that the maximum period is 30 years, which commences from the date of grant. It can be extended in 10 year blocks for up to 100 years from the date of grant. This reflects the length of Exclusive Right to a memorial (see Regulation 6.).

A maximum of 2 Exclusive Rights of Burial may be pre-purchased by each household except following exceptional circumstances and approved in writing by the Bereavement Services Manager. On the purchase of the Exclusive Right of Burial, a Deed of Grant shall be issued to the person by whom or on whose behalf the said exclusive Right of Burial is purchased.

The purchase of the Exclusive Right of Burial in any grave includes the Grant of the Right to erect and maintain a Memorial on that grave space, subject to the type of memorial allowable in the section of the Cemetery in which Exclusive Right of Burial is given and by the regulations concerning memorials set out under Regulation 7. The Bereavement Services Manager will try to meet the wishes of the relatives in the purchase of a gravespace at a particular cemetery but it may be necessary for burials to take place elsewhere in other borough cemeteries depending on the circumstances at the time.

A grave will not be registered in the name of a funeral director or firm of funeral directors, or a partner, director or employee of such firms or Memorial Masons, unless evidence satisfactory to the Bereavement Services Manager is given that the grave is required of use by the applicant as a private individual and not for purposes of business.

The holder of the Exclusive Right of Burial may surrender his/her right at any time in respect of the grave or grave space where the said right has not been exercised (i.e. where no burial has taken place and/or no memorial has been placed on the grave). In all cases the fee repayable will be that of the original fee paid to purchase the Exclusive Right of Burial, less the administrative charge listed in the Fees and Charges table. The price for the Exclusive Right of Burial varies depending on the style of grave and the number of interments, and is detailed in the Charges and Fees table.

5.1.2. Transfer of Grant of Exclusive Right of Burial An Exclusive Right of Burial to a grave space may be transferred by deed or bequeathed by will.

In cases where the Grant Holder is still alive the transfer may be done by completion of a Deed of Assignment. A Deed of Assignment is available from the Cemeteries Office. This form must

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be completed and signed by the grant holder and the person taking ownership of the said right and submitted to the Administration Office together with the original Deed of Grant. A new Deed of Grant will be then issued to the new holder of the said right. A fee, as set out in the Charges and Fees Table, in connection with this service is payable to The Council.

Where the grant holder is deceased, and provided that the Exclusive Right of Burial has not been specifically left to another person, then upon production of a will or letters of administration the Exclusive Right of Burial may be legally transferred to the person in possession of the Letters of Administration or the beneficiary of the residue of the estate under the terms of the grant holder’s will.

In cases where the grant holder is deceased and there is no will or Letters of Administration available then the Exclusive Right of Burial may not be transferred to another person. However, a further burial in the grave space may be permissible (if there is available depth) subject to the applicant for the burial completing a Statutory Declaration and ensuring that any other person equally entitled counter signs the Statutory Declaration. A statutory declaration must be witnessed by a Solicitor or a Commissioner for Oaths.

An assignee of an Exclusive Right of Burial is not entitled to hold or exercise the right in any vault of earthen gravespace unless the Deed of Assignment has been produced and duly registered by the Council. All transfers are subject to the payment of the prescribed fee.

5.2. Plan of the Cemetery

In accordance with current legislation, the Council keeps and maintains plans showing all used grave spaces and those graves or grave spaces to which special rights appertain (i.e. an Exclusive Right of Burial). Such plans are kept at the Cemeteries Office and are available for inspection, free of charge on any Working Day.

5.3. Burials in the Muslim section (Cherry Lane Cemetery) Only Muslims may be buried in this section.

The graves are oriented so that they are perpendicular to Mecca.

5.4. The burial process

To commence the burial process, a ‘Notice of Interment’ form must be completed. All ‘Notices of Interment’ must be in writing on the printed forms supplied by the Council, obtainable from the Cemetery Office or Council website. They must be delivered between the hours of 9am and 4pm from Monday to Friday inclusive.

‘Notices of Interment’ shall be delivered to the Bereavement Services Manager at least two clear working days before the interment (excluding Saturday, Sunday, Christmas Day, Good Friday or other Public or Bank Holidays, or other holidays granted by the Council). This period is reduced to 24 hours when infectious diseases or other urgent cases are involved. Failure to do so may result in the funeral being delayed.

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Funeral Directors must give reasonable notice to, and cooperate with for planning purposes, the Bereavement Services Manager whenever they have to conduct a funeral where the number of mourners is likely to exceed FIFTY (50).

To avoid inconvenience and delay at the graveside the NET outside dimensions of the coffin or casket shall be supplied in writing to the Council when the ‘Notice of Interment’ is given.

Applications sent through the post are transmitted at the sender’s risk and the Council does not accept any responsibility should any be delayed or lost in transmission.

Applications or instructions given by telephone will be received at the sole risk of the person making or giving them.

The prescribed fee and registration document must be handed to the Cemeteries Office at least 6 hours prior to interment to avoid delays to the funeral and late fees being applied.

5.5. Register of burials

All burials carried out in the Cemeteries are recorded in a Register of Burial (one for each Cemetery). The Registers of Burials are kept in the Cemeteries Office and are available for inspection by appointment on any Working Day at the Administration Office by any person free of charge.

If requested, the Cemeteries Office can make a search of the Register of Burials and a certified copy of an entry or entries relating to any grave space or interment in the Register of Burials will be provided. A fee is payable for this service in accordance with the Charges and Fees table.

Good reason, such as a family connection, must be evidenced before a search will be carried out or access to the Register granted.

5.6. Burials in private graves

A grave which is subject to an Exclusive Right of Burial may not be opened and no one may be buried there without the Grant owner’s permission (other than where the provisions of Regulation 5.1.2 apply).

Before a grave space which is subject to an Exclusive Right of Burial can be opened, the written consent of the Grant owner, or his or her legal representative, must be submitted to The Bereavement Services Manager, via the Cemeteries Office, together with the original Deed of Grant. If the original Deed of Grant has been mislaid /lost a sworn Statutory Declaration relating to the loss of the original Deed of Grant will be required. Ideally this should be presented at the time of submitting the ‘Notice of Interment’.

In cases where the person intended to be interred was the Grant owner immediately before his death, the Council if requested by the person giving notice of the interment, has the power to order that the grave space be re-opened for the interment of the deceased owner without obtaining the consent of his or her executor or other representative.

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In the case of a Grant of Exclusive Right of Burial not surrendered to the Bereavement Services Manager with the ‘Notice of Interment’, the necessary ‘Form of Indemnity’ must be completed and signed.

5.7. Burials in public graves

A pubic grave can only be used by a Resident of the Borough. If a grave has not been purchased, an interment must be in a public grave to which no Exclusive Right of Burial exists.

Memorials must not be erected on a public grave unless it is to the memory of all those buried in the grave. Prior written consent from the Bereavement Services Manager will also be necessary.

5.8. Digging and opening of graves

Without exception, all graves must be dug by people employed or contracted by the Council.

All work in connection with the construction, re-opening and/or reinstatement of vault or walled graves must be undertaken by a Memorial Mason or other qualified person and at the expense of the registered owner of the Exclusive Right of Burial.

The removal of a memorial to facilitate an interment, shall be the sole responsibility of the funeral director or responsible person(s). The memorial must be restored to its original position.

5.9. Times of burials

The Cemetery will be open for interments as follows:

MONDAY to THURSDAY 9am to 3pm

FRIDAY 9am to 2.30pm

Interments may take place on a Saturday, so long as the ‘Notice of Interment’ is received by the Cemeteries Office the Friday before the interment and by the time stipulated on the ‘Notice of Interment’ form (available from the Cemeteries Office or Council website).

Burials cannot take place on Sundays, Good Friday, Christmas Day or other public holidays or other general Council approved holidays. It is the responsibility of the funeral director / organiser to ensure that the funeral cortege arrives at the cemetery at the appointed time. Failure to do so may result in the funeral being held at the cemetery gates or in cases of late arrival fees being incurred or even the cancellation of the funeral.

5.10. Registrar’s certificate for disposal/coroner’s order for burial A Registrars Certificate for Disposal or Coroners Order for Burial, or a declaration in the form prescribed by the Births and Deaths Registration Act 1926 and any amendment or re- enactment thereof must be produced at the Cemetery before the interment can take place.

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A Certificate of Cremation must be produced before the burial of cremated remains can take place.

5.11. Coffins and shrouds, and containers for cremated remains

All bodies brought to the Cemeteries for burial shall be contained in a suitable coffin or shroud. For the interment of cremated remains in a grave or cremation plot, the ashes shall be contained within a biodegradable sealed container. The coffin or container must be clearly marked for identification purposes and include the full name and age of the deceased.

The funeral director or other person(s) responsible for the burial shall provide sufficient bearers to lower the coffin/shroud covered body into the grave.

Bodies to be buried without a coffin must be wrapped in a shroud or suitable cloth so that the body is hidden from public view during the burial service.

Where a coffin is not used, the body must be taken to the grave in a hearse or funeral director’s removal shell. The body of a person who died from a Notifiable disease must be enclosed in a sealed coffin before burial.

5.12. Attendance of ministers of religion The Council will not make arrangements for any ministers of religion to officiate at a funeral. Persons shall make their own arrangements for attendance and for their expenses incurred.

5.13. Duration of service in the chapel A service or ceremony in the chapel shall not last longer than 30 minutes without the prior permission of the Bereavement Services Manager.

5.14. Infectious disease (Public Health Act 1984) The body of a person who has died from a Notifiable Disease under the Public Health (Control of Disease) Act 1984 and Health Protection (Notification) Regulations 2010 must not be taken into a chapel but may remain outside during the first part of the service for the burial of the dead. Otherwise the body must be taken directly to the grave.

5.15. Postponement or cancellation of interment

The prescribed fee will still be charged when an interment has been booked but is subsequently postponed or cancelled. Additional expenses in connection with the preparation of a private grave will also be payable. 6. Memorials Memorials come in many shapes, sizes, designs and materials. The Regulations dictate what is acceptable at The Cemeteries in terms of maximum dimensions, materials and safety standards.

Memorial headstones may be erected on graves only if the Exclusive Right of Burial for the grave has been granted. Each Exclusive Right of Burial is provided with an Exclusive Right to

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a Memorial of 30 years in length, which can be extended in 10 year blocks for up to 100 years from the date of grant.

If a grant of exclusive right of burial in a grave expires and is not extended, the Council may serve notice on the grave owner to remove any memorial from that grave and will display appropriate notices of intent in a local newspaper and in the cemetery grounds. If after three months the memorial has not been removed, the Council may then remove and deal with it as it sees fit.

No works are permitted to be carried out on any grave space except by a Memorial Mason who is accredited to the British Registration of Approved Monumental Masons Scheme (BRAMM), or National Association of Memorial Masons (NAMM), or an equivalent scheme which will satisfy the Council’s requirements. All memorials installed in any cemeteries shall from the date of installation confirm to the standards set by NAMM, BRAMM or equivalent scheme.

All monuments, memorials or vases to be put on a gravespace are subject to the approval of the Bereavement Services Manager. A drawing showing the form and dimensions of the proposed memorial and its foundations with particulars of the materials to be used, and a copy of every inscription to be engraved on it must be submitted to the Cemeteries Office for approval before erection. Details must be shown using Council Form CEM5, which is obtainable from the Cemeteries Office.

Memorials shall not be altered or interfered with once erected unless permitted using Form CEM5 and paying the prescribed fee.

Monuments and memorials must be prepared ready for fixing before being taken into the cemetery. Memorial Masons must provide their own tools and equipment for the work.

Work on memorials shall not be carried out at the cemetery until a permit has been issued and all fees paid to the Bereavement Services Manager. Memorial masons must remove surplus materials and debris from the cemetery and the gravespace and leave the surrounding area clean and tidy.

All works shall be carried out at the sole risk and liability of the person employed or engaged in the work of whatever nature. Any damage caused shall be made good to the satisfaction of the Bereavement Services Manager and/or the owner of the damaged property.

No works, other than by the Council’s employees or persons contracted to carry out works on the Council’s behalf, shall carry out works within cemeteries on Saturdays, Sundays, Christmas Day, Good Friday, or other Public Holidays, or on other holidays granted by the Council.

All works persons employed in the cemetery on whatever manner of work must conform to the hours worked by the cemetery staff.

6.1. Memorial at a full ‘traditional’ grave All applications for a Memorial at a full ‘traditional’ grave must be signed by the registered owner of the Exclusive Right of Burial.

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6.1.1. Dimensions Full ‘traditional’ Graves are laid out to allow for full kerbs, edgings and landings to be placed upon the graves. Planting of suitable bedding plants within the kerbs is permitted. The area enclosed on a single gravespace, including kerbs and edgings, shall not be more than 1950mm by 750mm (6’6” by 2’6”) and on a double gravespace by more than 1950mm by 1950mm (6’6” by 6’6”). The height of the headstone or equivalent shall not be more than 1524mm from the level of the memorial beam.

The full grave space within the kerbs or edgings may be planted with suitable bedding plants or bulbs, or chippings may be placed within the edgings on top of a landing slab.

All memorialisation must be contained within these dimensions.

The area within the kerb edgings is the responsibility of the grave owner who may place any suitable and approved material within the edgings or plant the area with suitable bedding plants.

New full ‘traditional’ graves are available at all Cemeteries but restricted to specific ‘traditional’ areas.

6.1.2. Paving, rockwork and chippings Paving, rockwork or chippings are not allowed unless enclosed by kerbing.

6.1.3. Vases All vases, ornaments, figures or additions to memorials must be fixed so that no portion projects beyond the inside edge of the kerbing.

6.2. Memorial at a lawn grave All applications for memorial at a Lawn Grave must be signed by the registered owner of the Exclusive Right of Burial. The lawn graves are designed on the war grave principle (to have only a memorial of limited size at the head of the grave with the rest of the grave laid to lawn). The graves are in rows back to back.

Within the lawned areas only, the Council provides rows of concrete plinths to allow for the immediate installation of a headstone.

6.2.1. Dimensions Memorial headstones in the lawn sections shall not exceed 750mm (2’6”) in width and 300mm (12”) in depth on a single gravespace.

On a double gravespace the maximum dimensions are or 1,800mm (6 feet) in width or 300mm (12”) in depth. The maximum height of the headstone or equivalent shall not be more than 1054mm from the level of the plinth.

Planting is permissible on lawn sections to a maximum of 18 inches from the plinth.

The base shall be secured centrally to the memorial beam, where provided, or to a suitable foundation stone provided by the monumental mason where no plinth is present.

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6.2.2. Vases Vases, ornaments, figures or additions to memorials are not permitted, but one or more flower containers may be set into the landing.

6.2.3. Chippings, Kerbings and Paving Chipping, kerbing, broken or crazy paving are not permitted.

6.3. Memorial at a Grave for Cremated Remains The area allocated to a cremation section grave is 2 feet (600mm) x 2 feet (600mm). This area may be covered in full or in part by a memorial or it may be suitably planted.

Memorials placed on a cremation plot shall not exceed 450mm (1’6”) in height, 600mm (2 feet) in width, 600mm (2 feet) in depth, nor be less than 50mm (2 inches) in thickness.

6.4. Memorial that is not associated with a grave To request a memorial that is not associated with a grave (e.g. a bench or plaque on an existing bench) a CEM 5 application form must be completed and submitted to the cemeteries office, along with the appropriate fee.

Any memorial that is unauthorised shall be removed in line with Regulation 6.9.

6.5. Memorial in children’s section 6.5.1. Hillingdon & Northwood Cemeteries The area enclosed by a memorial shall not exceed 450mm (1’6”) in width, 450mm (1’6”) in length, nor shall it exceed 380mm (15”) in height or be less than 50mm (2”) in thickness.

6.5.2. Cherry Lane Cemetery The area enclosed by a memorial shall not exceed 900mm (3 feet) in length, 450mm (1’6”) in width nor shall it exceed 600mm (2 feet) in height.

Only one memorial stone will be allowed on any one gravespace.

No part of the soil of any gravespace shall be raised above the level of the surrounding soil, and no part of any gravespace shall be enclosed with fencing of any kind.

The Council will maintain the whole of the grassed area between each row and nothing may be placed or planted on that grassed area.

The correct section, plot and number of the gravespace must be clearly cut in some prominent position on all monuments and memorials in characters of not less than one inch.

Baths, Caens, soft artificial stones or materials of any description, will not be allowed in the construction of any memorial erected in the cemetery.

Where glass or natural stone chippings are used, they must be laid upon a slate or concrete bed.

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The Bereavement Services Manager has the power to rectify or remove anything, which does not comply with these regulations.

6.6. Memorial in the Muslim section (Cherry Lane Cemetery) The memorials in the Muslim section may be either full ‘traditional’ or lawn types.

6.7. Memorial masons Memorial masons must be registered with the British Association of Memorial Masons (BRAMM) or the National Association of Memorial Masons (NAMM) and hold an up-to-date Fixers Licence to be allowed in any of the Cemeteries.

Memorials found to have been constructed by a Memorial Mason without the required registration and licence will be removed.

6.8. The safety, inspections and maintenance of memorials All new memorials, and any repairs or additional inscriptions to memorials, must comply with BS8415.

The Council will undertake periodic inspection of safety of each memorials erected within any of the cemeteries, as recommended by the Health and Safety Executive 3. Grant Owners shall be made aware of the outcome of the inspection on their memorial(s). The cost of the inspection is included in the Exclusive Right of a Burial or Memorial. However, grant owners are responsible for the upkeep and maintenance of memorials, including remedial works identified by an inspector.

Where a memorial is deemed unsafe, all reasonable steps will be taken to contact the Grant Owner so that they may arrange appropriate remedial works. If the risk is deemed unacceptably high, the Council reserves the right to take immediate action, to protect the safety of the users of the Cemetery; this may include being sunk into the ground vertically, laid flat, cordoned off, stake and banded, covered with a yellow bag to warn visitors of a danger. The Council shall recover all of the costs arising from these works. Where the grave owner determines to carry out the repairs required, the grave owner and/or his representative shall ensure that the work is carried out by an approved BRAMM or NAMM mason.

6.9. Removal of memorials The Council retains the right to remove, without notice, memorials that do not meet The Regulations, including benches, plants, flowers, fences or other commemorative objects. Prior to removal, and where relevant, the Council will take reasonable steps to contact the Grant Holder to provide notice of intended removal. With the exception of biodegradable objectives, all removed memorials will be stored at the Cemeteries Office for a period of 1 calendar month before disposal. Where an association is clear, all reasonable attempts to make contact with the Grant Owner will be made before the items are disposed of. The Council cannot be liable for any memorials that are damaged while being removed or stored. The only exception being memorials that do not pass the safety inspection, whereby a separate procedure is followed.

3 Special Report Memorial safety in local authority cemeteries, 2006, Local Government Ombudsmen, page 7.

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7. Scattering of cremated remains

7.1. Applications for the scattering of cremated remains Applications for the scattering of cremated remains should be made in writing to the Bereavement Services Manager at least 48 hours before the scattering is wanted.

A fee is chargeable for the scattering of remains at the Cemeteries.

7.2. Location for scattering of cremated remains Ashes may only be scattered in the designated areas, details of which are available from the Cemeteries Office.

7.3. Certificate of Cremation A Certificate of Cremation must be presented to the Cemeteries Office before the scattering of cremated remains can take place.

The above rules and regulations are not exhaustive and where matters arise that are not specifically covered the Bereavement Services Manager is authorised to make such decisions as he/she considers to be reasonable and necessary for the day to day management and control of the Cemetery.

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Appendix A – Acceptable forms of identification to prove residency

Originals only, photocopies will not be accepted.

One of:

§ Listed on the Council tax database (payment made in the last 3 months) – Cemeteries Office can search – or Council tax bill (within the last 3 months).

§ Listed on the electoral register (updated in the last 3 months) – Cemeteries Office can search – or Electoral register documentation (within the last 3 months).

Plus one of:

§ Gas or electricity bill (within the last 3 months).

§ Bank statement (within the last 3 months).

§ Landline telephone bill (not a mobile phone, home broadband or 3G broadband bill; within the last 3 months).

§ Driving license (but only if updated in the last 3 months).

If any uncertainty remains, the Cemeteries Office reserves the right to ask for two of the above.

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Page 62

Impact Assessment

STEP A) Description of what is to be assessed and its relevance to equality

What is being assessed? Please tick ü

Review of a service Staff restructure Decommissioning a service

Changing a policy ü Tendering for a new service A strategy or plan

Revision of the Council’s Cemeteries Regulations, which were last revised in 1994 (hereinafter referred to as the 1994 Regulations), to bring them in line with current legislation, best practice and to meet, where reasonably practicable to do so, the requirements of our residents.

Who is accountable? E.g. Head of Service or Corporate Director Steve Palmer, Deputy Director ICT, Highways & Business Services

Date assessment completed and approved by accountable person Completed: March 2013 Approved:

Names and job titles of people carrying out the assessment Mike Price, Civil Protection Manager John Purcell, Bereavement Services Manager

A.1) What are the main aims and intended benefits of what you are assessing?

The Cemetery Regulations are the rules by which the Cemetery users must abide, or risk a range of enforcement options. The Regulations cover: § expected behaviour of users (as legislated in the Local Authority Cemetery Order 1977); § rules around the purchase of the right of burial and the right to erect a memorial; and

Page 63 § details about applying for an interment. Linked to the Regulations, although a separate document, are the Cemetery fees and charges list, although this is not subject to review as part of this process.

For clarity, the Cemetery Regulations do not cover the Crematorium processes and the Breakspear Crematorium site, which are governed by their own separate Regulations.

The aim of the review is to ensure the Regulations: § Are clear and concise; § Conform with the relevant legislation; § Protect users of the cemeteries from antisocial and unacceptable behaviour; and § Provide a range of interment options to meet the needs, where reasonably practicable, of our residents.

As much as anything, the proposed changes to the 1994 Regulations comprise reformatting and reordering of the existing content, to make the document more user- friendly and easy to understand. Where necessary, content will be added to provide clarity to some of the more ambiguous areas. Subject to the outcome of this equality impact assessment, further changes to the Regulations may be necessary.

Finally, the review of the 1994 Regulations has been endorsed and overseen by the Residents & Environmental Services Policy Overview Committee (RESPOC), who, as part of their scrutiny process, have invited a number of residents, cemetery managers from other boroughs and local funeral directors to comment on Hillingdon’s cemeteries and their regulations.

A.2) Who are the service users or staff affected by what you are assessing? What is their equality profile?

The cemeteries service is primarily for use by Council residents. However, by payment of an additional fee, non-residents may also use the service.

The focus of this EIA is the impact to the residents of the London Borough of Hillingdon.

For statistical information, see overleaf (page 3)

Page 64 The following is extracted from the Census 2011: www.ons.gov.uk

All categories: Sex Males Females Number Number Number 273,936 135,811 138,125 % 49.57763857 50.42236143

Religion Christia No Muslim Hindu Sikh Religion Buddhis Jewish Jain Pagan Ravidass Spiritualis n religion: (Islam) not t ia t Total stated Number % % % % % % % % % % % %

Page 65 273,936 49.2 17.0 10.6 8.0 6.7 6.4 0.9 0.6 0.2 0.1 0.1 0.1

Data from the Hillingdon Cemetery Office (April 2010 – Dec 2012): Note – the separation of this data into Muslim and other is in part due to the way burial information is recorded and also as a result of the specific need of the Muslim faith to be buried separately to other faiths and denominations.

Saturday Muslim Burials Saturday Burials (other faiths)

7/8/10 26/6/10 26/3/11 4/11/10 18/3/11 26/3/11 9/4/11 4/6/11 2/7/11 15/9/11 1/10/11

Page 66 26/11/11 26/6/12 3 10

Total number of burials (all faiths) over the same period = 1007

Total number (& percentage) of Muslim burials over the same period = 106 (or ~10.5%)

The average number of burials per month (Muslim section)

Adults Children 2010/11 2.3 1.9 2011/12 2.1 0.9 2012/13 1.9 0.2

Other sources of information used to gain an understanding of the cultural requirements for burials and cemeteries, include: § A document titled “The Needs of Faith Communities in Major Emergencies: Some Guidelines”, available at http://webarchive.nationalarchives.gov.uk/+/http://www.cabinetoffice.gov.uk/media/132745/faith_communities.pdf § http://en.wikipedia.org/wiki/Antyesti § http://factsanddetails.com/world.php?itemid=1343&catid=55&subcatid=354 § http://en.wikipedia.org/wiki/Christian_burial § http://en.wikipedia.org/wiki/Funeral#Sikh_funerals § http://en.wikipedia.org/wiki/Islamic_funeral § http://www.funeralwise.com/customs/sikh § http://www.funeralwise.com/customs/islam § http://www.funeralwise.com/customs/hindu § http://www.funeralwise.com/customs/christian_overview § http://www.bmj.com/content/309/6953/521

Page 67

A.3) Who are the stakeholders in this assessment and what is their interest in it?

Stakeholders Interest

Residents/members of the public All residents have the potential to have (predominantly Hillingdon Residents, but an interest in the services provided by also any other cemetery service user or and at Hillingdon’s cemeteries. visitor) Bereavement is a very emotive subject and, as such, stress placed on the bereaved must not be exacerbated by our regulations, wherever reasonable to avoid.

Councillors Since July 2012, the Residents and Environmental Services Policy Overview Committee (RESPOC) have been undertaking a review of the Cemeteries provision in Hillingdon. The report from this review, which includes a recommendation to update the 1994 Regulations, is then taken to Cabinet for their approval, along with the new 2013 Regulations and this EIA.

Ward Councillors also have an interest as many have a council owned/managed cemetery within their Ward, or they may be approached by their residents about a Council cemetery in a neighbouring Ward.

The Corporate Director Residents To ensure that services are provided in a Services and the Deputy Director fair manner and meet the needs of our Highways, ICT and Business Services residents

Bereavement Services and Green Staff will implement, and in certain Spaces Staff circumstances enforce, the 2013 Regulations and need to be confident that in doing so they are not acting in a discriminatory way.

Page 68 A.4) Which protected characteristics or community issues are relevant to the assessment? ü in the box.

Age Religion or belief ü

Disability Sex

Gender reassignment Sexual Orientation

Marriage or civil partnership Community Cohesion ü

Pregnancy or maternity Community Safety ü

Race/Ethnicity Other – please state

Page 69 STEP B) Consideration of information; data, research, consultation, engagement

B.1) Consideration of information and data - what have you got and what is it telling you? Census 2011 data It is first important to note that Sikh and Hindu, with 8.0% and 6.7% respectively, chose to cremate rather than bury their dead, so their needs for the cemetery are limited only to that of the burial of cremated remains (the majority of which takes place at Breakspear Crematorium, which is governed by separate regulations).

The Census 2011 data shows the dominant religion to be Christian, at 49.2%. The Christian religion has no specific burial requirements in terms of length of time between death and burial or the need to be in a separate section to other religions. The Regulations allow for a ‘minister of religion’ to be present, supporting the need for Christians (and all other faiths) to have a religious leader present/leading the funeral.

Furthermore, while the 1994 Regulations do not make reference to consecrated land, it is the current practice to have designated sections of the cemetery consecrated and therefore burials in these areas are restricted to those of the Christian faith only. While this is not necessarily discriminatory, is does cause unnecessary segregation and can present issues to effective land use management. Segregation does not appear to be a requirement of the Christian faith.

The second highest population percentage is those of ‘no stated religion’, at 17.0%. Although it is not possible to confirm the requirements this group of the population, the bereavement service offered by Hillingdon council has sufficient flexibility to be able to accommodate most requests, given sufficient notice and approval from the Bereavement Services Manager.

The third highest percentage is the Muslim faith, at 10.6%. One of the requirements of this faith is to be buried in an area separate to those of other faiths, provided currently by the Muslim section at Cherry Lane Cemetery.

A further requirement for those of the Muslim faith is to be buried at the earliest opportunity following death, preferably within 24-48 hours. As a result of the various statutory stages between death and burial (certification and various registrations), 24 hours is unlikely to be achieved in the UK. However, the current setup in Hillingdon’s cemeteries provides potential delays, some which may be reasonable to remove or, at least, reduce: § Notices of Interment must be received 2 clear working days before the day of burial (although this can be reduced in urgent cases). § For burials on a Saturday, due to restrictions by the Grounds Maintenance Contractor it is a requirement to submit the Notice of Interment into the Cemeteries Office by 10:30 on the morning of the Friday preceding the burial. § The Cemeteries Office is closed on Good Friday and Bank and other Public Holidays

While the population percentage of other religions are statistically insignificant and,

Page 70 therefore, it would be disproportionate to make bespoke services for these religions, all requests will be considered on a case-by-case basis by the Cemeteries Manager e.g. for a Jewish burial on a Sunday.

Hillingdon Cemeteries statistics Since April 2010, 10.5% of burials have been those of the Muslim faith. This percentage closely matches the Census 2011 data. The monthly average for Muslim burials ranges between 1.9 -2.3 (adults) and 0.2-1.9 (Children), all of which take place in the Muslim Section at Cherry Lane Cemetery. Of these burials, only 3 have taken place on a Saturday.

Based on these current figures, it is reasonable to suggest that even if all Muslim deaths were to occur at the end of the working week (e.g. Friday), at most only 1 Saturday burial per week would be required.

With regards to other Saturday burials, it is clear from speaking with Cemetery Office staff that the Saturday requests are normally based on a logistical requirement, rather than a preference to hold a funeral at the weekend.

RESPOC witnesses sessions Through the RESPOC meetings, a number of views were gathered from a selection of residents/cemetery users, local funeral directors and other local authority bereavement service and green spaces managers. Of importance to this EIA are the following: § The funeral directors appeared uninterested in expanding their Saturday service and suggested increased and disproportionate costs (note this did not include funeral directors for the Muslim faith) § Concerns raised by residents that some communities/individuals were not following the 1994 regulations. This suggests the processes to monitor compliance and subsequent enforcement is weak and that some communities might feel they are being discriminated against.

Muslim Section burials (Regulation 36. of the 1994 Regulations) The 1994 Regulations are generic in their content, with the exception of the reference to ‘Muslim section 1 burials’ The justification for the separation within the 1994 Regulations is unknown, however, following research, it is reasonable to suggest that the separate section of the cemetery was created to meet some of the specific cultural needs of Muslim people, such as the need to be buried in an area separate to those of other religions.

There are some elements of the Muslim section’s regulations which could be deemed discriminatory against those of other religions, such as only allowing those of the Muslim faith to be buried on shrouds and the Muslim section being the only cemetery at which full traditional style memorials are permitted (with exception of very limited space at Harmondsworth cemetery). For the former, there is no clear reason for this distinction, whereas the latter appears to be a land-use strategy.

1 By ‘section’ this means a section of the cemetery rather than a section of the community

Page 71 Consultation

B.2) Did you carry out any consultation or engagement as part of this assessment?

Please tick ü NO YES ü

If no, explain why: Originally, a wider consultation was planned to enquire about whether the increased fees for Saturday burials were the reason why people chose to wait until Monday for a burial. However, in January 2013, the grounds maintenance service came ‘in- house’ which has presented a series of viable options that would allow the removal of the additional charge for Saturday burials for residents (to be rolled out from April 2013).

If yes, what did you do or are planning to do? What were the outcomes? Consultation via the RESPOC witness sessions allowed conversations to take place with: § Residents/cemetery users (West Drayton and Cherry Lane Cemetery) § The Council’s Green Spaces Service Manager (responsible for grounds maintenance at all Cemeteries) § Local funeral directors § Police - Safer Neighbourhoods Team § Other councils’ bereavement services managers

A number of comments were made that had a direct bearing on the 1994 Regulations and have been captured in Step B above.

B.3) Provide any other information to consider as part of the assessment

Legal context Under the Equality Act 2010, the Council must not discriminate against people with a protected characteristics in the services that it provides. The Council also has a public duty to pay due regard to the need to eliminate discrimination, advance equality of opportunity and foster good relations (Equality Act 2010)

Furthermore, the Council is bound by the Local Authorities’ Cemeteries Order 1977, and the Local Authorities’ Cemeteries Order (Amended) 1986, in which is it granted a number of rights as the Burial Authority for the London Borough of Hillingdon area. This includes the right to manage the burial sites as deemed appropriate and to enforce the rules and regulations of said burial grounds. The Borough Solicitor has been consulted on the new Cemetery Regulations throughout the process.

Financial context The changes to the 1994 regulations are not expected to change the financial status of the Cemetery (and Crematorium) budget. With the exception of the potential to reduce/remove the addition fee levied for a burial on a Saturday, the updated regulations will not affect the charges for using the Council’s bereavement services. These charges are reviewed and approved by The Leader of the Council on an

Page 72 annual basis as part of a separate process.

BID context Not applicable

National policy context Not applicable C) Assessment

What did you find in B1? Who is affected? Is there, or likely to be, an impact on certain groups?

C.1) Describe any NEGATIVE impacts (actual or potential):

Equality Group Impact on this group and actions you need to take

Muslim people Delays in interment caused by the ‘2 clear working days’ required to process the notice of interment require consideration of shortening the processing time of notices of interment for Muslim section burials to 24 hours, wherever practicable and excluding weekends and public holidays.

While opening the cemeteries office on weekends and bank holidays is a possibility, the number of weekend burials in the statistical data does not make this a cost effective approach. Therefore, consideration should be paid to allowing shorter-notice ‘notices of interment’ for those wishing to be buried on a Saturday or Monday, and for the costs of this to come out of existing cemetery office resources i.e. by altering the processes rather than extending office hours.

Furthermore, the feasibility of equal interment fees for residents regardless of the day of the week should be considered.

Christian The Christian faith is generalised, despite their being many sub- Denominations denominations. As such, it is not possible to be certain that the denominations with a representation similar or above that of Sikhs, Muslims and Hindus have been taken into consideration.

However, that said, research into the requirements of some of the more dominant Christian denominations (C of E, Catholicism, etc) suggests that the 1994 Regulations do not discriminate against them

Page 73 C.2) Describe any POSITIVE impacts

Equality Group Impact on this group and actions you need to take All cemetery users The planned revisions to the 1994 Regulations appear to ensure the needs of the majority of the borough’s residents are catered for, and there is sufficient inbuilt flexibility to include the needs of others upon request to the cemeteries manager.

Those who are unable It was acknowledged during the research process 2 that to read English, or some members of the community are unable to unable to interpret the understand the full version of the 1994 Regulations. full Regulations Simplification of the language and layout will go some way to assisting here, however, for legal reasons there is a minimum level of detail required to make the Regulations enforceable.

However, further accessibility options are planned: § the creation of a pictographic booklet to provide a summary of the key points of the 2013 Regulations will assist those who are unable to read English or comprehend full Regulations. § Being considered, for publication on the council website, is an audio version of the booklet, to aid those who understand spoken but not written English. § The standard council alternative formats for published documents will also be available, upon request.

2 Comments from the Bereavement Services Manager, and comments made by residents and funeral directors at RESPOC

Page 74 D) Conclusions

It is recognised that the burial process is very important to all of our community and where reasonably practicable adjustments have been made to accommodate the requirements of the borough’s population e.g. a shorter notice period for burials in the Muslim section

Based on the findings of this EIA, it is proposed that the new regulations should allow: - A body to be buried in a shroud rather than casket, regardless of religion or belief system; - for open casket, where appropriate; - for the family of the deceased to be allowed to assist in the filling of a gravespace, where the health and safety rules of the cemetery and the guidance of cemetery staff is followed; - Cremated remains to be placed into any grave space, rather than restricted to only columbaria; - Consecration to take place for individual gravespaces rather than having separate sections dedicated to consecrated land; - That while it is very difficult to retrospectively enforce breaches of the 1994 regulations, from the date of issue of the 2013 regulations enforcement must be consistent. - Burial fees for residents to be equal regardless of the day of the week - For additional accessibility options to the regulations themselves e.g. pictographic booklet

Furthermore, consideration should be paid to increasing the availability of burials at short notice for Saturdays and Monday mornings.

Signed and dated: …………………………………………………………………….....

Name and position :………………………………………………………………………

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Page 76 Agenda Item 6

MAJOR SCRUTINY REVIEW: REVIEW OF ADULT COMMUNITY MENTAL HEALTH SERVICES

Cabinet Member Councillor Philip Corthorne

Cabinet Portfolio Social Services, Health and Housing

Officer Contact Charles Francis, Administration Directorate

Papers with report Appendix A: Social Services, Health and Housing Policy Overview Committee Final Report.

HEADLINE INFORMATION

Purpose of report To receive the Social Services, Health and Housing Policy Overview Committee report on the review on Adult Community Mental Health Services.

Contribution to our The findings of this review will contribute to a whole range of plans and strategies Council plans and strategies, including:

• Joint Adult Mental Health Commissioning Plan 2013 – 2015 • Health and Wellbeing Strategy • Older People’s Plan • Disabled People’s Plan • Carers’ Strategy • Commissioning Strategies

Financial Cost There are no direct costs arising from the recommendations of this report. The delivery of these recommendations will need to be contained with the budget of the Council and partner organisations

Relevant Scrutiny Social Services, Health and Housing Policy Overview Committee Committee(s)

Ward(s) affected N/A

RECOMMENDATIONS

That Cabinet:

A. Welcomes the attached report of the Social Services, Health and Housing Policy Overview Committee on the review of Adult Community Mental Health Services.

B. Accepts the recommendations of the Policy Overview Committee as reflected below, which are to be taken forward by Officers, in consultation with the Cabinet Member for Social Services, Health and Housing, where applicable: -

Cabinet – 25 April 2013 Page 77

Identifying needs and early identification

1. Develops ways to improve early identification of mental health needs and increase access to mental health services. This will include utilising voluntary sector resources but also other services accessed by the public.

2. Reviews current arrangements to support service users and carers in a crisis and produce recommendations to provide an improved and integrated service.

Information and Support for users and carers

3. Promotes the greater and effective use of Assistive Technology (Telehealth) to support and enhance the daily lives of mental health service users and those with additional disabilities.

4. That the Council website and Directory of services are reviewed so that people seeking information about mental health and well-being can find the help they need.

5. Develop a mental health carers strategy reported to the Cabinet Member for approval, to improve services for carers in Hillingdon, including a commitment to needs and role of carers, clarity on services and improved communication.

Enabling people make choices, balancing risks and community involvement

6. Ensures procedures that CNWL and the Council as employers support people with mental health problems in returning to work.

7. Ensures that people leaving services are given clear information about how they can re-engage if they feel their condition worsening or becoming unwell again.

8. Ensures that people in the process of recovery are introduced to services that will continue to support them effectively through the transition as statutory support reduces.

Partnership working

9. That Cabinet welcomes the work to further improve the links between Mental Health Services and the Council’s Housing Teams including:

10. identifying a link worker in each community team to work with housing lead officer. • establishing regular forums:- to discuss and explore appropriate housing options for those service users in the community who may have particularly challenging needs; • Improving joined up working to sustain tenancies and;

• Identifies current informal support services in the Borough and develops mechanisms to support them in their task through publicity, advice and information.

Cabinet – 25 April 2013 Page 78

11. Establishes a formal relationship between senior managers in libraries and leisure and Mental Health Services to ensure consistent and continued support of service users and carers in community settings.

12. Supports voluntary sector organisations to improve co-ordination and share best practice and recognise their valuable contribution to the safety net.

13. Produces a report for the Cabinet Member and Committee on the views and experiences of mental health service users and carers and how they have been acted upon.

Staff training and development

14. Works with service users to more consistently challenge stigma against mental health service users and produce a realistic programme projecting positive images of mental health.

15. Ensure that staff, especially those officers that work in Supported Housing and Social Care who are in the first line of defence, have Mental Health First Aid Training (from existing resources).

Learning from best practice

16. Identifies ways of ensuring a consistent / universal response from GP surgeries in relation to mental health issues. Consideration should be given to applying good practice models from across the country.

Resources

17. Welcomes the proposed 2013/15 Commissioning Plan as a basis for shifting resources towards community support and to reduce the reliance on high cost residential and nursing care (placements).

INFORMATION

Reasons for recommendation

The objective of the review was to examine current Adult Community Mental Heath Services and to make recommendations to improve the service for service users and carers and enhance partnership working.

Alternative options considered / risk management

The Cabinet could decide to reject or amend one or more of the Committee’s recommendations.

Supporting Information

The Social Services, Health and Housing Policy Overview Committee held meetings on 11 September, 9 October 2012, 1 November, 11 December and 12 December 2012 when background information and evidence was received to help the Committee in forming their findings.

Cabinet – 25 April 2013 Page 79

The terms of reference of the review was as follows: 1. To consider existing internal and external arrangements in the Borough with regard to adult community mental health services and any improvements that could be made; 2. To review whether the local processes in supporting adults in the community with mental health services are adequate, timely, effective and cost efficient; 3. To review the support that is currently available to assist people to remain in or return to employment; 4. To review the guidance and support that is currently available from the NHS, voluntary organisations and the Council to these individuals and their families and carers; 5. To seek out the views on this subject from service users, carers and partner organisations using a variety of existing and contemporary consultation mechanisms; 6. To improve awareness and understanding of adult mental health issues for staff working in mainstream services arranged or provided by the Council including housing, leisure, libraries and adult learning; 7. To examine best practice elsewhere through case studies, policy ideas, witness sessions and visits; and 8. After due consideration of the above, to bring forward cost conscious, innovative and practical recommendations to the Cabinet in relation to adult mental health service arrangements in the Borough.

The Committee heard from: • The Director of Operations and Partnerships, CNWL • The Borough Director and Service Director Assessment and Brief Treatment Service Line • NHS Hillingdon • Dr Ellis Friedman – PCT / LBH former Director of Public Health • Senior Council Officers from across the Council • Rethink • Hillingdon MIND • Hillingdon LINK • Service users and carers • Mental Health Staff based at Mead House, Riverside Resource Centre and Mill House • The Uxbridge Bike Project

Key findings, which were identified in the review, were:

• There is scope to improve and develop early identification of mental health needs and crisis provision in Hillingdon. Instances of acute crisis can include suicidal behaviour, panic attacks, psychotic episodes and other cases of extreme behaviour that appears out of control or irrational. The review showed how strong crisis provision could provide valuable lessons as to how similar episodes could be prevented or resolved in the future.

• Carers played a vital role in supporting family members in a role which was not a static process as the needs of the care recipient altered over time as their condition changed. During the review, carers raised a number of important issues including crisis provision and the need to improve links and communication with mental health inpatient units. To address these concerns, the review recommended that: 1. A report for the Cabinet Member and Committee was produced showing how these concerns had been acted upon.

Cabinet – 25 April 2013 Page 80 2. Work was undertaken to develop a mental health carer’s strategy, improving services for carers in Hillingdon.

• There was scope to further improve partnership working across the Borough in support of people with Mental Health issues. The review welcomed the links between Mental Health Services and the Council’s Housing Teams but also highlighted there was a need to identify current informal support services in the Borough and to develop ways of supporting them in their role of providing information, advice and guidance. The review also proposed that the Council and CNWL Partnership establishes a formal relationship between senior managers in libraries and leisure and the mental health service so that improved support could be provided in community settings.

• Part of the remit of this review was to review the guidance and support that is currently available from the NHS, voluntary organisations and the Council to people with mental health issues and their families and carers. Based on the Councillor feedback received at Ward surgeries and from speaking to service users and carers, the Committee identified that it was essential to ensure that information, advice and guidance was easy to find and access. As well as increasing the general awareness of mental health issues, the review also highlighted the issue of stigma associated with mental health issues and the need for this to be addressed by producing a realistic programme projecting positive images of mental health.

Officer Comments on the Implementation of the Recommendations

Identifying needs and early identification

1 Develops ways to improve early identification of mental health needs and increase access to mental health services. This will include utilising voluntary sector resources but also other services accessed by the public.

Officers will work with Hillingdon CCG, Central North West London Trust, the voluntary sector and other key partners to ensure promotion of well being and early intervention in all settings and communities.

2 Review current arrangements to support service users and carers in a crisis and produce recommendations to provide an improved and integrated service.

This issue is reflected in the recent joint commissioning strategy 2013-15. Officers will work the CCG, Central North West London Trust (CNWL), the voluntary sector and other key partners) to ensure responsive and appropriate services are available in times of crises.

Information and Support for users and carers

3 Promotes the greater and effective use of Assistive Technology (Telehealth) to support and enhance the daily lives of mental health service users and those with additional disabilities.

Telehealth is an important component of the recent joint commissioning strategy 2013-15. It will enable residents (particularly those with Dementia) to remain independent, in their own homes, as long as possible. Officers will be working with all partners to promote the benefits of Telehealth.

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4 That the Council website and Directory of services are reviewed so that people seeking information about mental health and well-being can find the help they need.

Officers will ensure that the website and Directory are reviewed so they hold accurate information which are is accessible as easily as possible

5 Develop a mental health carers strategy reported to the Cabinet Member for approval, that to improve services for carers in Hillingdon, including a commitment to needs and role of carers, clarity on services and improved communication.

It is important that carers have choice, control and timely access to advice and information. Officers will work with key partners to maximise support to carers and review the current strategy (part of 2013-15 strategy).

Enabling people make choices, balancing risks and community involvement

6 Ensure procedures that CNWL and the Council have as employers, support people with mental health problems in returning to work.

Officers and CNWL recognise the importance of supporting people with mental health problems to remain in work and will ensure that any member of staff with a mental health problem are properly supported in their return to work.

7 Ensure that people leaving services are given clear information about how they can re-engage if they feel their condition worsening or becoming unwell again.

It is important that service users have easy access back into services should their mental health condition deteriorate .Officers will work with CNWL, the CCG and other key partners to ensure improved access back into services.

8 Ensures that people in the process of recovery are introduced to services that will continue to support them effectively through the transition as statutory support reduces.

Officers will work with key partners to ensure a focus on recovery outcomes and a personalised approach which maximises input from the voluntary sector and other community services,

Partnership working

9 That Cabinet welcomes the work to further improve the links between Mental Health Services and the Council’s Housing Teams including: identifying a link worker in each community team to work with housing lead officer. establishing regular forums:- to discuss and explore appropriate housing options for those service users in the community who may have particularly challenging needs; Improving joined up working to sustain tenancies.

Officers recognise the importance of joint working with between mental health services and housing. A regular forum has already been established and link workers identified

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10 Identifies current informal support services in the Borough and develops mechanisms to support them in their task through publicity, advice and information.

Officers will work with service users, carers and key partners to identify informal support networks and services and assist in the development of information publicity and advice services.

11 Establishes a formal relationship between senior managers in libraries and leisure and Mental Health Services to ensure consistent and continued support of service users and carers in community settings.

Officers will be working with health promotion mental health services, libraries and leisure to develop opportunities to support and improve the lives of service users and carers.

12 Supports voluntary sector organisations to improve co-ordination and share best practice and recognise their valuable contribution to the safety net.

Work is currently underway as part of the joint mental health strategy to maximise the contribution of the voluntary sector recognising the very valuable work they do.

13 Produces a report for the Cabinet Member and then Committee on the views and experiences of mental health service users and carers and how they have been acted upon.

Officers working with key partners will produce a report on the views and experience of service users and carers ( as part of the joint strategy). This will include an implementation plan to take forward key recommendations.

Staff training and development

14 Works with service users to more consistently challenge stigma against mental health service users and produce a realistic programme projecting positive images of mental health.

Stigma is a major issue in mental health, officers and key partners will work together to develop a strategy to identify and challenge stigma and promote positive images and experiences.

15 Ensure that staff, especially those officers that work in Supported Housing and Social Care who are in the first line of defence, have Mental Health First Aid Training delivered through existing resources.

First Aid training will be made available (resources permitting) to all appropriate staff.

Learning from best practice

16 Identifies ways of ensuring a consistent / universal response from GP surgeries in relation to mental health issues. Consideration should be given to applying good practice models from across the country.

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Continuous improvement and learning from good practice form part of the basis for good governance in the health service. Officers will work with key partners to improve learning, consistency and best practice (and incorporate this into the joint strategy).

Resources

17 Welcomes the proposed 2013/15 Commissioning Plan as a basis for shifting resources towards community support and to reduce the reliance on high cost residential and nursing care (placements).

Officers are working with a range of partners, service users and carers to deliver the key outcomes of the 2013/15 commissioning plan.

Financial Implications

There are no direct costs arising from the recommendations of this report. The delivery of these recommendations will need to be contained with the budget of the Council and partner organisations.

EFFECT ON RESIDENTS, SERVICE USERS & COMMUNITIES

What will be the effect of the recommendation?

The recommendations, if agreed, will improve the partnership work in relation to Adult Community Mental Health Services and, in particular, improve practice, procedures and information to help service users and carers contending with mental health issues.

Consultation Carried Out or Required

The Committee took evidence from a range of witnesses, as described in the review report.

CORPORATE IMPLICATIONS

Corporate Finance

Corporate Finance note the recommendations in the report and concur with the financial implications set out earlier in the report.

Legal

Under the Council’s Constitution, Cabinet has the appropriate power to agree recommendations proposed at the outset of this report. Further, by virtue of Section 1 of the Localism Act 2011 which makes provision for ‘a general power of competence’ for local authorities in England. The ‘power’ gives local authorities the power to do anything an individual can do unless specifically prohibited by law. This includes the power to act in the interest of their communities.

BACKGROUND PAPERS

NIL

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Report of the Social Services, Health & Housing Policy Overview Committee 2012/13 Review of Adult Community Mental Health Services

Members of the Committee Cllr Judith Cooper (Chairman) Cllr Peter Kemp (Vice-Chairman) Cllr David Benson Cllr Sukphal Brar Cllr Patricia Jackson Cllr John Major Cllr June Nelson Cllr Mary O’Connor

Page 85 This page is intentionally left blank

Page 86

Contents

Chairman’s Foreword Page 2

Summary of Recommendations Page 3

Introduction Page 6

Terms of Reference and Page 8 Lines of Enquiry

Findings and Recommendations Page 10

Session 1 - Identifying needs & Page 10 early intervention

Session 2 - Local Strategies: Page 22 Translating policy into practice

Session 3- Service Users and Page 29 Partership working

Carer's views Page 32

Closing Word Page 34

Background Documents Page 35

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 1 Page 87 Chairman’s Foreword

There is a vast array of mental health support and advice in the Borough – disseminated by an equally vast array of organisations and procedures/methods. The work itself is undertaken with considerable skill and sensitivity and many, though not all, service users told us how satisfied they were with the support they received – once it’s in place. However, we heard about aspects of service that clearly need to be flagged up as areas of concern:

• Transition – between and within services. • Crisis and particularly, that for the service users and/or family and friends, at the point of crisis the route into services is not clear. • The Council web-site, which should offer an accessible menu of support and advice; • A clear safety-net for those deemed to be “independent” and therefore ineligible for services, The overwhelming impression is of committed and well qualified people working hard within services, but without a sufficiently clear map to help them ensure service users move effectively through services in order to maximise their potential recovery, or to maintain stability in their condition. Service users and carers are often inhibited by their own perception of the stigma associated with mental health issues which prevents 9 out of 10 of them from doing everyday things - including seeking help.

Mental health, like all areas of health & social care, is in a state of flux because of the NHS changes and the development of service lines, the recovery model and personal budgets. There are two trends with which Officers and Partners are very familiar and keen to improve – effective partnerships and a focus on commissioning for outcomes. Paradoxically, whilst the key to cohesive services is partnership working it also requires clear leadership. The increased role of the Local Authority in the preventative agenda gives us an excellent opportunity to give direction to the provision and monitoring of both our own services and those of our partners. Properly developed partnership and commissioning for outcomes have the potential to transform the lives of Mental Health Services Users and their families by ensuring excellent, accessible and timely services that meet their needs in crisis as well as in their day-to-day lives.

That is the challenge that this Committee has been seeking to articulate and to offer support through its recommendations.

Cllr Judith Cooper

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 2 Page 88 Summary of Recommendations

This review examines adult community mental health services in Hillingdon. Following the evidence received, the Committee make the following recommendations.

To ensure that there is access to and accessibility of excellent outreach services in the community for all service users and their carers, we recommend that the Council and CNWL work in partnership through the Mental Health Partnership Board as follows:

Identifying needs and early identification

2. Review current arrangements to support service users and carers in a crisis and produce recommendations to provide an improved and integrated service.

Information and Support for users and carers

3. Promotes the greater and effective use of Assistive Technology (Telehealth) to support and enhance the daily lives of mental health service users and those with additional disabilities.

4. That the Council website and Directory of services are reviewed so that people seeking information about mental health and wellbeing can find the help they need.

5. Develop a mental health carers strategy reported to the Cabinet Member for approval, that improves services for carers in Hillingdon, including a commitment to needs and role of carers, clarity on services and improved communication.

Enabling people make choices, balancing risks and community involvement

6. Ensure procedures that CNWL and the Council have as employers, support people with mental health problems in returning to work.

7. Ensure that people leaving services are given clear information about how they can re-engage if they feel their condition worsening or becoming unwell again.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 3 Page 89

8. Ensures that people in the process of recovery are introduced to services that will continue to support them effectively through the transition as statutory support reduces.

Partnership working

9. That Cabinet welcomes the work to further improve the links between Mental Health Services and the Council’s Housing Teams including:

• identifying a link worker in each community team to work with housing lead officer. • establishing regular forums:- to discuss and explore appropriate housing options for those service users in the community who may have particularly challenging needs; and • Improving joined up working to sustain tenancies.

10. Identifies current informal support services in the Borough and develops mechanisms to support them in their task through publicity, advice and information.

12. Supports voluntary sector organisations to improve co-ordination and share best practice and recognise their valuable contribution to the safety net.

13. Produces a report for the Cabinet Member and then Committee on the views and experiences of mental health service users and carers and how they have been acted upon.

Staff training and development

14. Works with service users to more consistently challenge stigma against mental health service users and produce a realistic programme projecting positive images of mental health.

15. Ensure that staff, especially those officers that work in Supported Housing and Social Care who are in the first line of defence, have Mental Health First Aid Training delivered (from existing resources).

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 4 Page 90

Learning from best practice

Resources

17. Welcomes the proposed 2013/15 Commissioning Plan as a basis for shifting resources towards community support and to reduce the reliance on high cost residential and nursing care (placements).

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 5 Page 91

Introduction

Reason for review and terms of reference:

There is a growing acceptance that the promotion of mental health and well being and providing support to aid recovery from mental illness are important issues for both national and local government and health services. Good mental health is central to our quality of life and to our economic success. It is interdependent with our success in improving education, training and employment outcomes and tackling some of the persistent problems of society. Mental health problems of some form may affect as many as 1 in 4 of the population over their lifetime. The associated costs of mental health problems to the economy in England have recently been estimated as £105 billion and treatment costs are expected to double in the next 20 years. 1

Despite widespread prevalence there remain issues of stigma. It is a particular problem in most societies and can be a major barrier to the use and take–up of services. As a result, people with mental health problems too often experience isolation, poor opportunity, discrimination and a lack of acceptance by society. Addressing this issue will be an important element of this review.

The concept of recovery has been introduced to mental health in recent years, for many people this is about staying in control of their life despite experiencing a mental health problem. Professionals in the mental health sector often refer to the ‘recovery model’ to describe this way of thinking. Putting recovery into action means focusing care on supporting recovery and building the resilience of people with mental health problems, not just on treating or managing their symptoms.

There is no single definition of the concept of recovery for people with mental health problems, but the guiding principle is hope – the belief that it is possible for someone to regain a meaningful life, despite serious mental illness. Recovery is often referred to as a process, outlook, vision and conceptual framework or guiding principle.

The recovery process: -provides a holistic view of mental illness that focuses on the person, not just their symptoms

-believes recovery from severe mental illness is possible is a journey rather than a destination.

1 No Health Without Mental Health – a cross government mental health strategy February 2011

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 6 Page 92 -does not necessarily mean getting back to where you were before.

-happens in 'fits and starts' and, like life, has many ups and downs.

-calls for optimism and commitment from all concerned.

-is profoundly influenced by people’s expectations and attitudes.

-requires a well organised system of support from family, friends or professionals.

-requires services to embrace new and innovative ways of working.

The Council and NHS commission and provide a wide range of community mental health services to meet the needs of people with mental health problems. Adult social care services are provided through a joint arrangement with Central and North West London NHS Foundation Trust (CNWL). It is one of the largest Trusts in London, offering a wide range of health and social care services across ten boroughs. CNWL specialises in caring for people with mental health problems, addictions and learning disabilities, as well as providing community health services to residents in Hillingdon and Camden and primary care services in a number of prisons. Social care staff are located in joint teams and are accountable to both managers within the Council and CNWL. This arrangement is underpinned by a formal partnership under Section 75 of the National Health Services Act 2006.

Current funding levels for social care mental health services in Hillingdon are in line with those of comparator councils 1. The Council also spends similar proportions of its budget on mental health as other similar London boroughs.

Current spending on mental health services reflects a relatively traditional model of care with disproportionately high expenditure on residential care and nursing homes. This was explored in the September Committee meeting. There is a correspondingly low spend on home and community based solutions such as befriending, support to remain in employment, assistance to participate in education and leisure opportunities and guidance to learn budgeting , cooking skills and improve personal hygiene. This is where it is the lowest within the same comparator group. Work is already underway to rebalance care through reducing reliance on institutionalised care and support and developing a range of services including greater use of community options including personalised budgets supported housing and floating support for people within their own tenancies. The NHS spend on mental health services in Hillingdon is relatively low compared to similar health economies but has improved in recent years. A new joint commissioning plan emphasises the need to shift resources away from bed-based services towards greater support in the community.

1 LIT Results of Financial Mapping 2011-12 – Hillingdon – Department of Health

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 7 Page 93

This review offers an opportunity to learn more of what works well and recommend more systematic approaches to implementation across the Council.

The review sought to

To review and make recommendations in respect of supporting adults with mental health issues in Hillingdon.

Terms of Reference

1. To consider existing internal and external arrangements in the Borough in regard to adult community mental health services and any improvements that could be made; 2. To review whether the local processes in supporting adults in the community with mental health services are adequate, timely, effective and cost efficient; 3. To review the support that is currently available to assist people to remain in or return to employment 4. To review the guidance and support that is currently available from the NHS, voluntary organisations and the Council to these individuals and their families and carers; 5. To seek out the views on this subject from service users, carers and partner organisations using a variety of existing and contemporary consultation mechanisms; 6. To improve awareness and understanding of adult mental health issues for staff working in mainstream services arranged or provided by the Council including housing, leisure, libraries and adult learning; 7. To examine best practice elsewhere through case studies, policy ideas, witness sessions and visits; and 8. After due consideration of the above, to bring forward cost conscious, innovative and practical recommendations to the Cabinet in relation to adult mental health service arrangements in the Borough.

Lines of enquiry

To address the Terms of Reference, the Committee agreed the following lines of enquiry:

Identifying Needs and Early Identification 1. How people with mental health problems are currently identified and supported across the Borough and how can this be improved and standardised, including support in a crisis? 2. How good are local awareness, early identification and diagnosis?

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 8 Page 94 Information and support for users and carers 3. What information, support and advice is available to those that may need it? How can this be improved? 4. What treatment and support and recovery services are available e.g. CNWL Recovery College? 5. What support is available for the carers of adults with mental health issues? Is this support sufficient/ how could this be improved?

Enabling people to make choices, balancing risks and community involvement 6. How are service users’ and carers expectations and concerns reflected in local service delivery? 7. How are adults with mental health issues involved in their communities and civil society? 8. How are issues of supporting people to exert choice and control in their lives balanced against issues of potential risk the individual and wider community?

Partnership Working 9. How well developed are local strategies and partnerships with regard to adult mental health issues? 10. Are there any barriers to successful partnership working?

Staff Training and Development 11. What training is available to staff to properly assist them in support people with mental health difficulties? 12. How can education for professionals and carers be improved?

Learning from best practice 13. Which other areas/councils are recognised as successful in supporting people with mental health needs in their local communities?

Resources 14. What funding is available and how sufficient is this to meet the needs of the demand of the service required?

Methodology To address the lines of enquiry, the Committee held three meetings in September, October and November which were attended by senior Council officers, representatives from CNWL and a variety of different stakeholders. In addition to its formal evidence collection, the Committee also conducted three site visits between early November and mid December. The final meeting in December was used by the Committee to consider its draft recommendations. Details of these meeting are described in Appendix 7 to this report.The next section of the report provides background on the main issues, and then presents the main issues arising in our evidence. The Committee then make recommendations to Cabinet, which it believes will address these issues.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 9 Page 95

Findings & Recommendations

1 Identifying Needs and Early Identification, Learning from best practice, Resources

Mental Health: An Overview

Mental health is a complex issue which has serious ramifications for the community. To support members in absorbing both national and local policy and practice the Committee were provided with six information packs at the outset of the review as a point of reference:

1. National Context – Summary of ‘No Health without Mental Health’ 2. Contextual Information for Hillingdon – data informing the new Commissioning Plan 3. Performance Data 4. Access to Services 5. Organisational Structure 6. National examples of best practice

These information packs are included as Appendices 1 to 6 to this report.

Levels of Need in Hillingdon

Common mental health disorders, such as depression, generalised anxiety disorder, panic disorder, obsessive-compulsive disorder (OCD), post- traumatic stress disorder (PTSD) and social anxiety disorder, may affect up to 15% of the population at any one time.

The prevalence of individual common mental health disorders varies considerably. The 1-week prevalence rates from the Office of National Statistics 2007 national survey were 4.4% for generalised anxiety disorder, 3.0% for PTSD, 2.3% for depression, 1.4% for phobias, 1.1% for OCD, and 1.1% for panic disorder.

Estimates of the proportion of people who are likely to experience specific disorders during their lifetime are from 4% to 10% for major depression, 2.5% to 5% for dysthymia (low mood), 5.7% for generalised anxiety disorder, 1.4% for panic disorder, 12.5% for specific phobias, 12.1% for social anxiety disorder, 1.6% for OCD and 6.8% for PTSD. More than half of people aged 16 to 64 years who meet the diagnostic criteria for at least one common mental health disorder experience co-morbid anxiety and depressive disorders.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 10 Page 96 The Committee heard that the most common mental disorder in Hillingdon was anxiety and depressive disorders which affected a significant number of people with mental health problems.

Although the mental health need in Hillingdon was lower than England as a whole, the picture fitted with the national pattern of indicators and determinants that impact on mental health.

The profile for Hillingdon activity in 2010/11 shows

7.5% of those on the on the caseload of CNWL were admitted, 88.4% were treated in the community with, 4.1% receiving no care. For comparison, the average for all commissioners is approximately 8.1% admitted, 85.1% community, 6.8% no care. Also, the average for all PCT peers (6 Thriving London Periphery) is approximately 9.5% admitted, 87.8% community, 2.7% no care.

Based on data from NHS commissioners most admissions needing mental health treatment in Hillingdon came from the south of the Borough. These wards were predicted to have a higher population increase in areas already more densely populated and more deprived. On average, these localities showed higher numbers for the following social determinants:

• Lower educational attainment • More unemployment • More crime

Clearly, the scale of the challenge is set to escalate with the inequality gap widening in both life expectancy and quality of life.

The Provision of Services in Hillingdon

The Committee heard that clearer lines of reporting meant that existing resources could be used more efficiently to achieve the best outcomes for service users. The Committee noted that CNWL had been reconfigured into 11 Service Lines three of which have particular relevance for this report:

1. Rehabilitation Service Line. 2. Assessment and Brief Treatment Service Line – It is hoped that this reconfiguration will improve access to services. 3. Community Recovery Service Line – Focusing on supporting individuals in their recovery journey and developing support networks for service users.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 11 Page 97 CNWL reported that Liaison Services in the Acute hospital setting were a new service area which was being developed further with the aim of more effectively managing physical health and mental health needs reducing secondary health care needs for example with long term conditions.

This is a consistent format common to all the London Boroughs that the Central and North-West London Mental Health Foundation Trust (CNWL) serve.

Officers and representatives from Central and North West London Foundation Trust (CNWL) explained that community mental health services in Hillingdon were delivered jointly through an integrated health and social care service which included the following Joint Teams:

• A combination of Consultant psychiatrists and other medical staff • Social workers • Community mental health nurses (CMHNs) • Psychologists • Occupational Therapists • Pharmacists

Initial referrals are made to an Assessment and Brief Treatment Team. Referrals can be made directly by the individual concerned, through a carer or through primary health services including GPs. Longer term support is offered where necessary through both Recovery and Rehabilitation teams. Although support is frequently provided in home settings service users are also assisted from three community bases in the Borough. These bases provide not just access to community mental health staff but also to specific services including drop in support.

Contextual Information for Hillingdon – data informing a new Commissioning Plan

The Committee heard that the priorities for NHS Hillingdon and the London Borough of Hillingdon included:

1. Promoting healthier lifestyles 2. Improved co-ordination of joint health and social care working 3. Safeguarding, prevention and protection 4. Community based, resident focused services 5. Promoting economic resilience 6. Preserving and protecting the natural environment 7. Reducing disparities in health

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 12 Page 98 Commissioning of community mental health services was undertaken jointly by NHS Hillingdon and London Borough of Hillingdon and the commissioning officer was a joint appointment.

Members asked about outcomes based commissioning and the progress which was being made. In response, the Joint Commissioning Officer explained that the National (Mental Health) Strategy was outcomes focussed which was then progressed down to the local level. The Committee heard that in terms of service user outcomes, CNWL are in discussion with commissioners about using the recovery star system to track and monitor service user outcomes but currently use the National Strategy also incorporated HONOS (Health of the Nation Outcome Scales) to measure individual service user progress against performance targets.

The Director of Operations and Partnerships, confirmed that CNWL ensured that the 6 core strategy indicators included in the No Health Without Mental Health paper were aligned with CNWL’s and the Council’s commissioning goals.

In response to a question about the cost and value for money of interventions, the Committee heard that whereas everyone would like to know about efficiencies and the cost effectiveness of a service, mental health was one of the most difficult areas to measures outcomes. Eventual outcomes could be examined but tracking the service user journey was often a time consuming and complex exercise.

It was noted that a key challenge for the new Commissioning Plan would be the focus on the national context and a move away from dependency on secondary care to primary care. The commissioning plan would translate national policy into local practice. This particularly applies to moving more resources into prevention and early intervention and away from bed-based services. Based on their discussions, the Committee agreed with this approach.

Recommendation 17 – (The Mental Health partnership Board) welcomes the proposed 2013/15 Commissioning Plan as a basis for shifting resources towards community support and to reduce the reliance on high cost residential and nursing home care (placements).

Current Performance

CNWL representatives explained that in order to monitor performance and establish which service areas were going well and which required further improvement a number of performance targets were used. These included:

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 13 Page 99 1. 7-day follow up 2. Care Programme Approach (CPA) reviews 3. Delayed Transfers of Care 4. Gate keeping all inpatient admissions 5. New EIS (Early Intervention Service-for first onset of a psychotic illness)Cases 6. NHS Data completeness 7. Home Treatment episodes 8. Self directed support/Personal Budgets 9. Placement reviews 10. Assessment waiting times 11. Carers assessments 12. Service Users receiving review

The Committee were pleased to learn that overall, performance had improved over the past 3 years and in particular work around home treatment and early intervention had gone well. However it was highlighted that self directed support, placement reviews, carers’ assessments and social care reviews required improvement. The Committee welcomed the news that a series of action plans had been introduced to address these areas. Despite a relatively low NHS spend in Hillingdon, it was broadly meeting expected performance outcomes.

A key aspect of improving performance related to the organisational structure of CNWL, as described in the earlier section under “The Provision of Services in Hillingdon”.

Early Intervention and Crisis Provision

MIND, a national charity providing specific advice and support to anyone experiencing mental health problems, defines an acute crisis as:

• suicidal behaviour or intention. • panic attacks/extreme anxiety. • psychotic episodes (loss of sense of reality, hallucinations, hearing voices). • other behaviour that seems out of control or irrational and that is likely to endanger yourself or others.

Given the statistic that one in four people will experience some form of mental health issue in their lifetime, clearly there are other forms of mental health crisis which the person experiencing it may classify as a crisis but which may well not require crisis or acute mental health services. Examples of these may be the experience of emotions or behaviours that are difficult or hard to manage (e.g. depression, intense loss or bereavement, or self-harm).

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 14 Page 100 The Committee heard that in some cases a mental health crisis might signify that a service users’ current care or treatment might not be working and needed to be changed and if this were the case, it could have serious consequences if not managed well. However, it was accepted that crises could have good outcomes if handled well and if they were used as a transition point; whereby they gave an opportunity for a service user to reflect on the past, reassess the future and possibly take a new direction.

Officers explained that if a crisis was handled well, it could also provide valuable lessons as to how similar episodes could be prevented or resolved in future.

In relation to crisis provision, the Committee heard that local community teams could respond within office hours. Outside these hours provision included:

• The NHS - 111 - phone number for emergency and care services which were less urgent than 999 calls • General Practitioner services • Accident and Emergency services • Emergency Out of Hours Team • Crisis number provided by CNWL

The Committee heard that Early Intervention work was being conducted in partnership between the Council, CNWL and GP surgeries across the Borough to increase this support. It was noted that the Well-Being Centre had a role to play in signposting service provision, as well as providing a location for some services. It was acknowledged there were further opportunities to better promote well-being and signpost people into services . The valuable role the voluntary sector played in identifying need and especially early need was also emphasised.

In terms of early diagnosis and treatment of common mental disorders, Members heard that NHS Hillingdon commissions this. They are committed to creating more psychological support through GP practices .This is described as Improving Access to Psychological Services (IAPT), a national initiative with a goal of improving outcomes though access to a range of psychological treatments and therapies in primary care

Having heard about the importance of crisis management, the Committee were disappointed to learn that CNWL are not commissioned to provide a dedicated crisis team but instead were taking steps to enhance the current out of hours service and put in place a single telephone number to help people, thereby creating a more consistent service.

In relation to the current out of hours service, the Borough Director (and Service Director Assessment and Brief Treatment Service Line) CNWL

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 15 Page 101 confirmed that service users were given details of a crisis number to call for advice and signposting which out of hours may be to Accident and Emergency or a Social Services Team. These outcomes are not tracked however, a new system to be operational in CNWL by February 2013, with a single helpline number covering the whole of CNWL, will have a process for tracking and monitoring outcomes.

Officer’s confirmed that the Council’s Emergency Duty Team did include mental health professionals or had access to them.

While noting the ongoing service development work which was currently underway, to compare and contrast other experiences of crisis, the Committee heard from service users at the November meeting. Service Users explained that if they were in crisis in the evening, they were more likely to contact the Samaritans than the Council or CNWL services because this was a readily available service with a single point of contact.

To ensure that service users and carers were equipped to react to any periods of future crises the Committee agreed that it was essential to:

Recommendation 7 - Ensure that people leaving services are given clear information about how they can re-engage if they feel their condition worsening or becoming unwell again.

It was noted that carers often played a vital role in assisting persons in crisis. However when the Committee met a group of carers in December they heard mixed experiences: • Some service users appeared to have little or no support. • The (carer explained) only way to access help was after a service user had been sectioned (hence no perceived Crisis Service). Prior to this there was no help available. • Carers had been informed that care co-ordinators were only available to those service users who had been in hospital (i.e. a crisis was the trigger required to receive help in the future). • To improve the crisis response it was essential that service users could contact staff they were familiar with. • Offering practical advice and guidance over the telephone was essential. • Carers sometimes experienced perceived language barriers which was an added complication which added to frustrations.

Whilst the views of the Carers group visited are very important, it should be acknowledged that they may not necessarily reflect the views of all the carers of the 6,400 people in contact with secondary mental health services.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 16 Page 102 In terms of prevention, the Committee heard that all service users were provided with crisis cards to reduce the likelihood of relapse which recorded some personal details and included information about whom to contact if the person was in crisis.

Based on their own experiences and from feedback received at Ward surgeries, Councillors noted that the current adult social care website was difficult to navigate and meant that it was hard to extract information about support for people with mental health problems. The Corporate Director of Social Care and Health acknowledged that the new website was experiencing teething problems. To enhance the information, advice and guidance available to all residents the Committee agreed that:

Recommendation 4 -That the Council website and Directory of services are reviewed so that people seeking information about mental health and well-being can find the help they need.

It was noted that the Hillingdon Carers were in the process of developing their own crisis card so, in the event of an emergency where they could not provide care; others would know what support was needed for the relative or friend they supported.

Recommendation 2 - Review current arrangements to support service users and carers in a crisis and produce recommendations to provide an improved and integrated service.

Members agreed that it was vital there was support immediately after a period of crisis to ensure the person felt able to return to work as quickly as possible. It was highlighted that working within the voluntary sector for a period of time could help build confidence and provide support networks to persons in recovery. As well as the role played by the voluntary sector, it was acknowledged that one of the greatest challenges in promoting recovery would be addressing the issue of how staff enable service users to fulfil their aspirations and encourage them to use the services and networks available to them.

Recommendation 8 - Ensures that people in the process of recovery are introduced to services, that will continue to support them effectively through the transition as statutory support reduces.

The Borough Director (and Service Director Assessment and Brief Treatment Service Line) CNWL explained that there were further opportunities for CNWL to engage with GPs and in particular to develop the commissioning role played by GPs. Members also highlighted that one of the key roles played by them was at an early stage, ensuring appropriate interventions and treatment in primary care, but requesting swift specialist services when needed. There was scope to enhance this area. On this basis and referring to the numerous

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 17 Page 103 examples of national best practice cited in information pack 6 the Committee recommended that the Mental Health Partnership Board: Identified the following:

Recommendation 16 - Identifies ways of ensuring a consistent / universal response from GP surgeries in relation to mental health issues. Consideration should be given to applying good practice models from across the country

Members highlighted that one specific area which required further attention was the eating disorder groups which did not appear to have a voice at forum meetings. The Borough Director reported that access to psychologists in Hillingdon had improved which would help identify needs at an earlier stage.

The Committee welcomed the news that over the last 18 months, partnership working between the Council and CNWL had improved and that the new London Borough of Hillingdon Service Manager post would act as a focal point for liaison between the Council and CNWL to enhance joint working.

In response to a question about what aftercare was available to carers and the families of mental health patients following a suicide, CNWL said they will appoint a member of staff to liaise with the families, through a series of telephone calls, or, in some cases, through home visits, face to face contact. There were also a range of funded carers groups and Rethink offered a service particularly for people with mental health problems.

Members highlighted that the Well-Being Centre (located within the Boots Chemist on Uxbridge High Street) provided a fantastic service and there was an opportunity to publicise and promote what it did. The Borough Director (and Service Director Assessment and Brief Treatment Service Line) CNWL confirmed that the IAPT was based at the Well Being Centre and this needed to be expanded. Members highlighted the importance of promoting mental well-being through informal as well as formal outlets. They highlighted that that St Margaret’s Church was also a valuable resource to people with mental health issues and it was important that services, information and guidance was available to service users at those locations. To support this request the Committee recommended that the Mental Health Partnership Board:

Recommendation 10 - Identifies current informal support services in the Borough and develops mechanisms to support them in their task through publicity, advice and information .

However, when the Committee heard from LINK in December, they outlined that they perceived not all parts of the centre of Uxbridge were so welcoming, citing examples of security staff in the Chimes not responding and addressing

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 18 Page 104 the needs of people in the centre who clearly had mental health problems. This is picked up in Rec 15.

Through these concerns, the Committee suggested that staff in libraries and leisure facilities attend Mental Health awareness training identified that mental health awareness training for staff working in leisure and libraries might also be usefully offered to private sector agencies who have frequent contact with the public and recommended that the Mental Health Partnership Board:

Recommendation – 11 -Establishes a formal relationship between senior managers in libraries and leisure and Mental Health Services to ensure consistent and continued support of service users and carers in community settings.

Recommendation 1- Develops ways to improve early identification of mental health needs and increase access to mental health services. This will include utilising voluntary sector resources but also other services accessed by the public.

In response to a question about the possible ways in which the Council might assist CNWL deliver improved Mental Health Services, the following suggestions were proposed:

1. Implementing a new structure to deliver mental health services in Hillingdon, overseen by a post that would strengthen service provision;

2. Exploring further ways of working between CNWL and the Council’s Housing Teams to look at housing needs and accommodation options;

3. Exploring those opportunities for CNWL to work in partnership with the Council’s Sport and Leisure services to develop the inclusion and recovery agenda (especially looking at the work of libraries as local resources).

The first of these has now been delivered with the appointment of a full-time Service manager for mental health within the Council. In relation to the final suggestion, the Corporate Director of Social Care and Health confirmed that her Department had been working closely with Residents Services to look at ways in which services could be delivered in the future. It was noted that access to self help therapies either on line or in written form could be very useful. It was noted that the Council did not have a “books on prescription” service for example, but there were lots of instances where there were opportunities for greater joint working. The Joint Commissioning Manager from NHS Hillingdon confirmed that she was aware of a project called Getting into Reading and that Hillingdon MIND also ran a scheme.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 19 Page 105 In terms of engaging with volunteers and in particular those from ethnic minority backgrounds, Members heard that Hillingdon MIND were the leaders in this field and had successfully developed links across different communities.

Resources

The Committee learnt at the September meeting that Hillingdon Council spend on mental health services was in line with those of comparator councils. It also spends similar proportions of its budget on mental health services as other Greater London boroughs. For NHS spending resource allocation was relatively low compared to similar health economies but had improved in recent years.

To help improve patient outcomes and make the most of existing resources the Acting Chief Operating Officer, NHS Hillingdon reported that the Clinical Commissioning Group were looking at profiling the current spend to try and match resources to those areas which required additional funding. This is addressed in the Joint Commissioning Plan.

The Corporate Director, Social Care and Health explained that the Council were looking at an integrated approach to commissioning and that resources were focused on people in community based care rather than expensive residential care facilities.

Officers reported that the Mental Health Partnership Board, which consisted of Council and CNWL representatives, was looking at a ‘whole family approach’ to delivering Mental Health services in Hillingdon. In the current financial climate, it was acknowledged that any change programme would have cost implications and it was important that officers demonstrated affordability and efficiency savings.

The Acting Chief Operating Officer, NHS Hillingdon confirmed that when an assessment was being made about improving outcomes, NHS Hillingdon would examine both the required outcome and the timeframe to achieve this as well as the pathway.

The Mental Health Consultant reported that the recent change in the structure of CNWL had helped to support the shift towards supporting more people at home and fewer in institutional settings. Recent reviews undertaken in 2012 by the Rehabilitation Service as part of the Placement Efficiency Programme had highlighted that cost savings could be made by helping people move towards regaining their independence more quickly than they had in the past. The Placement Efficiency Programme, which in Hillingdon reports to the Mental Health Partnership Board, had identified where further appropriate transfers into the community could be achieved and also cost savings.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 20 Page 106 In relation to the size and efficiency of the Mental Health Services budgetary spend, the Committee were informed that historically this had not been as efficient as possible but there were clear plans to improve this. As well as the Placement Efficiency Programme, officers were looking at a range of innovative options through offering more personalised and tailor-made responses. People were given the opportunity to control more of their own care and receive higher levels of support at home rather than remain in residential care where there was less likelihood of regaining longer-term independence.

In relation to the topic of reducing stigma associated with mental illness, Members heard that at this stage, nothing had been done systematically across Councils. This is picked up in Recommendation 15.

In terms of future challenges, the Committee heard that moving away from risk averse practice and encouraging health professionals and service users alike to consider taking informed risks was a fundamental shift in practice.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 21 Page 107 2 Local Strategies – translating policy into practice, partnership working, enhancing joint working

Partnership Working

At the October meeting, the Committee heard from Rethink and Hillingdon MIND about the services they provided to assist people with mental health issues and how they worked in partnership with the Authority. The Committee also heard from officers within the Housing Department about the ongoing work which was being conducted between them and the Social Care department to assist people in transition.

Rethink

The Committee learnt that Rethink North West London Carer Support Service was an organisation which worked to support families and friends of adults experiencing mental illness in the London Boroughs of Hillingdon and Ealing.

The aim of the organisation was to aid the support and recovery of families and friends affected by mental illness. A key aspect of Rethink’s remit was the work it conducted with carers in a variety of ways to enable them to cope better with their difficult situations. Its Objectives were shared at the October Committee meeting.

The Committee heard that Rethink Mental illness was in the process of launching a new Information System and had developed new carer support planning tools. Councillors emphasised the importance of supporting carers and from personal experience of the service praised the work that they did.

Hillingdon MIND – An Overview

The Committee heard that its vision was: A society that promotes and protects good mental health for all, and that treats people with experiences of mental distress fairly, positively, and with respect.

Hillingdon MIND comprised of a group of users and ex-users of mental health services, professionals and interested individuals who shared a concern about the lives of mentally or emotionally distressed people in the community. Hillingdon MIND took a overarching view of people's mental health and emotional wellbeing. Through projects and services Hillingdon MIND aimed to: • prevent isolation, • offer talking therapies, • enable social inclusion,

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 22 Page 108 • arrange housing opportunities, • and provide services specific to different cultures.

Role and Activities included: • A variety of training options • run sports and leisure activities, • Opportunities for volunteering, and can provide assistance to those with mental health needs arrested by the Police.

Hillingdon MIND recognised the diversity of Hillingdon's multi-cultural community and aimed to set examples of good practice by listening to service users and providing imaginative, innovative and quality services which met their expressed needs and help people gain some control over their own lives.

The Committee learnt that through a variety of clubs and activities they offered opportunities for people from all communities to avid serious mental illness and/or prevent one reoccurring. 2

The Committee heard that Rethink and Hillingdon MIND had worked together in the past but did so less partly due to recent staffing changes. The Committee felt there was an opportunity to develop local partnerships to highlight what each organisation did and to bring residents and carers together.

Recommendation 12 – Supports voluntary sector organisations to improve co-ordination and share best practice and recognise their valuable contribution to the safety net.

In relation to a question about referrals and what the eventual outcomes were, the Committee heard that Rethink took a recovery based approach and considered the carers’ role and what they did. One of their key roles was to provide assistance with housing issues. At present Rethink were looking at the Hayes Group and ways of diversifying this as well as investigating how the age and gender composition of this might be broadened. It was noted that very few men attended therapy groups.

Hillingdon MIND explained they had about 850 service users. In terms of outcomes, MIND offered service users a safe place to meet and gain confidence through projects such as food / catering training and mental health first aid. It also encouraged service users to become involved with voluntary work to gain further confidence and assisted them with the transition from voluntary work back to the work place.

2 More information on the detail of the services can be found in the October 2012 Policy and Overview Committee report

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 23 Page 109 Concentrating on outcomes and how each organisation measured success, Rethink explained that measuring success was not an exact science as service users often had a number of issues which could not be resolved in a single meeting. Based on their experience, Members heard that most service users were guided through a series of structured questions which could take up to six separate meetings. Following these meetings, and based on the responses received, an action plan would be drawn up which would then act as a monitoring tool so that personal development and progression could be assessed.

The Committee were informed that another indicator of success was how both organisations contributed to a reduced number of hospital readmissions and the role they played in ensuring that service users were registered with their local GP so that other health needs such as obesity or diabetes could be addressed. Rethink also referred to the databases they held to monitor service users progress and the service level agreements they had in place with the Council to ensure they delivered the services that Hillingdon residents valued. Officers confirmed that the Council was working with both Rethink and Hillingdon MIND on a number of carer assessments.

In response to partnership working with schools, the Committee heard that Hillingdon MIND had provided some teachers with mental health first aid training and that they had also held training sessions with 5 th and 6 th formers at some secondary schools.

Hard to reach groups within the community

Having heard about the valuable out reach work both organisations did, the Committee highlighted that they were aware there were a number of hard to reach groups and engaging with them had proved a challenge given some communities viewed mental health needs as a social taboo. To address these concerns, the Committee were encouraged to learn that Hillingdon MIND were actively working with Asian, Somali, Nepalese and Afghani groups and had been working with Somali groups for the last 18 months through partnership working with Surhan.

Members highlighted that it many cases, service users with mental health issues often had underlying physical health needs which needed to be addressed. To meet these needs, the Committee were encouraged to learn that Rethink were planning on inviting nurses to events in the future so that that basic health checks including weight, height and blood sugar levels could be conducted.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 24 Page 110 Housing (Housing Needs and Options for persons with Mental Health Needs)

Members were encouraged to learn that CNWL were in regular dialogue with the Council and held frequent meetings. To ensure mental health services improved in the future, CNWL explained the focus was on pre-planning. The Committee heard that there was an emphasis on raising staff awareness, asking the right questions and ensuring that services became involved well before issues reached crisis point.

Recommendation 15 - Ensure that staff, especially those officers that work in Supported Housing and Social Care who are in the first line of defence have Mental Health First Aid Training (from existing resources) .

The Committee recognised that independence and the ability for someone to shape and control their own life were important factors for continued emotional well-being. As such it was essential that the review examined those measures the Council was taking to assist people with mental health issues live independent lives by looking at the transition within and between services. The Committee learnt that there were well-established processes to refer people from mental health services to Council housing advice services.

It was noted that the Housing Department offered a wide range of universal services which included: • Advice – landlord/tenant, mortgage arrears, relationship breakdown, mediate within households, looking for accommodation • Managing the housing register • Homelessness assessments • Visiting vulnerable customers at their home and liaison with hospital wards. • Manage lettings to permanent, temporary or private sector housing. • Access arrangements for supported housing

Details of further services provided by the Housing Department are listed in Appendix 8.

• More specifically, the Committee learnt that a series of assessments relevant to their housing tenure and need were available to service users with mental health needs. This also included signposting to additional services provided by other agencies.

The Committee were informed that in relation to Mental Health Supported Housing and Floating Support Services, there were: • Currently a total of 66 units of supported accommodation for people with mental health needs.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 25 Page 111 • For short term support there were 25 units of short term support and 9 units of long term support provided by Look Ahead at Hayes Park Lodge, Hamlet Lodge and Hornbeam Road. • 32 units of short and long term supported accommodation provided by Hestia at Hutchings House, Cowley Road, Myddleton Road, Sidney Close, Ivybridge Close and Brambles Farm Drive. • 66 units of mental health floating support provided by Hestia to people living in independent accommodation across the Borough.

The Committee heard that an additional 42 units were planned and the Council was working in partnership with CNWL on placement efficiencies to develop a wider supported housing sector. In comparison with other London Boroughs, the Committee were encouraged to learn from the Director of Operations and Partnerships, CNWL that Hillingdon had more supported housing provision than neighbouring boroughs.

Having been informed about the housing options available to people with mental health issues, the Committee asked officers to provide further clarification about the reasons why rents arrears might accrue during a probationary tenancy period. Officers explained that service users not knowing how to access housing forms or understanding some of the questions were common factors. In some cases there were also ongoing issues around housing benefit claims.

To improve partnership working between Council departments and specifically between Mental Health Services and Housing the Committee proposed the following recommendation:

Recommendation 9 – That Cabinet welcomes the work to further improve the links between Mental Health Services and the Council’s Housing Teams including:

Identifying a link in each community team to work with the Housing lead officer

establishing regular forums:-to discuss and explore appropriate housing options for those service users in the community who may end up being evicted due to mental health issues

improved joined up working to sustain tenancies

The Committee agreed it was vital to ensure there was sufficient assistance available to all tenants at the outset of their tenancy to ensure all parties were aware of their obligations (as tenants).

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 26 Page 112 Members heard that the use of Telecare and Telemedicine, in conjunction with other community support, could assist some people both in terms of routine monitoring and assistance and at times of crisis. It was noted that there was greater potential for its use in relation to mental health. Based on the knowledge gained from their recent review on assistive technology the Committee were keen that the opportunities this could provide should be investigated for people with mental health needs:

Recommendation 3 - Promotes the greater and effective use of Assistive Technology (Telehealth) to support and enhance the daily lives of mental health service users and those with additional disabilities.

Concern was raised about the levels of support available to people with mental health needs across the Borough and whether or not there were some areas which had less support than others. In response officers explained that services were Borough-wide. Any issues about local access should be picked up in the new Joint Commissioning Plan and CNWL were looking at using existing community resources in innovative ways to ensure there was enhanced service provision.

The Committee enquired whether the community was necessarily the best place for recovery for someone with mental health needs. In response, the Councillors heard that many persons with mental health needs had been through the acute service and then had progressed to housing options as their health had improved. Clearly a balance needed to be struck between an individual’s ability to cope and their housing needs it was agreed that finding the most appropriate form of accommodation was about making links between recovery and the community as a whole.

Concern was raised about those people with mental health needs which were non-compliant with their medication and whether there were ways of supporting them. The National Service Framework 1999 introduced the concept of assertive outreach and a model of service to engage and manage those who were hard to reach and difficult to engage, however, this service is now part of the three service lines. It was suggested that the Recovery College could play an important role in educating services users, carers and attendees of the importance of taking prescribed medicines at the allotted times however, it was recognised that there would always be some people who would be non-compliant.

Where possible, bed and breakfast accommodation is avoided. However, in those cases where there were no other short term options available, the Council seeks self contained bed and breakfast accommodation and ensure that housing officers and out reach support visit to assist them.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 27 Page 113 Areas for improvement

Clearly considerable efforts were being made through partnership working to assist those with mental health needs access the services they required. However the Committee noted that there were several areas for improvement and suggestions included: • Improving existing links by identifying a link worker in each community team to work with housing lead officer. • Establishing regular forums: to discuss and explore appropriate housing options for those particularly difficult service users in the community who may end up being evicted due to mental health issues, but who still require accommodation which is not supported or residential due to vulnerability. • A greater need for joined up working to sustain tenancies.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Review Page 28 Page 114 3 Service Users / Partnership working

Clearly any review of adult community mental health services would not be complete without incorporating the views of service users. To ensure the Committee received a representative snap shot of how services were perceived, the Committee visited the social group run by Hillingdon MIND based at Mead House and also invited several service users to attend the November committee meeting. All the views recorded were anonymous.

For many at Mead House the general perception of service users which was that it was a popular service, providing structure to the day, which most users chose to attend several times a week. The Committee were encouraged to learn that Mental Health staff were well liked and respected by service users who knew that most staff would be conversant with their respective medical histories and so were best placed to provide timely assistance ,advice and support to them.

As well as being popular for providing hot lunches at reasonable cost, most service users acknowledged that Mead House provided them with a safe environment in which to meet people. It also enabled them to make new friends and develop support networks which were essential to overcoming the feelings of social isolation which accompanied many of the conditions people faced. Many of the opinions expressed were positive but there were of course some reservations as well.

In terms of general concerns, service users explained that they were often limited to attend their nearest adult community mental health resource centre because they only travelled by foot because they found using public transport too stressful. Another point of concern related to weekend provision. Many service users explained how they often found their health would decline over the weekend. Although some service users were aware there was weekend provision based at the Pembroke Centre in Ruislip Manor, many explained that, as this was located in the north of the Borough, it was difficult to get to as there were travel cost and timings issues to consider.

The Committee heard that in periods of crisis, many service users had high levels of contact with their key workers. However, when their condition had stabilised or their needs were not as acute there were often long periods without any contact. On this basis, some service users questioned how mental health professionals, key workers or care co-ordinators were able to monitor their health effectively or be in a position to note any changes to their mental health needs and as such were less likely to act in a preventative way to ‘triggers’.

The Committee noted that triggers were factors which might result in changes to mental health needs and could include: • Anniversaries Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Page 29

Page 115 • the Christmas holiday period • apprehension about benefits or housing applications • or the forthcoming changes to benefits

There were also contrasting views about the help available with housing provision and the opinion was expressed that if a person currently required assistance with Housing Needs, the onus was on the service user to request help. The Committee felt that if a change of mindset or cultural shift could be introduced and a basic assumption introduced that everyone needed help and all the service user needed to do was decline this, there would be less likelihood of people ‘falling through the net’.

(The learning from Mill House about Recovery work, the Riverside Gym about physical well-being and the Bike Project – Uxbridge can be found in Appendix 9.)

Recommendation 14 - Works with service users to more consistently challenge stigma against mental Health service users and produce a realistic programme projecting positive images of mental health.

Service Users Experiences as shared at Committee

In addition to the site visits which were conducted in early November, the Committee also invited several service users to attend the November Committee meeting to share their views. At this meeting the Chairman invited each witness to express their views and experiences of service provision in Hillingdon and the following points were noted. Services that were appreciated included:

• The range of day services at Pembroke House; • Specific community mental health services for Asian communities • Providing volunteer befriending services • Aston House – in particular social activities, guitar classes and a gardening group • Support networks through Café Mind • Social groups through the Oak Tree Group at Christ Church • Most service users they knew, had either a key worker of care co- ordinator that could be contacted if they felt unwell during the day; and • The promotion of positive images of mental health through the Time for Change programme at Christ Church

Concerns expressed included: • availability of weekend services • a lack of a café facility at Pembroke House • inadequate crisis services out of ordinary office hours Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Page 30

Page 116

Responses from officers acknowledged:

• that better performance in relation to supporting carers was necessary • more could be done to support leisure and library staff in supporting people with mental health difficulties; • further consideration was necessary of improved weekend access at Redford House • ensuring that the new joint commissioning plan is focussed on patient outcomes; and • that demonstrating with precision value for money in preventative mental health services was difficult.

Officers agreed that leisure, libraries and adult education staff could benefit from awareness training so they were better equipped to direct service users to information, advice and guidance

Recommendation 6 - Ensure procedures that CNWL and the Council as employers support people with mental health problems in returning to work.

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Page 31

Page 117 Carers’ Views

Carers are highly valued and play a vital role in supporting family members who are sick, infirm or disabled. There can be little doubt that the families of those with mental health issues are affected by the condition of their near ones. Families are a source of practical help and personal care but also give emotional support to their relative with a mental health issue. Therefore the service is dependent on the carer, and their well-being is directly related to the nature and quality of the care provided by the carer.

At the Rethink Carer’s Group meeting, the Committee heard that these demands often brought significant levels of stress for the carer and did affect their overall quality of life including work, socializing and relationships. Research into the impact of care-giving shows that one-third to one-half of carers suffer significant psychological distress and experience higher rates of mental ill health than the general population. In addition, the Committee learnt how being a carer could regularly raise difficult personal issues about duty, responsibility, adequacy and guilt.

Carers explained that caring for a relative with a mental health issue was not a static process as the needs of the care recipient altered as their condition changed. Moving forward, studies and research have shown that developing constructive working relationships with carers, and considering their needs, is an essential part of service provision for people with mental disorders who require and receive care from their relatives.

All carers in the group had relatives and loved ones who received mental health services. The group felt that community mental health provision could be improved. They explained that there were issues with communication and staff attitudes. They gave examples of situations where they felt mental health professionals could have been more helpful, sympathetic and courteous. They felt that written correspondence and telephone calls were often not responded too in a timely way. The framework of working together in partnership was often compromised by a culture of not sharing information due to confidentiality.

To improve adult community mental health services in the future, the Committee asked carers for their specific suggestions, these included: -

• Improved local services • Crisis provision 24hours a day ,7 days a week • A timely response to letters and telephone calls • Improved links and communication with the mental health inpatient unit • Better publicity of the groups and activities available at the mental health inpatient unit

The themes identified by Carers’ are included as Appendix 11. Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Page 32

Page 118

These issues are neither unique to Hillingdon nor unique to mental health. They are themes which have been reflected in a national patient survey in which all mental health trusts participate, where specific questions are asked about the quality of care. This can be broken down to a local level and would provide useful qualitative data on the quality and standard of care received in Hillingdon.

In Witness Sessions officers confirmed that health and social care staff had an opportunity to improve its engagement of carers and this had been included in action plans. It was acknowledged that carers had a vital role to play in reducing the number of admissions or readmissions to care services (and hence costs) and it was essential to better establish what the needs of carers and families were so CNWL could provide improved support.

Upon receiving this feedback CNWL suggested that the following actions could improve the experiences of Carers:

• Introducing mechanisms to capture more effective real-time feedback from carers as often their issues have built up over a long period of time and therefore make is very difficult to deal with. • Assisting Carers in looking at ways to feel empowered and also contribute to service developments more than they do now. • CNWL will work with Rethink to ensure that the contract reflects those outcomes needed to support carers. • Consider recovery courses to support carers but also for them to contribute to staff training- involve carers in designing(we are already doing this) • Ensure that a more coordinated approach to engagement as currently rather ad hoc and not joint.

To hold CNWL and the Council to account and to improve service provision in the future the Committee recommended that:

Recommendation 13 - Produces a report for the Cabinet Member and Committee on the views and experiences of mental health service users and carers and how they have been acted upon.

Recommendation 5 - Develop a mental health carers strategy for approval by the Cabinet Member, to improve services for carers in Hillingdon, including a commitment to needs and role of carers, clarity on services and improved communication. ….

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Page 33

Page 119

Closing Word

Good mental health is essential to our quality of life and to our economic success. Given that statistically, a mental health issue is likely to impact on one in four persons in their lifetime, ensuring there is sufficient service provision is a significant challenge. To assess where some of these challenges lay, the Committee heard from a number of stakeholders and at this point, the Committee would especially like to thank those service users and carers who shared their personal journeys with us.

Our review highlighted just some of the work undertaken by the Council in partnership with CNWL and the voluntary sector to support people with mental health issues in their own homes and communities. While we commend this support, we found that in particular there was scope to improve crisis provision, transition arrangements within and between services and also strengthen partnerships with carers.

Our review makes a series of recommendations which address our lines of enquiry, and seek to ensure that current support is maintained and developed in the future. In particular, we saw the review as an opportunity to improve outcomes for people with mental health problems and those that care for them and sought ways of strengthening the Council’s partnership with CNWL to help deliver more integrated services. (Subject to Cabinet’s approval, these recommendations will be taken forward by the Council and CNWL and the progress made will be formally reported to POC).

Finally, the review identified that although a range of support is available, it can only be of use if service users and carers are aware such help exists. The communication and signposting of services are therefore vital and we welcome those improvements and actions which are currently underway across the Mental Health Partnership to ensure help and support are as accessible as possible. I remain concerned that because Mental Health is such a widespread issue, new information and evidence creates an ever-changing picture. This has qualified our confidence that we have covered all bases -either as a Committee or as a Council. I suggest, therefore that it will be necessary to monitor progress with the recommendations more closely than is our usual Committee practice.

Cllr Judith Cooper Chairman

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Page 34

Page 120 Background Documents

Appendix 1 to 6 – The information packs considered at the September 2012 meeting

1 National Context – Summary of ‘No Health without Mental Health’ 2 Contextual Information for Hillingdon – data informing the new Commissioning Plan 3 Performance Data 4 Access to Services 5 Organisational Structure 6 National examples of best practice

Appendix 7 - Methodology

Appendix 8 – Asian Support Groups

Appendix 9 – Housing Support available to people with mental health needs

Appendix 10 – Site Visits held on 1 and 2 November 2012

Appendix 11 – Site visit to Rethink Carers Group meeting, 12 November 2012.

Appendix 12 – Witnesses and contributors to the review

Social Services, Health & Housing Policy Overview Committee Major Review Adult Community Mental Health Services - 2012/2013 Page 35

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Page 122 Information pack 1.1 National Policy The way forward: No health without mental health: A cross-government mental health strategy for people of all ages: Translating the vision into a reality:

More people will have good mental health More people with mental health problems will recover Page 123 More people with mental health problems will have good physical health More people will have a positive experience of care and support Fewer people will suffer avoidable harm Fewer people will experience stigma and discrimination The way forward: No health without mental health: A cross- government mental health strategy for people of all ages: Translating the vision into a reality:

1 More people have better mental health 2 More people will recover 3 Better physical health

Self reported wellbeing (PHOF) Employment of people with mental illness (NHS OF) Excess under 75 mortality rate in adults with severe mental illness (NHS OF & PHOF, Placeholder Rate of access to NHS MH services by 100,000 People with mental illness or disability in settled population (MHMDS) accommodation (PHOF)

Ethnicity of detained patients (MHMDS) The proportion of people who use services who have control over their daily life (ASCOF) 1st time entrants into Youth Justice System (PHOF) IAPT recovery rate (IAPT Programme) School readiness (PHOF)

Emotional wellbeing of looked after children (PHOF,

Page 124 Placeholder)

Child development at 2-2.5 years (PHOF, Placeholder)

IAPT: Access rate (IAPT Programmes)

4 Positive experience of care and support 5 Fewer people will suffer avoidable harm 6 Fewer people experience stigma and discrimination

Patient experience of community mental health Safety incidents reported (NHS OF) National Attitudes to MH survey (Time to Change) services (NHS OF) Safety incidents involving severe harm or death (NHS Press cuttings and broadcast media analysis of stigma (Time Overall satisfaction of people who use services OF) to Change) with their care and support (ASCOF) Hospital admissions as a result of self harm (PHOF) National Viewpoint Survey – discrimination experienced by The proportion of people who use services who people with MH problems (Time to Change) say that those services have made them feel safe Suicide (PHOF) and secure (ASCOF) Absence without leave of detained patients (MHMDS) Proportion of people feeling supported to manage their condition (NHS OF)

Indicator to be derived from a Children’s Patient Experience Questionnaire (NHS OF, Placeholder) The way forward: No health without mental health: A cross-government mental health strategy for people of all ages: The vision: The strategy aims to bring about significant and tangible improvements in people’s lives. Achieving this for everyone will mean that;

1 Mental health has “parity of esteem” with physical health within the health and care system 2 People with mental health problems, their families and carers, are involved in all aspects of service design and delivery 3 Public services improve equality and tackle inequality 4 More people have access to evidence-based treatments 5 The new public health system includes mental health from day one 6 Public services intervene early 7 Public services work together around people’s needs and aspirations 8 Health services tackle smoking, obesity and co-morbidity for people with mental health problems 9 People with mental health problems have a better experience of employment

Govt priorities: £400m investment in NICE-Approved Psychological Therapies

Page 125 Drive improvements in the quality of mental health services including development of a payments system based around the needs of people accessing services; quality and outcomes indicators will be embedded in this new approach; commissioners will ensure that providers assess and improve their services in line with relevant standards in relation to; •User experience •User involvement •Clinical outcomes Commissioners to develop levers to drive improvements in service quality

NHS Equality Delivery System will •help NHS services address the needs of people with mental problems as an equality (disability issue) •ensure that the mental health needs of Equality Act protected characteristic groups are understood and addressed •ensure that all organisations meet their equality and inequality obligations in relation to mental health and that they ensure equality of access and outcomes for groups with particular mental health needs, which include the most vulnerable in society For the first time the NHS has a duty to reduce health inequalities

Mechanisms will be developed for effective: •commissioning •monitoring (development of a national mental health dashboard) of mental health services delivery

Mental health will be at the heart of the new public health system; Public Health England will: •integrate mental health and wellbeing throughout all its key functions •Provide local leadership in promoting better mental health for all No health without mental health: A cross-Government mental health outcomes strategy for people of all ages A Call to Action

Page 126 No health without mental health: A Call to Action

Mental health and wellbeing 1 More people will have have a fundamental impact on good mental health our chances in life. Mental • More people of all ages and backgrounds wellbeing increases longevity will have better wellbeing and good and the capacity to self care. mental health; • Fewer people will develop mental health problems – by starting well, developing well, Mental health problems affect one in four of us at working well, living well and ageing well; some time in our lives. As well as being a major cause • More children will have the positive start in of distress for individuals and their families, they cost life needed to experience good mental health society an estimated £105 billion every year though and wellbeing over the life course; lost productivity and avoidable costs for the criminal justice system as well as the costs of care and support. 2 More people with mental The signatories to this statement recognise there is health problems will recover an urgent need for co-ordinated action, starting from the earliest years in life that will improve the mental • More people who develop mental health health and wellbeing of the population year on year, problems will have a good quality of life – and the life chances and recovery rates of people greater ability to manage their own lives, who experience mental health problems. stronger social relationships, a greater sense of purpose, the skills they need for living and working, improved chances in education, To this end we pledge to better employment rates and a suitable and work together to deliver these stable place to live; shared objectives contained in 3 More people with mental the Government’s mental health health problems will have outcomes strategy No Health good physical health without Mental Health: • Fewer people with mental health problems will die prematurely, more people with mental health problems will have better physical health and more people with physical ill health will have better mental health;

Signatories: Richard Webb, Joint Chair, Mental Health Network ADASS; Val Huet, Chief Executive Officer, British Association of Art Therapists; Faye Wilson, Deputy Chair, Mental Health Committee, British Association of Social Workers; John Hanna, Director, Policy Unit, Division of Clinical Psychology, British Psychological Society; Sean Duggan, joint Chief Executive, Centre for Mental Health; Dr Stephen Battersby, President, Chartered Institute of Environmental Health; Maggie Jones, Chief Executive, Children England; Genevieve Smyth, Lead Professional Affairs Officer, College of Occupational Therapists; Paul Burstow MP, Minister of State for Care Services, Department of Health; Professor Lindsey Davies, President, Faculty of Public Health; Helen Dent, Chief Executive Officer, Family Action; Andrew McCulloch, Chief Executive, Mental Health Foundation; Steve Shrubb, Director, Mental Health Network, NHS Confederation; Professor Carolyn Steele, Chair, Mental Health Providers Forum; Paul Farmer, Chief Executive, Mind; Jeremy Clarke, Chair, New Savoy Partnership; Paul Jenkins, Chief Executive, Rethink; Professor Helen Lester, mental health lead, Royal College of General Practitioners; Ian Hulatt, Mental Health Advisor, Royal College of Nursing; Professor Dinesh Bhugra, President, Royal College of Psychiatrists; Benita Refson, OBE, Director, The Place2Be; Martina Millburn, Chief Executive Officer, The Prince’s Trust; Sue Baker, Director, Time to Change; Liz Felton, Chief Executive, Together; Angela Mawle, Chief Executive, UKPHA; Sarah Brennan, Chief Executive, YoungMinds; Barbara Rayment, Director, Youth Access; Fiona Dawe, Chief Executive Officer, YouthNet; Pam Webb, Head, Zurich Community Trust. Page 127 No health without mental health: A cross-Government mental health outcomes strategy for people of all ages

A Call to Action

4 More people will have The Cabinet Sub-Committee a positive experience of on Public Health will oversee care and support all the strands of work on • Care and support, wherever it takes place, mental health undertaken by should offer access to timely, evidence-based government departments in interventions and approaches that give people the greatest choice and control over order to raise the proﬁle of their own lives, in the least restrictive mental health and to ensure environment and should ensure that people’s appropriate action is taken, human rights are protected; to help implement the strategy. 5 Fewer people will suffer avoidable harm The Cabinet Sub-Committee on Social Justice will tackle many of the underlying issues which • People receiving care and support should contribute to poor mental health. A Mental Health have conﬁdence that the services they use Strategy Ministerial Advisory Group of key are of the highest quality and at least as safe stakeholders, including people with mental health as any other public service; and problems and carers, will be established to work in partnership to realise the Strategy. 6 Fewer people will experience stigma and discrimination The strategy recognises that improved mental wellbeing and the reduction of mental ill health • Public understanding of mental health will require the efforts of many agencies. It sets out improve and, as a result, negative attitudes the central role of local government and the NHS, and behaviours to people with mental health as well as other public sector bodies, and the distinct problems will decrease. contributions of the voluntary sector, employers and other groups in society that will all be crucial to the strategy’s success. All the organisations who are signatories to this Call to Action are committed to working together to ensure a co-ordinated approach to policy making that supports delivery of the above shared objectives. All of us have a part to play in promoting the importance of good mental health and in challenging negative attitudes in our society.

Please note that the term ‘people’ is used as an inclusive term throughoutPage this 128 document to mean children, young people and adults. No health without mental health: A cross-Government mental health outcomes strategy for people of all ages

A Call to Action

Key areas of action for mental health

• Fewer people will suffer from stigma and • Ensuring people with severe mental health discrimination as a result of negative attitudes problems receive high quality care and treatment and behaviours toward people with mental health in the least restrictive environment, including problems by improving public and professional inpatient and secure settings, in their homes attitudes and reducing the institutionalised and in alternative settings – when, for example, discrimination inherent in many organisations, they are receiving care from crisis services; including support services; • Fewer people with mental health problems • Ensuring a good start in life; should have poor physical health;

• Promoting mental health across the life course; • Fewer people with mental health problems should die prematurely; • Ensuring mental health has parity of esteem with physical health in terms of public health • Fewer people with physical ill health, including and care services; reducing the social, economic those with long-term conditions and medically and the wider determinants of mental ill health unexplained symptoms, should have mental across all ages; reducing the inequalities that can health problems; both cause and be the result of mental health problems including, for example, social isolation • Services should be designed around the needs amongst older people; promoting and supporting of individuals, ensuring appropriate, effective comprehensive and just housing policies which transition between services when necessary, will provide the foundation for good physical and without age-based, professional or organisational mental health and wellbeing; barriers and attitudes getting in the way;

• Identifying mental health problems and • Wherever possible, services should listen to and intervening early across all ages; involve carers and others with a valid interest and provide them with information about the • Ensuring equity in access for all groups, including patient’s care, to ensure that ‘conﬁdentiality’ the most disadvantaged and excluded, to high does not become an obstacle to delivering safe quality appropriate services; services; and

• Building care and support around outcomes • Improved services will result in fewer people that matter to individuals to enable them to suffering harm from the care and support they live the lives they want to live, including good receive; fewer people harming themselves and relationships, purpose, education, housing and others; and further progress on safeguarding employment; children, young people and vulnerable adults.

• Offering people a choice of high quality evidence- and practice-based interventions, including psychological therapies; The mental health strategy and supporting documents can be found at www.dh.gov.uk/mentalhealthstrategy

Published February 2011 Page 129 . Information Pack Two Page 130 Data to support proposed Joint commissioning plan for adults 2012 – 15 Hillingdon profile: Population profile and the health and social care needs of the population Page 131 Hillingdon Profile: Hillingdon Borough: Unique in terms of London/England 2nd largestLondonBoroughcovering42sqmiles Significantdiversityinthepopulationwith30%fromThemigrationrateis139per1,000withannual with22wards ablackandminorityethnicbackground movementinandoutoftheBoroughof35,000 andnetannualmigrationofover1,100people 3demographiczonesrangingfromverydeprived toveryaffluent;thenorthoftheBoroughissemiͲ ruralwithlargesectionsofgreenbeltland;the southoftheBoroughismoreurbananddensely populatedwithsomeareasfallinginthemost deprived20%nationally

Boundarieswith3LondonBoroughsand3Shires

OverhalfoftheBoroughiscountrysideincluding canals,rivers,parksandWoodland

266,100estimatedpopulation(2010)with8%

Page 132 increase2002Ͳ10: •10%riseinunder15yrolds •15.4%riseinthoseaged75yrsandover

HeathrowairportsitswithintheHillingdon boundary;with2immigrationdetentioncentres. ThelargestRAFairportislocatedatNortholt

Significantlyhigherproportion15– 19yrolds comparedwithLondonandEngland Hillingdon:Healthandsocialcareorganisationandissues

TheBoroughisdividedinto3localities: ThereissignificantpressureonhealthandHillingdonhas49GPPractices RuislipandNorthwood:86,148population socialcareresourcescausedby: UxbridgeandWestDrayton:86,139population AnincreasingolderpopulationHillingdonhospitalgainsthe HayesandHarlington:88,730population risingratesofdementiaandfrailtyinthemajorityofitsincomefrom olderpopulation Hillingdonresidents Increasesin“lifestyle” conditionsof childhoodobesity Increasesinalcoholrelatedhospital admissions Thesedonotimpactconsistentlyacross theBorough Hillingdon Profile: Hillingdon Borough: Unique in terms of London/ England Environment Hillingdonhasaconsiderablenetworkofgreenspacesaswellas riversandcanals. Thesenatural environmentsareessentialtothediversityoftheboroughaswellaspromotingahealthywayof lifeandhelpingtomitigatetheeffectsofclimatechange. Hillingdon'spopulationisexpectedto growandtherewillbeincreasingpressureonthenaturalenvironmenttoaccommodategrowth, andtomanagetheincreasinghumanimpacts.

Leisure Hillingdon'sborough'sleisurefacilitiesofferavarietyofsportsandfitnessclasses. Hillingdon SportsandLeisureComplexinUxbridgeincludesanew50metrepool,outdoorpoolandsport facilities.Botwell GreenSportsandLeisureCentrehasanew25mpoolandsportsfacilities. RuislipWoodscovers726acreswithfootpathsandcyclepaths. RuislipLidofeaturesa60acre lake,anarrowgaugerailway,beachandwatersplash area.Therearefourpublicgolfcoursesin Ruislip,Northwood,Stockley ParkandUxbridge.Hillingdon's17librariesarebeingrebuiltor refurbishedtocreateamorerelaxedwaytoenjoybooksandbecome thecentreofthelocal community. Thereisalsoamobilelibrarywhichtourstheborough. Page 133 Economy Hillingdonhasastronglocaleconomyandstrongpotentialforanimprovingposition.The presenceofHeathrowAirportprovidesconsiderablebenefitsforthelocaleconomy.Stockley ParkandUxbridgeareestablishedlocationsformajorcorporateheadquarters.Hayeshasmajor regenerationopportunities,andWestDraytonalsohaspotentialinthelongerterm. UnemploymenthasnotsignificantlyaffectedHillingdon'seconomy todate.Hillingdoncontinues tohaverelativelyhighproportionsofeconomicallyactivepeople.

Transport Hillingdonisdirectlyservedbythreeofthecountry'sbusiestmotorwaysnamelytheM25,M4 andM40.TheroadnetworkinHillingdonisstrongestfromeasttowestwiththeA4andM4in thesouth,A40runningcentrallyandtheA404inthenortheast. Railroutesconnecttheborough withcentralLondon,ThamesValley,ChilternsandthewestͲcountry.NorthͲsouthtraffic movementsintheborougharemainlyservedbytheA312HayesByͲpass,A437Ͳ A408Yiewsley BypassandM25,alongthewesternperimeter.Journeytimesonnorthsouthtripscanbe unreliable,especiallyacrosstheA40butalsobetweentheA4andA40.Publictransportprovision inHillingdonisalsobetterwhentravellingeastͲwestratherthannorthͲsouth.Hillingdon'sCore StrategyseekstoaddressthechallengeofpoornorthͲsouthlinks. Hillingdon'scarbonemissions fromtransportationaremuchhigherthantheLondonaverage.The numberofpeopletravelling intoandoutofHillingdonismajorcontributingfactor.Ithasalsoledtoimpactsonairquality, particularlyaroundHeathrowwherehotelsandofficeaccommodationhavebeendeveloped. Hillingdon: Ethnicity of the population

In201030%ofthepopulationwasconstitutedofpeoplefromblack andethnicminoritycommunities;thiswasariseof20%from2001;a further20%increaseisprojectedto2020

Therearesignificantnumbersofasylumseekersandrefugeesin Hillingdon;puttingsignificantpressureonprovidersintermsofthe needtounderstandandrespondtoculturaldifferencesandtheneed torespondtoindividualbehaviours Page 134 Hillingdon Profile: Health and social inequalities

OverviewofHillingdon(HillingdonHealthProfile) Page 135

Source: APHO Health profiles, 2011 Hillingdon Profile: Health and social inequalities Overview of Hillingdon Page 136 Hillingdon Profile: Health and social inequalities

Hillingdonis157th mostdepriveddistrictinEngland(n=326)and24th out ofthe33boroughsinLondon

Thereare15,340childrenlivinginpovertyinHillingdon.Thelevelsof toothdecayandphysicalactivityamongchildrenareworsethanthe Englandaverage

WorsethanEnglandaverageratesfor: •Percentageofpeoplediagnosedwithdiabetes •HospitaladmissionsrateforalcoholͲrelatedharm •Therateofnewcasesoftuberculosis

RateofCDVandcancermortalityvariessignificantlywithinthe Borough

Overthelast10years,theratesofdeathsfromallcausescombinedand Page 137 ofearlydeathsfromcancerandfromheartdiseaseandstrokehave fallen.Withtheexceptionofthedeathratefromallcausescombinedfor women,whichisnowlower,therateshaveremainedsimilartothe Englandaverages.

ThereissignificantinequalityinHillingdon: • Lifeexpectancycanvarybyasmuchas8.1yrsformenand7.4yrsfor women •ForthemostdeprivedcommunitiestheSMRhasbeenworseningwhile theoverallratehasbeenimproving

Theburdenofdisabilityishighwithsignificantnumbersofpeople needingsupportforphysicaldisabilities,frailelderlyetc

Thestandardisedmortalityratio(SMR)fortheBoroughissimilarto Londonandimproving Priorities for NHS Hillingdon and the London Borough of Hillingdon

HCCGandLBHrecognisetheconnectionbetween PrioritythemesforactionfromJSNAand broadercommunity,environmentalandsocial jointLBH/NHSHillingdonwork: factorsandhealthandtheconnectionbetween 1Promotinghealthierlifestyles physicalandmentalwellbeing.The2 Vision:Toensurethatpeoplewhoneed organisationsarethereforeincreasingly healthandsocialcaretreatmentand 2ImprovedcoͲordinationofjointhealth adoptingajointapproachandagreementof. supportareempoweredandsupportedto andsocialcareworking crosscuttingthemesandajointvision: chooseandcommissionservicesthatwill 3Safeguarding,preventionandprotection meettheirspecificneeds,helpingthemto movetowardsrecovery,regaining 4CommunityͲbased,residentͲfocussed meaningfullivesasindividualswhoare services activemembersofthecommunitiesin 5Promotingeconomicresilience whichtheyliveandwork. 6Preservingandprotectingthenatural environment Page 138 7Reducingdisparitiesinhealthoutcomes HCCGidentifiedthefollowingobjectivesforhealthcareservices:

•Demonstrateandevidenceequalityandconsistencyinaccesstoservicesand Arisingfromthedesiretoensurethe healthoutcomeswithinHillingdonthatcontinuesareductioninhealthinequalities personalisationandlocalisationofservices,LBH’s •Developmentofprimaryandcommunitybasedcarethat: aimistoensurethatpeopleareempoweredand • Improvesthequalitycare supportedtochooseandcommissionservicesthat • Improvesaccess meettheirspecificneedsandhelpthemtomove • Reducesvariationinclinicalpractice towardsRECOVERY sothattheyregaintheirlives • Improvespatientsatisfactionandreportedoutcomes aseconomicallyactivemembersofthe • ImprovesmanagementofpatientswithLTCs communitiesinwhichtheyliveandwork. • Developmentofpatientandpublicengagementthatensurespublic involvement • Achievingfinancialbalanceandaviablelocalhealtheconomywithinexistingand CurrentlyLBHspendsasignificantproportionofits futureresources,withparticularemphasisonrobustcontractmonitoringacross socialcarebudgetonresidentialcarethatismostly theentirecontractportfolio deliveredthroughinstitutionalisedmodels.Akey • Anexpectationthatallproviderswillprovidetimelyandrobust qualityassured strategyforimprovementthereforerelatestoreͲ data commissioningofmoreindividualisedapproaches •Commissionclinicallyeffectivecare,basedonanevidencebase totheprovisionofbothaccommodationand •CommissioncareinlinewithhealthneedsasidentifiedbytheJSNAandinline support.Thiswillbeachievedthrough“coreand withthehealthandwellbeingstrategy flexiͲmodelsofdelivery”. •Engenderacultureofvalueformoneyunderpinnedbyanunderstandingthatall clinicaldecisionshavefinancialconsequences Hillingdon Profile: Health and social inequalities: Long term conditions including mental health problems

Approximately1in4socialcareclaimantsliveinwardsinthesouthofthe Borough;HayesandHarlingtonhasthegreatestproportionofclaimants withUxbridgeandWestDraytonrankingsecond;thereisaslight variation inagebylocalitybuttheprimaryreasonforclaimsacrossthe Boroughisa mentalhealthproblem

Thereisaneedtosupportpeoplewithlongtermconditionsinto employment,inparticular,thosewithmentalhealthproblems Page 139 Hillingdon Profile: Mental health needs in Hillingdon

Themostcommonmentalhealth probleminHillingdonisanxietyand depressivedisorderswhichaffectover 50%ofpeoplewithmentalhealth problems

Itisestimatedthatinanygivenweek, 10%ofadultsinHillingdonwill experiencedepression– higher thanthe Englandaverage(8%)butlowerthanthe Londonaverage(11%)

Overall,theneedforinpatientservices

Page 140 forseverementalillnessinHillingdonis 20%lowerthanthenationalaverage 40%,whereasonaverageinLondonitis 60%higher

AlthoughthementalhealthneedinHillingdonislowerthanEnglandasawhole,thepicturefitswiththenationalpatternofindicatorsand determinantsthatimpactonmentalhealth.MostadmissionsneedingmentalhealthtreatmentinHillingdoncomefromthesouthoftheBorough. Thesewardsarepredictedtoahigherpopulationincreaseinareasalreadymoredenselypopulatedandmoredeprived.Onaverage, theselocalities showhighersocialdeterminants: •Lowereducationalattainment •Moreunemployment •Morecrime Thescaleofthechallengeissettoescalatewiththeinequalitygapwideninginbothlifeexpectancyandqualityoflife Current mental health services provision Hillingdon: Specialist mental health services profile: Central and North West London Foundation Trust

CentralandNorthWestLondonFoundationTrustisthemainproviderofspecialistandcommunityservicesforadultsinHillingdon:

CommunityServices

Earlyinterventionservice PembrokeCentre MultiͲdisciplinaryteams Assessmentandbrief MillHouse MultiͲdisciplinaryteams treatmentservice Communityrecoveryservice MeadHouse&Pembroke MultiͲdisciplinaryteams Centre InpatientServices Page 141

Rehabilitationservice Colham GreenRoad 15beds Acuteinpatient CraneWardRiversideCentre 18beds FraysWard,RiversideCentre 23beds

Total 41beds

Psychiatricintensivecareunit Colne Ward,RiversideCentre 8beds Hillingdon specialist mental health services 2011/12: Profile of service users

HillingdonAdultsDiagnosticprofile(OpenCaseloads) HillingdonAdultsEthnicProfile(OpenCaseloads)

Psychosis,689,20% OrganicDisorders,44,1% Unspecifiedmental disorder, 0,0% NotStated,69,2% White,2415,66% NotCoded,318,9% Neurotic,stressͲrelatedand Other,268,7% somatoformdisorders,838, ChildhoodDisorders,15,0% 25% Physical&Psychological Syndromes,35,1% Black,240,7%

PersonalityDisorder,277,8%

Psychologicaldevelopment,

Page 142 15,0% Asian,587,16% disordersduetosubstance misͲuse,150,4% Mixed,89,2%

Mental retardation,5,0%

Mood[affective]disorders, 1083,32% HillingdonAdultscommunityservicediagnosticprofile

Psychosis,603,24%

OrganicDisorders,38,2% Unspecifiedmental disorder,0,0%

Neurotic,stressͲrelatedand ChildhoodDisorders,14,1% Hillingdon Adults Gender Profile (Open Caseloads) somatoformdisorders,593,24%

Female, 2143, 59 % Physical&PsychologicalSyndromes, 14,1%

PersonalityDisorder,193,8%

Psychologicaldevelopment,10,0% Not Specified, 4, 0% disordersduetosubstancemisͲuse, 114,5% Not Known, 0, 0% Mental retardation,3,0% Mood[affective]disorders,880,35% Male, 1521, 41 % Hillingdon specialist mental health services performance April 2011 to June 2012: Profile of service users

Employment status: total caseload Employment status: CPA caseload Education,V37olun, tary 4%Work,21,2% N/AͲOther, Education, 264,28% Unemployed, 190,5% 2,030,53% Voluntary Work,61,2%

NotEntered, 98,3% N/Aunder16, N/AͲOther, 3,0% 264,7% NotKnown,1, N/Aunder16, 0% 8 ,0% PaidWork,59 Page 143 NotKnown,19 ,6% ,0% Unemployed, 572,60% PaidWork, 1,122,30%

Accommodation status: total caseload Accommodation status: Care Programme Approach CPA caseload

NonͲSettled, 416,11% NonͲSettled, 120,16% NotKnown, 0%

NotEntered, 71,2% NotKnown,1 , 0%

ed,3,290 NotEntered,Ͳ ,0% ,87% tled,614, 84% Information pack 3.1 Hillingdon Adult Mental Health – Key performance indicators

Hillingdon Caseload at 25/08/2012: 3817

Average Hillingdon Referrals per Week 2012-13 financial year: 193

Achievement of Performance Targets Target Name Target 2010_11 2011_12 2012_12 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 7- day follow 95% 88 100 86 100 94 100 85 100 98 100 up CPA Reviews 95% 94 97 96 96 99 97 98 98 97 98 Delayed <=7.5 19 23 11 13 18 19 6 5 14 8 Transfers of % Care Gatekeeping 90% 94 100 100 100 100 100 89 91 100 96 New EIS 38 9 29 36 48 12 21 29 39 8 12 Cases NHS # Data 99% 98 97 99 99 98 99 99 98 98 98 Completeness Home 509 182 372 572 658 147 260 394 546 120 159 Treatment Episodes Self Directed 30% N/A N/A N/A N/A 1 1.3 1.0 1.2 1.4 8.0 Support Placement 100% N/A N/A N/A N/A 83 61 66 72 N/A 69 Reviews Assessment 60% 29 32 36 65 53 67 67 75 54 48 Waiting Times Carers 30% N/A N/A N/A N/A 4 5 7 15 3 4 Assessments Service Users 100% N/A N/A N/A N/A 11 25 53 64 41 32 receiving review

Headlines Performance has improved over the past 3 years with targets usually being achieved consistently at quarter end.

Additional information is now collected in relation to Self Directed Support, Placement reviews, Carers Assessments and Social Care Reviews These are under-performing but action plans are now in place to address these.

Page 144 Information Pack 3.2 Mental Health Budgets

BUDGET (£000’s) Description Gross Exp Income Net

Staffing Management 67.8 0.0 67.8 Ass & Care Mgmt Mead House 1,253.0 (83.2) 1,169.8 Ass & Care Mgmt Pembroke Centre 362.1 0.0 362.1 Ass & Care Mgmt Mill House 386.4 (27.6) 358.8 MHG - Crisis Team 172.4 0.0 172.4 MH - HOST 117.8 0.0 117.8 Ass & Care Man Com Drugs Team 278.7 (107.4) 171.3 Total Staffing 2,638.2 (218.2) 2,420.0

Residential P&V Nursing 291.5 (6.5) 285.0 P&V Residential 1,943.0 (16.5) 1,926.5 P&V Supported Accommodation 72.2 0.0 72.2 Look Ahead Block Contract 732.7 (26.8) 705.9 Adult Care Scheme 78.3 (27.5) 50.8 5 Hornbeam Road 16.4 (3.5) 12.9 Church Road 5.7 (4.4) 1.3 Total Residential 3,139.8 (85.2) 3,054.6

Community Support P&V Homecare 102.3 0.0 102.3 Direct Payments 47.6 0.0 47.6 P&V Day Care 19.1 0.0 19.1 No Recourse To Public Funds 50.0 0.0 50.0 Substance Abuse Placements 159.7 (5.5) 154.2 Total Community Support 378.7 (5.5) 373.2

Other MH Costs Grants to Voluntary Sector 17.1 0.0 17.1 Legal Costs 9.0 0.0 9.0 Total Other Costs 26.1 0.0 26.1 Management Contribution 50.0 50.0 Totals 6,232.8 (308.9) 5,923.9

Page 145 CNWL Mental Health Budget 2012-13 BUDGET (£000’s)

Description Gross Exp Income Net Assessment and Brief Intervention Team 724 (20) 704 Community Recovery Team 1,390 (180) 1,210 Hillingdon Rehab 116 (49) 67 Total 2,230 (249) 1,981

Analysis of Hillingdon mental health services investment 2011/12: Outliers

Hillingdon Investment by DirectWeighted investment per head provider type Hillingdon InvestmentHIL SHA ONSEnglandLIT SHA ONSEngland Investment £000s % % % % % £ £ £ higher than comparator areas Accommodation 4,216 17.913.8 12.7 9.6 24.623.4 20.2 15.8 * CMHTs 4,104 17.413.2 11.1 13.8 24.022.3 17.7 22.6 Home support 532 2.3 1.7 3.2 2.0 3.1 2.9 5.1 3.3 services Psychological 1,694 7.2 3.9 3.6 3.1 9.9 6.7 5.7 5.2 therapy services (non IAPT) Hilingdon InvestmentLIT SHA ONSEnglandLIT SHA ONSEngland Investment £000s % % % % % £ £ £ lower than comparator areas Psychological 91 0.4 3.4 2.9 3.9 0.5 5.7 4.7 6.4 therapy services (non IAPT) Secure and high2,875 12.217.1 21.3 19.2 16.828.9 33.9 31.6 dependency Table Supplied by NHS Hillingdon * primarily Social Care expenditure

KEY HIL = Hillingdon SHA = Strategic Health Authority ONS = Office of national Statistics

Page 146 Investment in inpatient services (£4,459,000) is less per weighted head of population (£26.1) than the rest of London (£31.4), the Thriving London Periphery (£31.4) and the rest of England (£29.1)

Overall within health services Hillingdon is now 5th lowest funder of mental health nationally

Page 147 Information pack 3.3 --Relative Performance

Health Service information supplied by NHS Hillingdon

Potential areas where Hillingdon is doing well in terms of its population’s mental health Hillingdon has a higher than average investment in counselling services

Hillingdon does well on some aspects of primary care of mental health problems e.g. a higher percentage of patient on CHD and diabetes registers have been screened for depression (89.5% compared to 88.5%)

Hillingdon has a higher than average investment in home support services i.e. community based support

Investment in inpatient services is less per weighted head of population than the rest of London, the Thriving London Periphery and the rest of England

The rate of readmission to inpatient services is low

For its population need, Hillingdon has a larger mental health employment scheme caseload than the London average

Service Performance April 2011 – June 2012 Assertive Following agreement with commissioners that treatment should be outreach provided by other teams within CNWL Early Team caseload has been increasing and is now close to meeting its Intervention target of 38 new cases by year end. This is a cumulative annual service target. Home The target for home treatment episodes was exceeded by 8% treatment 2011/12. The team is continuing to exceed this target service During Q3 and Q4, 89% of admissions to inpatient services were made via the home treatment team (“gatekept”). Through 2012/13, 100% of admissions have been gatekept. This is a cumulative target. Inpatient The rate of readmission is well below target (11%) operating at 3% services on an ongoing basis Delayed transfers of care from inpatient services have been decreasing: Mid 2011 at 10-12% Reduced to 4% in January 2012 Mid 2012 operating at 10-15% delays have been caused by delays within both health and social care Community DNAs for first appointment operated at 10% 2011/12 and have teams increased to 15% for Q1 DNAS for follow up appointments operated at 10% during Q3 and Q4, 2011/12 and at Q1 2012/13 have increased to 17%

Page 148 Potential areas of concern in terms of the mental health of Hillingdon’s population Hillingdon has a higher rate of people in contact with secondary care community mental health services compared to the London average There are ethnic inequalities in admissions to adult psychiatric inpatient services in Hillingdon. The admission rate for white ethnic groups in Hillingdon is 30% lower than the England average for all ethnic groups but the admission rate for black ethnic groups in Hillingdon is 47% higher than the England average Hillingdon has a higher admission rate for alcohol related harm than the London average Expenditure on residential care is greater than Hillingdon’s comparators

*Hillingdon has only a small investment in services that respond to the needs of people with depression and anxiety (Increasing Access to Psychological Therapies initiative)

Hillingdon’s use of secure and high dependency services is low

Hillingdon has no community team for eating disorder or for people with forensic needs

Information relating to Council Services drawn from the most recent national data

1: Percentage distribution of total gross current expenditure on adult social services by client group, 2010 -11 Hillingdon

1. Chart 02: Percentage distribution of Total Gross Current Expenditure on adult social services, 2010-11 Hillingdon

Page 149 Source: PSSEX1

Hillingdon (727) 2a. Nursing and Residential Care: Proportion of Gross Current Expenditure across client types 2010-11 Chart 06 ADULTS WITH MENTAL HEALTH NEEDS (AGED 18-64)

Comparator Average 31.3% Comparator Max 59.5% Comparator Min 15.6% Comparator Ranking: 3 of 33 Hillingdon (727)

2b. Day and Domiciliary Care: Proportion of Gross Current Expenditure across client types 2010-11

Chart 10 ADULTS WITH MENTAL HEALTH NEEDS (AGED 18-64)

Comparator Average 40.9% Comparator Max 69.3% Comparator Min 20.5% Comparator Ranking: 33 of 33

Hillingdon (727) 2c. Assessment and Care Management: Proportion of Gross Current Expenditure across client types 2010-11 Chart 14 ADULTS WITH MENTAL HEALTH NEEDS (AGED 18-64)

Page 150 Comparator Average 27.8% Comparator Max 53.0% Comparator Min 12.8% Comparator Ranking: 5 of 33

Source for all graphs and tables: NHS Information Centre - National Adult Social Care Intelligence Services (NASCIS) Published March 2012 All data relates to the year 2010-2011

Page 151 Information Pack 4 Patient Pathway - POC

Points of Access

Primary Care Counselling Discharged to GP Self referral IAPT

Specialist Services - Older Adults & Healthy Ageing- Assessment & Brief Treatment Team - Forensic ABT -Eating Disorders -Learning Disabilities GP referral Community Page 152 Discharged to GP GP referral to Recovery Early Intervention Repatriation Service Discharged – follow up GP Discharge to GP Presentation Psychiatric Liaison At A&E Team ABT Community Recovery In-patient Home Treatment Team Admission (Gatekeepers to admissions) ABT

Well-being Centre GP ABT Rehabilitation Community Recovery

Courts Placement/accommodation Section 136 Detention Centres Information Pack Five – Organisational Structure

Community mental health services in Hillingdon are delivered jointly through an integrated health and social care service. Joint teams include a combination of Consultant psychiatrists, social workers and community psychiatric nurses (CPNs). Services are arranged under Service Lines – which is a consistent format that cuts across all the London Boroughs that the Central and North-West London Mental Health Foundation Trust (CNWL) serves. An overview diagram is provided on the next page. The Service lines of particular relevance to this Review are:

x Assessment and Brief Treatment - usually he first point of contact when a person is referred on by Primary care Services x Community Recovery – the team responsible for supporting people following a hospital admission x Rehabilitation – the team that supports people who are living in residential and nursing home care

The Service Director responsible for Assessment and brief treatment across the whole Trust is also the Borough Director for Hillingdon. Within each of the service lines there is a team manager and who has day-to-day management responsibility for the management of CPNs and Social Workers. They are supported by Team Leaders. Some are CNWL employees and some are employed by the Council

To support and oversee the professional and statutory responsibilities of the Council there a Service Manager which is a new post. Recruitment for this post is currently taking place. Page 153 Significant resources are invested in both the voluntary and independent sector s. These services are both preventative and support recovery. They include advice giving services, employment and skills support and leisure services that assist people back into everyday life. Significant resources are invested in residential and nursing home care. Please see Information Pack 3.3 for details of expenditure HILLINGDON BOROUGH MENTAL HEALTH SERVICES 2012

Angela McGee, Service Director – Acute Service Line – Dr Con Kelly, Clinical Director Frays Ward / Crane Ward / Colne Ward / HTT Therese Cahir, Service Manager

David Dunkley, Service Director – Rehabilitation Service Line – Dr Andrew McDonald, Clinical Director Colham Green Community Rehabilitation Team Kam Rai Service Manager

Sandra Brookes, Service Director and Hillingdon Borough Manager – Assessment & Brief Treatment Service Line – Dr Julia Palmer, Clinical Director ABT Team / Primary Care Counselling Service / IAPT / Wellbeing Centre Jon Ruddock, Service Manager

Pete Raimes, Service Director – Community Recovery Service Line – Dr Sarah Marriott, Clinical Director Community Recovery Team / EIS Page 154 Paul Russell, Service Manager

Kim Cox, Service Director – Psychological Medicine Service Line – Dr Steven Reid, Clinical Director A&E Liaison / Health Psychology Shaun Hare, Service Manager

Gail Burrell, Hillingdon Manager – Addiction Service Line – HDAS – Dr Jeffrey Fehler, Consultant Addiction Service Director-Anette Dale-Perera ;Clinical Director – Dr Billy Shanahan

Natalie Fox, Service Director – Older Adults & Health Ageing Service Line – Dr James Warner, Clinical Director Cedar Ward / Oak Tree Ward / CMHT Bev Smith, Service Manager

Jackie Shaw, Service Director – CAMHS Service Line – Dr Mike McClure, Clinical Director CAMHS Team

Richard Comerford, Service Director – Offender Care Service Line – Dr Farrukh Alam / Dr Annie Bartlett, Clinical Directors’ Court Diversion Nurse Steve Tutty, Service Manager

Jo Carroll, Service Director – Learning Disabilities Service Line – Dr Scott Galloway, Clinical Director Information Pack 6.1 Some Examples of National Best Practice in Community Based mental health Services

The following examples are taken from the Health Services Journal national awards in mental health.

1. Home Treatment Service - An award-winning project in Scotland is shifting the balance of care from hospital to home support for people

with severe mental health issues. Service user Carl (see case study) below discusses progress with consultant psychiatrist Ihsan Kader (centre) and social worker Hilda Haddon, from NHS Lothian's intensive home treatment team (pic: Chris Watt/UNP). Project details Ɣ Name of service: NHS Lothian intensive home treatment team. Ɣ Aims and objectives: To reduce admissions and readmissions to hospital and support early discharge. Ɣ Cost: £1.6m since October 2008. Ɣ Number of staff: 26, including nurses, psychiatrists, OTs and social workers. Ɣ Number of service users: The team saw 1,588 people between October 2008 and December 2009, 543 of whom received intensive home treatment. Ɣ Outcomes: 93% service users reported improvement during IHTT care and there was a 24% decrease in acute hospital admissions between October 2008 and December 2009.An award-winning project in Scotland is shifting the balance of care from hospital to home support for people with severe mental health issues, reports Louise Hunt An alternative to hospital admission for people with severe mental health problems is helping to speed recovery and reduce pressure on health and social care services. NHS Lothian's intensive home treatment team (IHTT) is Scotland's only 24-hour home support service. Last November it was named the Royal College of Psychiatrists' team of the year. Launched in October 2008, it builds on the work of the intensive home treatment teams established in England, and embraces the ethos of treating people in the community. "Some people do need to be treated in hospital, but others, provided they are safe, can be maintained at home in a comfortable environment," says IHTT consultant psychiatrist Ihsan Kader. This team provides a seven days a week. Service with a dedicated consultant input, Patients are seen within a day of referral,

Page 155 The team of 26 consultants, doctors, nurses and two local authority employed social workers is spread over two sites. Most visits are done in pairs, depending on the expertise needed, and can take place up to three times a day, lasting an hour on average. The average length of contact is three-and-a-half weeks. "The team sees five to six people at any one time so you can build a good relationship with them," Kader says. The treatment approach is making a significant difference to patient recovery times because it is less disruptive to their lives than hospital admission, adds Kader. The average length of stay in hospital for patients with severe mental illness is five to six weeks, and there is usually a period of readjustment when they return. However, those being treated by the IHTT can, to an extent, continue normal daily activities at home. Feedback surveys show most patients and carers are satisfied with the service. Since the IHTT launch the balance of care has shifted from hospital to the community, resulting in fewer admissions and readmissions. "We have managed to reduce the number of people being admitted involuntarily because there is another option," says Kader. "Two years ago they wouldn't have another option if they needed intensive mental health care." When people are admitted to the Royal Edinburgh Hospital, the IHTT works with staff and patients to achieve early discharge, and has reduced by a week the average stay. Although it will take some time before the cost savings from reduced admissions are quantified, the wards are already benefiting from being relatively quieter, which means better patient care. The service is also having a positive impact on social services. The two IHTT social workers employed by Edinburgh Council attend daily meetings to discuss patients' needs. David Hewitson, social work manager for Edinburgh Council and the IHTT, says the service is easing pressure on social services: "Crucially, the team is picking up people whose lives are in distress because of mental illness. Because they are picked up by a medical team and social workers, they receive lots of practical support, such as sorting benefits, that would otherwise have led to chaos and more likely a referral to community services." 2. How long would you wait? Cornwall Partnership FT The initiative The How long would you wait? campaign was set up to raise awareness of psychosis and urge family, friends and work colleagues to reach out to help by intervening early. The campaign aimed to: • Increase referrals to the early intervention team; • Meet commissioners target for first episode cases; • Create a psychosis health promotion post; • Make links with relevant stakeholders to increase awareness of the service; • Attend main public events to raise awareness; • Set up rolling awareness programmes where possible. A striking, two minute underwater film was filmed at a local swimming pool. The film was designed and produced by a crew of young men who have experienced psychosis. It features submerged characters waiting to be rescued, to symbolise the way in which a person’s reality can change when they experience an episode of psychosis.

Page 156 The film was promoted virally through Facebook, Twitter and YouTube. It was also available on a standalone website — howlongwouldyouwait.com A series of eight postcards were produced and distributed throughout the county to direct people to the website and provide referral contact details. The campaign was also promoted with a radio feature and two hour phone in session with BBC Radio Cornwall on the subject of psychosis. Benefits The campaign resulted in increased referrals to the early intervention team: • Between August 2009 and March 2010 there were 91 referrals, whereas in the period August 2010 to March 2011 there were 146. The PCT’s target was 64 new confirmed cases for the campaign — in fact 73 cases were confirmed.

Financial implications A financial incentive was applied by commissioners to meet the referral and confirmed cases target. The project’s success earned the trust £150,000. After taking into account the set up and running costs, an 858% ROI (return of investment) was achieved giving an actual gain of £134,342.

3. Proactive intervention to enhance recovery (PIER) project — engaging the web 2.0 generation about psychosis Surrey and Borders Partnership FT The initiative The aim of the initiative was to involve young people (aged from 14–35 years) who are experiencing psychosis in designing and creating original resources — including a new online platform — to make information about the condition more accessible to this age group. A recent survey of people who use the Early Intervention in Psychosis (EIIP) service and their carers reported a lack of easily accessible information about the help available in the local area and about psychosis in general. They also felt frustrated at not being involved as they could be in shaping their local service. Our objective was to reduce the duration of untreated psychosis and cut the number of hospital admissions by making more young people aware of mental health issues and enabling them to make more informed decisions. We also wanted to improve the service user experience and embed leadership, innovation and user involvement within EIIP and the trust in general. The PIER project addresses recommendations in the national mental health strategy, No Health without Mental Health that calls for a shared understanding between people who use services, carers, professionals and the wider community in relation to health promotion and early intervention A group of people who use services, carers and professionals was recruited in May 2010 to meet on a bi-monthly basis to create and develop ways to make information about psychosis more accessible to the wider community. Together they reviewed research evidence and literature on cultural health inequalities before discussing their creative ideas. The group decided on the microsite idea and developed the design style and content, even the text, with the in house team. They agreed that videos with professionals from the team and people who use the service would be more personable, a “psychosis wiki” could explain some of the “jargon’, and blogs would convey people’s real life experiences. Consent forms were drawn up and then case narratives and videos developed in partnership with students from the University of Surrey. Leaflets, posters and

Page 157 exhibition display banners were produced to promote the site and in March 2011 the website went live. The team distributed materials to local health, social care and community organisations and attended events such as the University of Surrey health fair. In June a dissemination report was showcased at the PIER conference and videos uploaded on the site. Benefits Performance has been measured by completing a comparative study before and after the project to look at its impact on the number of referrals to EIIP; referral pathways and any changes to number of self referrals; duration of untreated psychosis; and hospital admission rates. The number of referrals has significantly increased with a 50% increase in April 2011 as compared with April 2010. In addition, a 75% reduction in admissions to acute inpatient units has been achieved (with a 50% reduction in formal admissions — sections — under the Mental Health Act.) Research carried out within EIIP showed that the average duration of untreated psychosis was 90 days (the general average is 98 days) but since PIER project’s initiative this has fallen to an average of 35 days. In the three years prior to launching the website, the service only received one self referral. We have already had three in three months. And while detailed feedback surveys are currently in progress, anecdotal feedback on the project so far has been positive. Financial implications There was no outright financial outlay from the trust, other than the time of those involved. The PIER project used in house experience and expertise to produce many of the resources, including the microsite itself. Other items were funded from a £10,000 bursary from the National Leadership Council as one of six “Emerging Leader Projects’. These funds were used to produce a follow up PIER project conference and items to promote the site — such as three promotional videos, leaflets (including one in Nepalese to meet local demand), posters, display banners, t-shirts, pens etc. This was essentially a year long project, starting in May 2010 — with tangible results recorded by the PIER conference in June 2011 — although the website will continue to be updated so will continue to reap rewards for very little financial outlay. While we don’t have a figure for the saving to the trust in reduced admissions and enhanced recovery rates, we can say that peer reviewed studies show that less use of emergency and inpatient services results in more cost effective illness management and can lead to up to £290m in annual savings at a national level. Contact 4. Mental health gateway workers: promoting positive mental health Cardiff and Vale University Health Board The initiative The aim of the gateway workers (GWW) is to bridge the gap between primary and secondary care utilising a stepped care approach. The GWWs ease access to and choice of effective psychological interventions with referral into specialist services if needed. Before the initiative was set up in 2008 primary care professionals felt their patients were getting a poor service from secondary care, and the community mental health teams (CMHT) felt referrals were sometimes inappropriate. Funding was secured to extend the existing primary care liaison worker

Page 158 post into a dedicated service with three fulltime GWWs and a clinical nurse lead. The service offers: • Triage assessments for routine mental health concerns; • Stepped care interventions; • Stress management courses’ • Solution focused interventions. The gateway workers needed a range of specialist skills to be able to undertake comprehensive assessment of mental health, recognise serious mental illness and ensure that people needing highly specialised care can access the appropriate service. A training programme was devised that included: • Motivational interviewing; • Solution focused work; • Bibliotherapy prescribing; • Accredited mental health first aid training; • Stress management training. The client group is the combined adult population of 14 GP surgeries. Treatments are offered to adults and 16–18 year olds not in full time education who have been identified as experiencing mild to moderate mental health problems. Benefits GPs were asked to give feedback on the introduction of the GWWs, comments included: • “The gateway service is easily accessible to both GP and patients. For patients it is a lot less daunting to attend a familiar place with staff known to them in their local area. As a result some patients who have always declined referrals to CMHT have been able to engage with the service”; • “The services are timely and save the wait for an appointment with the CMHT” . Patient feedback included: • “It was good knowing that I had a full hour’s consultation. It gave plenty of time to explore some very difficult issues”; • “I attended an evening class run by a GWW, which I found very helpful, explaining ways to relax and prioritise everyday occurrences” . • “The GWW had different ideas for me to try. I would not have got better without the support of the GWW” Financial implications Cost savings were difficult to measure over the short period that the pilot has been in operation. However, there was anecdotal evidence that GPs now only refer the most serious cases to the secondary services.

5. Advice on Prescription: a partnership approach to improving mental health and wellbeing NHS Halton and St Helens The initiative Advice on Prescription is a joint initiative run by NHS Halton and St Helens, Halton and St Helens Health Improvement Team (HIT) and the Citizens Advice Bureau (CAB). Many people when feeling a change in their mood go to see their GP seeking a medical approach when a problem solving approach may be more appropriate. The aim of the initiative is to fasttrack people visiting their GP who have mental health problems due to social welfare issues into more appropriate support services than psychological therapies. Upon identifying a suitable patient, the GP refers into CAB services. Within 24 hours of referral a debt advisor rings the patient to assess which CAB intervention is required.

Page 159 The initiative was undertaken to improve patients’ experience of service delivery when experiencing distress. It is often this distress that a clinician identifies with and may refer to secondary care mental health services. These services often have assessment and treatment waiting times, which can result in the patient’s condition deteriorating into a more severe state along with their social welfare issue. The health improvement team’s mental health improvement specialist worked alongside the CAB to produce the necessary materials and to promote the pilot project to selected GP practices, single point of access staff and psychological therapies to ensure their participation.

Benefits The initiative is ongoing in a number of selected GP practices but an interim evaluation has been undertaken between February and April 2010. Within this period 35 referrals for debt advice were made. Significantly, two people referred had been under the care of the crisis team due to suicidal intent. Through receiving debt advice and support their risk was eliminated. The key benefits of the initiative are in: • Reducing patients’ anxiety/depression by offering a service that is responsive to their needs; • Supporting primary care professionals during highly emotive consultations with a social prescribing problem solving, rather than a medical pharmaceutical, approach; • Making full use of PCT funded debt advisors within the CAB to reduce mental health services costs. After the 12 week period ended we gathered qualitative feedback from staff who referred to the scheme. The general theme was about the time it saved practitioners and the appropriateness of it as an intervention: • “Saves time, gives people the opportunity to speak to experts within that field”; • “Will make my work a lot easier — reduces time spent, chasing round researching what’s available”; • “Knowing I could speedily refer my patient into CAB and then onto a depression group made me feel confident I had done my best as the main problems will be addressed and then the mental health work will probably have a bigger impact”; • “by accessing the scheme and support so quickly my gentleman went from being a suicide risk and needing crisis support to having no suicidal intent”. Financial implications The PCT provided funding to the CAB for six debt counsellors for three years and resources for referral materials at a total cost of £300,000. The HIT team performed an analysis to determine whether the project had an impact on the level/step of mental health intervention their patients received (as a proxy for cash releasing savings). They found that within a 12 week period, 38% of referrals resulted in a step down of mental health intervention and that 50% of these were discharged from mental health services completely. FINALIST

Page 160 Information pack 6.2 – Local Best practice

The Community mental health teams in Hillingdon undertake a range of interventions to help people recovering form a severe mental illness. These make use of the Borough’s leisure, library and adult education services. Through various individual and group activities staff support people back into main stream activity and make direct links between physical and mental wellbeing. Examples of these will be provided by officers at the September 11th meeting as well as the following:

1. CNWL Recovery College

Hillingdon patients are beginning to benefit form the new CNWL Recovery College. The College is based at Central and North West London NHS Foundation Trusts headquarters near Warren Street and is an innovative educational facility, providing recovery focused education for people with mental health issues and those in receipt of addictions and learning disabilities services, their supporters, families and Trust staff. The college operates a ‘hub’ and ‘spoke’ model and offers courses across five of the London boroughs that health services are delivered in.

The college first opened its doors in January 2012 and delivered a range of pilot courses in its first term. The success of the pilot has meant that the CNWL Recovery College was launched as a permanent fixture in April . The college has developed a curriculum of recovery courses which are co-produced and co-delivered by Peer Recovery Trainers (people with lived experience of mental health problems) and Recovery Trainers (mental health practitioners) in recognition of the value of both kinds of experience. Trust service users and staff will have a range of opportunities to learn alongside each other.

The College is part of the redesign of services that places greater emphasis on recovery and to put service users at the centre of our work. This is being achieved by having service users and staff co-producing, delivering and attending the courses together, learning together and, where applicable, challenging outdated practice and thinking”.

Recovery describes the personal journey people with mental health problems take to rebuild and live meaningful and satisfying lives. A key feature of recovery-focused mental health services is the adoption of an educational and coaching model, rather than solely a therapeutic model of services. The aim of the CNWL Recovery College is not to replace opportunities and resources already available in the local area, but to complement them.

Waldo Roeg, a Peer Recovery Trainer at the CNWL Recovery College said: “For me the chance to work in a truly co-productive way in the co-productive environment of the CNWL Recovery College has played a big part in my own recovery journey. I really believe it is the same for my peers and for the people who attend”.

x Central and North West London NHS Foundation Trust (CNWL) is one of six demonstration sites for the national Implementing Recovery Organisational Change (ImROC) project developed by the Centre for Mental Health and the NHS Confederation to support mental health services to become more recovery focused.

Page 161 x Educating people about their conditions and how to manage them are important components of National Institute for Clinical Excellence (NICE) guidelines and a core NICE standard of service user experience of adult mental health services.

Courses Available are as follows

Understanding mental health difficulties and treatment Understanding a diagnosis of depression Understanding self-harm Understanding a diagnosis of psychosis Introduction to personality disorders Understanding your medication

Rebuilding your life Introduction to recovery Recovery and social inclusion Taking back control Introduction to managing stress Introduction to mindfulness Telling your story

Developing knowledge and skills Employment: recovery in action Getting the best from your ward round How to organise and chair meetings Better thinking about money Personalisation in mental health

2. The Placement Efficiency Project

The CNWL Placement Efficiency Project (PEP) has been introduced into Hillingdon to help address: x the continued over reliance on residential and nursing home care; and x reduce the costs of institutional care where community options are not immediately appropriate for the individual

The project had already successfully made efficiencies on placements for 5 of its commissioners. The project was extended to develop an Adult Social Care Hillingdon work-stream to primarily make efficiencies on a prioritised named patient list in existing placements and improve systems and processes. The PEP had also been shortlisted for the health services Journal annual awards.

As well as financial efficiencies, the PEP has supported LB Hillingdon to achieve the following during the project year: An ongoing system of planned and regular reviews of out of area and in borough placements. Working towards a clear plan and outcomes for each placement. Raised awareness of the costs and quality of placements as well gaps.

Page 162 Supported the development of the Hillingdon Complex Care panel Application of CFC in identified mental health placements PEP specialist clinical resources identified to support the process. Good working relationships between clinical and finance. Monthly PEP/LBH meetings (Regular communication around placements between CNWL and LB Hillingdon through monthly monitoring meetings

The principal savings to date have been achieved through tighter and more structured reviews of current services users through a combined team of social workers and nurses. The intention is to expand into other areas necessary to sustain change, in particular supporting cultural changes in the approach of all front line staff to consider more rigorously alternatives to institutional care

The project is planning to make savings in Council-funded mental health placements of £336,000 in the current year. By the end of July it had achieved savings of £179,173 – 53% of its projected total.

Page 163 Appendix 7

Methodology

First Committee / Witness Session: 11th September 2012

The first session (including an officer background report) provided an overview of adult community mental health services in Hillingdon. It also examined how services were delivered in partnership with CNWL. The witnesses included: x Sandra Brookes - Borough Director CNWL x Joan Vessey – Acting Borough Director, NHS Hillingdon x Fiona Davies – NHS Hillingdon x Alan Coe - Mental Health Consultant, working for the Social Care, Health and Housing Department

Second Committee / Witness Session: 9th October 2012

The second session examined the opportunities for enhanced partnership working with both external partners and also internally between different Council departments. The witnesses included: x Sandra Brookes - Borough Director CNWL x Fiona Davies – NHS Hillingdon x Alan Coe - Mental Health Consultant, working for the Social Care, Health and Housing Department x Angela Manners – Rethink x Diego Duarte – Rethink x Jill Patel – Hillingdon MIND x Khalid Rashid (Housing, Customer Management Team – Manager) x Herbie Mann (Housing Options – Team Leader) x Sinead Mooney (Older People, Housing Services – Housing Manger)

Site Visit: 1st November 2012

During this site visit, the Committee visited the social group run by Hillingdon MIND based at the Mead House Adult Community Mental Health Centre resource. This provided Councillors with an opportunity to hear about local service provision from staff and service users in an informal setting.

The Committee also visited the Mill House Adult Community Mental Health Centre. CNWL staff provided the Committee with an overview of the ‘recovery journey’ and the services available to service users as well as the important on going work being conducted to provide service users with the necessary support and advice to assist them back into the workplace.

Page 164 Site Visit: 2nd November 2012

During this visit, the Committee visited the gym at the Riverside Adult Community Mental Health Centre to hear about the relationships between physical and mental health and the types of activities which were available to service users.

The Committee also heard from the Uxbridge Bike project4 about the skills this project developed as well as the positive social and networking skills this scheme provided.

Third Committee / Witness Session: 7th November 2010

The third session provided service users with an opportunity to provide their views on Adult Community Mental Health Resources and for the Committee to learn first hand about what was working well and where there was scope to improve services. The witnesses included: x Witness A, a service user x Witness B, a service user x Witness C, a service user x Robyn Doran - CNWL x Sandra Brookes - CNWL x Fiona Davies – NHS Hillingdon x Linda Sanders - Director Social Care, Health and Housing x Alan Coe - Mental Health Consultant, working for the Social Care, Health and Housing Department x Dr Ellis Friedman – PCT / LBH Director of Public Health

Fourth Committee: 11th December 2012

The final meeting enabled the Committee to review a draft framework of the final report and to alter, amend and propose new recommendations to be included in the final draft report.

Site Visit: 12th December 2012

The purpose of this visit was to enable the Committee to hear the views of carers in relation to Adult Community Mental Health Provision. To do this the Committee visited the Rethink Carer’s Group, based at Hayes Methodist Church, Hayes End.

Page 165 Appendix 8

Asian Support Groups

Dosti: Asian Befriending Scheme Volunteers provide 1-1 support in clients first language, e.g. Hindi; Punjabi; Urdu; Gujarati and Bengali

Aasra: A support group for women with Depression and Anxiety Eevery Tuesday 10-12noon Mead House Hayes End Road, Hayes, UB4 8EW

Sahara:A support group for people with long standing Mental Health issues Every Wednesday 10-12noon Mead House Hayes End Road, Hayes UB4 8EW

Sam-Milan: Drop-in for users and carers. We offer social contact, mutual support,information and advice.We conduct outings and celebrations of various cultural events. Every Thursday 10-12noon Pembroke Centre 90 Pembroke Road, Ruislip Manor, Ruislip.

Page 166 Appendix 9 Housing Support Services and Provision

Housing Support The service is designed to help clients with advice and support in the following areas: • Help with setting up their new home • Help to understand official letters and documents including their tenancy conditions • Help maximising benefit claims, budgeting, paying bills including rent, arrears or any other debts • Help to settle into their new community and to access local services including linking in with specialist support • Helping clients to learn how to look after their home, including for some getting a handy person service • And much more but it is NOT hands on personal, clinical or health care, or professional counselling.

Community Housing- Managing tenancies: • Community housing provide support and advice as well as taking appropriate enforcement action to resolve any tenancy and neighbourhood issues • Refer tenants onto appropriate services including ILSS, community safety team, social services etc; to ensure appropriate support is offered • Joined up working with key services such as mental health.

Tenant Support • 90% of tenants have a form of vulnerability • Common causes for tenancy failure during the probationary period are rent arrears, ASB • Probationary/secure tenancies • New tenant visits • Tenancy verifications.

Sheltered Housing • Residents to have the choice to live safe, healthy, independent lives in supportive schemes • Age 60 plus • 21 sheltered schemes across the Borough • Daily presence of a scheme manager • Focus on activities and support

Extra Care Housing • Residents have their own self-contained flat, with the reassurance of 24 hour on site care and support services • Excellent shared facilities, including a café and dining area, lounge, garden, shop/kiosk, activity space, laundry and hairdressing. • Independent living for over 55’swith a range of physical, sensory and learning disabilities

Page 167 Appendix 10 Site Visits held on 1 and 2 November 2012

Mead House – Themes Emerging:

The councillors visited the social group run by MIND which they use the Mead House premises for.

General Perceptions x Mead House (MH) was a popular service x Most service users attended MH several days per week x The service catered for a wide variety of age groups x MH activities included a pool table and free wi-fi access to the internet x MH staff and MIND staff were well liked and often knew service users histories and so service users felt confident to interact with them x MH provided a safe environment in which to meet people and make new friends. This was extremely valuable, as mental health issues could make people feel socially isolated. x The overriding feeling was that ‘everyone was in the same boat’. There was no stigma attached to mental health amongst those attending MH. x MH provided lunches and the proceeds from these covered costs. Any surplus money was saved towards activity days - i.e. hiring a mini bus Travel x Most service users travelled by foot, as they could not use public transport as this was too stressful. Others used Dial a Ride or taxis Weekend Provision x MH closed over the weekend. Most service users expressed the hope that MH could remain open over part of the weekend. However there were cost considerations and limited staff resources to consider x Service users explained that their health could decline over the weekend due to feelings of isolation and minimal social contact. MH provided structure to some service users days when it was open during week days x Service users were aware there was weekend provision based at the Pembroke Centre in Ruislip Manor. However this was difficult to get to as there were travel, cost and time issues to consider. Travelling to provision in the north of the borough was not an option for those service users which could not easily travel by public transport x In addition, if a person was in crisis, service users were aware they could contact a key worker or a duty officer. Experiences were mixed and some of the advice provided to service users could have been more constructive.

Service User Experiences x In periods of crisis there were high levels of contact with key workers. x When service users were not in crisis there were long periods without any contact. Service users were concerned that this meant that key workers or care co-ordinators were less likely to be able monitor their health effectively or be in a position to note any changes to their mental health needs and be less likely to react to triggers

Page 168 x Triggers were factors which might result in changes to mental health needs: x Anniversaries, the Christmas holiday period, apprehension about benefits or housing applications or the forthcoming changes to benefits x It was noted that currently if a person required assistance with Housing needs the onus was on the service user to request help. It was suggested that if this were changed and a basic assumption was made that everyone needed help and all the service user needed to do was decline this, there would be less likelihood of people ‘falling through the net’.

Mill House – Themes Emerging x The recovery process involves all mental health services. It is based in the community and involves the service user’s family x The recovery process can be likened to diabetes (as a physical issue) in the sense that mental illness is something someone may never fully recover from, it is lived through on a day by day basis but those affected can continue to live a full life x The recovery process is service user led and the service user is encouraged to define what recovery means to them. Service users are at the centre of the process x Whereas the medical model (to mental illness) is to suppress (control and manage) symptoms, the recovery model examines what the service user can do rather than what they cannot and looks at their skills, dreams and aspirations

The Recovery College x Plays an active role. This based on a WRAP (Wellness and Recovery programme) group which began in the United States by a service user x Staff are currently undergoing training but it is hoped courses will be running from the New Year on: introduction to managing stress, telling your story, getting the best from your ward round and ’a good nights sleep’. More courses will be run in the future. x Recovery College training is available to all staff. Carers can go these courses too. x The Recovery College and Well Being Group run a an 8 week course- run by Occupational Therapists from the Rehabilitation Unit, Nurses from Rehab and Service Users x The purpose of the course is to assist service users put a recovery plan together. Recovery plans can be shared with friends, family and carers. These are useful tools as they can be used to: 1. spot early warning signs 2. they look at the resources required to manage the service users condition 3. look at relapse signatures. 4. the factors that have been helpful in past periods of crisis 5. post discharge conditions and the environment the service user will enter 6. assist service users with their CPA (Care Programme Approach) x Each week, service users will meet in small groups to complete their recovery plans and speak to the group about how they are recovering and their recovery journey.

Page 169 x CNWL know this approach is effective from service user feedback

Dual Diagnosis (drugs and alcohol) x This is one of the largest challenges today as both are readily available and offer escapism (albeit for a very limited time). People with mental health issues are vulnerable and sometimes isolated and therefore can be easy targets for those who sell drugs. Joint working with HDAS and the dual diagnosis worker support these individuals x Compliance / non-compliance with medication. Service users in crisis have been known to ‘disappear’ and reappear several days later with little or no recollection of events. The challenge is to improve the local support systems. x Sometimes service users who have been well for long periods decide to stop their medication as they feel that they are better and no longer require the medication x Members commented that a large part of the (recovery) challenge related to changing people’s mindsets x To help people move on - At present, the role of staff is to ‘carry the hope’ for the service user and help service users move from a pre-contemplative stage to contemplation x In response to a question about whether there were enough mechanisms to help people progress. Members agreed that a number of small incremental steps were required to help people toward independence. However it was vital that there were support networks in place

Employment x Individual Placement Support Model is used to help people back into paid roles. These are people who have previously worked, returned or are new workers x The support CNWL provide to service users is not time limited x CNWL liase with the Council, benefits team and other agencies to assist service users. x CNWL also sign post useful services, can assist with ICT training and help service users access the resources at local libraries. CNWL encourage service users to incorporate positive statements into job applications highlighting the positive contribution the applicant can make and underlining the support networks they have. If a service user is successful and is invited to interview, CNWL staff can assist in role paying to enhance people’s interview skills. x A considerable amount of time and effort is spent by Occupational Therapy staff into preparing clients for work. Activities include: building service user confidence, anxiety management, graded returns to work and assistance with using public transport. The long term goal is paid employment. x Numeracy and literacy are key skills. Often, these require some work as part of the service user’s long journey back to work. x Of 55 referrals by CNWL in 2011/12 – 14 had positive outcomes (paid employment, volunteering or returning to education – target was 12 outcomes). x Since April 2012, there have been 21 referrals

Page 170 x CNWL’S role includes building a relationship with The Job Centre and local partners including: Green Acres, OEA representatives, Rethink, Employment Link and linking the Chamber of Commerce to local colleges and Universities

Get into Reading x Service users meet in small groups and read a short chapter / section from a book or a poem. x The shared reading experience aims to link the issues highlighted in novels to real life events x It is hoped these CNWL groups can restart from January 2013. x Reading groups aid concentration and literacy skills and are also about using a medium of self-expression and providing a united experience. They also provide social networks. x The aim is to have service user led groups in the community x Other creative groups might include art, music and drama

Site Visits to Riverside Gym and the Bike Project, 02 November 2012

Members in attendance: Cllr Sukphal Brar Cllr Peter Kemp Cllr June Nelson Cllr John Jackson

Riverside Gym x Time was spent discussing the benefits of the gym and the five-aside football teams the rehab service supports. x Football offers not only a social activity, relieving isolation and encouraging fitness, but also a career path as a number of participants go on to qualify as football coaches

Bike Project – Uxbridge x The re-cycle a bike project in Uxbridge centre is an innovative and creative scheme recycling and repairing bicycles. x The workshop enables service users, local students and other unemployed people to become skilled in bicycle maintenance and repair and supports them to go on training courses. x The project is integrated in the community and fulfils a much-needed role as there is no other specialist bike repair store in the town. x The project has linked in with several local partners including the police, Brunel university and Healthy Hillingdon x Both projects had funding difficulties. Members suggested ways in which the football teams might access various sources of funding to assist with pitch hire etc. x The bike project has received funding from selling bikes, a market stall, fresher’s fair at Brunel and the LCC (London cycling campaign)

Page 171 x The bike project also has a location difficulty as it is situated in a very small rent free workshop. However due to its popularity the scheme has outgrown its premises as they have over a dozen volunteers working every afternoon. The project was hoping to get assistance to help find larger premises.

Further discussion points x How to jointly work together to reduce the stigma of mental illness x Promoting good mental health in all citizens in the borough x Supporting those with mental health issues to integrate into the community and feel supported to do so by all staff. How we promote social inclusion in the borough. x Provision of a range of venues throughout the borough to run Recovery courses. x A central point in the borough for Recovery (our own satellite recovery college)

Page 172 Appendix 11

Site Visit to Hayes Methodist Church, Rethink Carer’s Group 12 December 2012

Social Services, Health and Housing Policy Overview Committee

Members in attendance: Cllr Judith Cooper Cllr Patricia Jackson Cllr June Nelson Cllr John Major Cllr Mary O’Connor

Mead House – Themes Emerging:

The councillors visited the carer’s group run by Rethink which they use the Church premises for.

The following views were expressed: x Communication difficulties x Lack of information on medication and side effects x Attitude of psychiatrists x Poor continuity of care x Difficult to re-engage with the service x Poor support in a crisis x Good care co-ordinators highly valued x Concerns and complaints receive no response x Care co-ordinators not allocated x Worry about care of loved ones after the carer has died x Poor attitude of staff and lack of information in the inpatient unit x High staff turn over x Ineffective crisis service x Better publicity of services

Page 173 Appendix 12

Witnesses and contributors to the review

x Robyn Doran - The Director of Operations and Partnerships, CNWL x Sandra Brookes – The Borough Director and Service Director Assessment and Brief Treatment Service Line x Joan Vessey – Acting Chief Operating Officer, NHS Hillingdon x Fiona Davies – Joint Commissioning Manager, NHS Hillingdon x Dr Ellis Friedman – PCT / LBH Director of Public Health x Linda Sanders - Director Social Care & Health x Neil Stubbings – (then) Deputy Director Social Care & Health x Moira Wilson – Deputy Director Social Care, Health and Housing x Alan Coe - Mental Health Consultant, working for the Social Care and Health x Andrew Theideman – Interim Service Manager x Khalid Rashid (Housing, Customer Management Team – Manager) x Herbie Mann (Housing Options – Team Leader) x Sinead Mooney (Older People, Housing Services – Housing Manger) x Angela Manners – Rethink x Diego Duarte – Rethink x Jill Patel – Hillingdon MIND x Graham Hawkes – Hillingdon LINK x Witness A, a service user x Witness B, a service user x Witness C, a service user x Mead House Staff – Cherry Hall, Hillingdon MIND x Service Users – Mead House x Key Staff at Riverside Resource Centre – Nick Gore, Sports Technician x Key Staff at Riverside Resource – Hannah Pall, Senior Occupational Therapist x Nick – from the Uxbridge Bike Project x Key Mill House Staff – Katherine Simms, Lead Occupational Therapist / ABT Service Line x Key Mill House Staff – Brenda Proud, Specialist Occupational Therapist x Key Mill House Staff – Kosar Khan, Senior Occupational Therapist x Key Mill House Staff – Poonam Gadher, Occupational Therapist x Members of the Rethink Carers Support Group, based at Hayes Methodist Church, Hayes End

Page 174 Page 175 This page is intentionally left blank

Page 176 Agenda Item 7

ACCESSIBLE HILLINGDON SUPPLEMENTARY PLANNING DOCUMENT (POLICY FRAMEWORK)

Cabinet Member(s) Cllr. Keith Burrows

Cabinet Portfolio(s) Planning Transportation and Recycling

Officer Contact(s) Charmian Baker/Ali Kashmiri Residents Services

Papers with report Appendix 1 - Consultation Statement

Appendix 2 - Accessible Hillingdon Supplementary Planning Document (SPD), revised following public consultation (Due to size, this document is available as a reference copy in Party Group Offices and Democratic Services)

1. HEADLINE INFORMATION

Summary This report provides information to the Cabinet on the outcome of the consultation for Hillingdon's Draft Accessible Hillingdon Supplementary Planning Document (SPD). Approval is sought to agree and refer the revised SPD to full Council for adoption.

Contribution to our Hillingdon’s Local Plan 1 and emerging Local Plan 2 plans and strategies Hillingdon Partners Sustainable Community Strategy

Financial Cost The cost of publishing the revised SPD will be approximately £1,700, which will be contained within the 2013/2014 revenue budget for Residents Services

Relevant Policy Residents and Environment Services Policy Overview Committee Overview Committee (RESPOC).

Ward(s) affected All Wards

RECOMMENDATIONS

That Cabinet

1. Notes the comments received during the consultation period as set out in Appendix 1.

2. Approves the amendments to the 'Accessible Hillingdon' Supplementary Planning Document (SPD) as set out in Appendix 2.

Overleaf…

Cabinet – 25 April 2013 Page 177

3. Subject to the above amendments, recommends to Full Council the adoption of 'Accessible Hillingdon' as a Supplementary Planning Document for the purposes of development management.

4. Grants delegated authority to the Deputy Chief Executive and Corporate Director of Residents Services to agree, in consultation with the Cabinet Member for Planning, Transportation and Recycling, to make any minor editing, textual changes and graphical enhancements required to the Draft Revised Accessible Hillingdon Supplementary Planning Document before it is formally agreed and published.

5. Approves the charge of £17 for the sale of printed copies of the adopted ‘Accessible Hillingdon’ Supplementary Planning Document.

Reasons for recommendation

On 24 th January 2013, Cabinet approved the Draft Revised Accessible Hillingdon Supplementary Planning Document for public consultation and instructed officers to report back to a future meeting of Cabinet on the outcome of the public consultation and recommendations for changes to the document prior to its consideration for adoption by full Council. The consultation on the Draft Revised Accessible Hillingdon Supplementary Planning Document was carried out between 18th February 2013 and 28 th March 2013.

This report informs Cabinet of the outcome of the consultation process, seeks approval for officers to make appropriate amendments to the Draft Revised Accessible Hillingdon Supplementary Planning Document and to agree and refer the revised SPD to full Council for adoption.

Alternative options considered / risk management

It remains open to the Council to retain the existing SPD document. However, it is considered that not adopting the new guidance would restrict the Council’s ability to influence future development proposals in respect of accessibility and high-quality inclusive design.

The Cabinet may make revisions to the contents of the SPD before it is presented to full Council for adoption.

Policy Overview Committee comments

None at this stage

3. INFORMATION

1. A revised draft Accessible Hillingdon SPD was approved for public consultation purposes by the Cabinet at its meeting on 24th January 2013. The results of the consultation were to be reported to a future meeting of the Cabinet.

2. The consultation period ran from 18th February 2013 until 28th March 2013, in accordance with the Council’s adopted Statement of Community Involvement. The draft 'Accessible Hillingdon’ was published on the Council’s website and copies were distributed to all

Cabinet – 25 April 2013 Page 178

Borough libraries, to the Hayes One-Stop Shop and Planning Reception. Consultation letters were sent to 168 Statutory and non-Statutory organisations listed in the Council’s adopted Statement of Community Involvement. In addition, 14 tenants and residents associations were consulted, as well as 42 disability organisations and organisations with an interest in accessibility, including the Access Association and its membership. 33 members of the Council's Access & Mobility Forum were also consulted and a presentation on the SPD was given to the Forum on 11th March 2013, at which representatives of the Council’s Access Panel (Planning) were also present.

Summary of comments received and officer responses

3. The Council received a total of 12 responses from individuals/organisations. Of these, 4 requested amendments. A summary of these comments and the officer responses to the points made is set out in Appendix 1.

4. The comments are generally supportive and helpful. The key issues that have been raised are as follows:

• Transport for London has suggested that the SPD should be amended on page 12 to be consistent with the DfT ‘Inclusive Mobility’ guidance. Officers consider that the SPD is consistent with the DfT ‘Inclusive Mobility’ guidance. • Transport for London has suggested that the SPD should be amended on page 60 to be consistent with the DfT Manual for Streets. Officers have taken on board these suggestions, where appropriate. • The Greater London Authority has made detailed suggestions in relation to specific references to documents. These references have been amended as suggested. • The Greater London Authority has suggested that the SPD be deferred until the findings of a working group are published, which is looking at various codes, standards, rules, regulations and guidance on housing standards. Officers do not consider it appropriate to delay the progress on the SPD. • An anonymous representation was received with suggestions that additional photos and a diagram be included. Officers have taken these suggestions on board. • An anonymous representation was received with a suggestion that the references in the introduction be updated. Officers have taken this suggestion on board.

5. The comments received during this consultation have not resulted in the need for any significant amendments to the SPD. On the whole, the amendments help to improve the accuracy of the information that it contains and its appearance.

6. A revised version of the Accessible Hillingdon SPD, including the proposed amendments, is shown in Appendix 2 (reference copies available in Group Offices). The amendments are highlighted with italics and the deletions are shown with ‘strikethroughs’.

7. It is recommended that, subject to Cabinet approval of these amendments, the revised Accessible Hillingdon SPD be recommended for adoption at a forthcoming full Council meeting.

Financial Implications

The cost of publishing the revised SPD will be approximately £1,700, which would be contained within the 2013/2014 revenue budget for Residents Services. This sum would cover the cost of approximately 100 printed copies of the SPD to aid discussion and provide a physical prompt to

Cabinet – 25 April 2013 Page 179

leave with developers and other professionals attending charged pre-application meetings. Copies will be available for sale to architects and developers for a fee of £17 per copy. Under the Council’s constitution all decisions regarding the fixing of fees and charges rest with the Cabinet.

4. EFFECT ON RESIDENTS, SERVICE USERS & COMMUNITIES

What will be the effect of the recommendation?

Adoption of the SPD will ensure the Council can deliver a clear message on the standards expected in terms of inclusive design. Specifically, the revised document specifies in fine detail accessible housing standards, how the standards should be integrated into the design, and at what stage in the development process they should be demonstrated. The SPD will increase the scope to secure Brown Badge parking provision within development proposals. The adoption of the SPD will enhance the weight that can be attached to it as a material consideration when deciding planning applications.

Consultation Carried Out or Required

The consultations carried out are detailed in the Consultation Statement (see Appendix 1).

5. CORPORATE IMPLICATIONS

Corporate Finance

Corporate Finance has reviewed this report and is satisfied that any associated costs can be accommodated within the existing Residents Services revenue budget for 2013/14.

Legal

Supplementary Planning Documents (SPD) must be produced in accordance with The Town and Country Planning (Local Planning) (England) Regulations 2012 (the 2012 Regulations).

The Council’s constitution confirms Cabinet are responsible for developing the policy framework and that full Council must formally adopt documents forming part of the Local Development Framework (such as SPDs).

Consideration of representations

The 2012 Regulations require the SPD to be published and open to consultation for a period of not less than 4 weeks. As per the 2012 Regulations, Officers have prepared a statement setting out a summary of the main issues raised in these representations and how these main issues have been addressed in the SPD which they intend to adopt.

The 2012 Regulations require the consultation responses and representations be considered by the local planning authority prior to formal adoption of the SPD. In considering the consultation responses, decision makers must ensure there is a full consideration of all representations arising including those which do not accord with the officer recommendation. The decision maker must be satisfied that responses from the public are conscientiously taken into account.

Cabinet – 25 April 2013 Page 180

Procedure after resolution to adopt (if appropriate)

As soon as reasonably practicable after the local planning authority adopts an SPD they must prepare a statement of main issues raised in representation and how they were addressed, prepare an adoption statement and make these and a copy of the SPD available for inspection during normal office hours at the places at which the SPD was made available for consultation (and on their website).

The local planning authority must also send the adoption statement to any person who has asked to be notified of the adoption of the SPD.

Decision making

The draft Accessible Hillingdon SPD is intended to assist decision makers in determining planning applications. Officers have indicated in this report that the current adopted policy (the Accessible Hillingdon SPD 2010) is out of date and that a more robust and up to date policy needs to be put in place in order to ensure a good standard of design is obtained and to encourage partnership working between the Council and those intending to develop in the area. Whilst the draft policy that is the subject of this report is not a statutory policy, it will nonetheless be a material planning consideration in determining planning applications and must be taken into account by decision makers in reaching decisions.

An amendment made to section 19(5) of the Planning and Compulsory Purchase Act 2004 by the Planning Act 2008, means that since April 6, 2009 the SPD has not required a Sustainability Appraisal.

Corporate Property and Construction

Corporate Property and Construction supports the recommendations set out in this report.

6. BACKGROUND PAPERS

NIL

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Page 182

Appendix 1

CONSULTATION STATEMENT - Accessible Hillingdon SPD

In connection with the preparation of the Accessible Hillingdon Supplementary Planning Document, a Consultation Statement is required to demonstrate with whom the Council consulted and how they engaged with local people and other interested parties during the preparation stages of the SPD.

The statement contains the following information: i) a summary of the organisations with whom the Council consulted; ii) how those organisations were consulted; iii) a summary of the issues raised; and iv) how those issues have been addressed in the SPD.

A consultation on the draft Accessible Hillingdon – Revised Draft Supplementary Planning Document (SPD) (January 2013) took place between 18 th February and 28 th March 2013.

The following consultees were sent either a printed copy or a letter containing a link to the Council’s website. Comments were invited on the SPD:

Statutory and Other Organisations listed in the Council’s 168 Statement of Community Involvement Disability Organisations (including the Access 42 Association) Tenants and Residents associations 14 Access & Mobility Forum 33

In addition to being published on the Council’s website (see notice overleaf), the draft SPD was distributed to all Borough libraries, to the Hayes One-Stop Shop and Planning Reception. A summary of the proposed changes to the SPD was presented to the Council’s Residents Planning Forum in January and a presentation was given to the Access & Mobility Forum on 11 th March 2013, where representatives of the Council’s Access Forum and Disablement Association Hillingdon (DASH) were present.

In addition to the external consultation process, the draft SPD was also circulated to relevant internal Council staff inviting comments relating to their particular areas of expertise.

A total of 12 responses were received of which 4 requested amendments/additions to the SPD as detailed overleaf.

Page 183

SUMMARY OF THE MAIN ISSUES RAISED:

Summary of representation/issue Officer response

Anonymous

“I consider the whole project unnecessary and Given that no specific details are a squandering of public money. The building of provided in the comments, there is no which would cause great inconvenience and scope for amending the SPD. distress to many families (Forget it).” No changes proposed Borough Planning, Transport for London SPD does not appear to contain references to Reference to GLA Housing SPG the current London Plan Housing (November 2012) inserted under Supplementary Guidance (Housing SPG Sources & References on page 119. November 2012). This should be referenced.

Accessible Parking (Lifetime Home Standards) Inclusive Mobility does not specify – Add to SPD: “If bays are perpendicular to the technical standards related to Lifetime access aisle, an additional width of at least Home Standards or Accessible 1200mm along each side should be provided”. Housing. Lifetime Home Standards This is to ensure that the SPD is consistent with require scope to provide an additional Department for Transport ’Inclusive Mobility’ 900mm to the side of a parking space. guidance. No changes proposed.

Accessible Parking (Lifetime Home Standards) Not applicable to individual dwellings. – Add to SPD: “Parking areas should be Parking schemes related to communal designed to enable vehicle to enter and exit site developments would require a Parking in forward gear”. “This is to minimise conflicts Management Plan which would between vehicles and other road users, in address how vehicles enter and exit. particular for people with disability/reduced No changes proposed. mobility”.

Streetscape – Pavements, footways and other pedestrian routes must: • be at least 2000mm wide Reference to footway width, page 60, (unobstructed) (to be consistent increased from 1800mm to 2000mm. with DfT Manual for Streets).

• Remove “in less busy areas be at “Inclusive Mobility” provides more least 1500mm in width” (this is detailed guidance than “Manual for contrary to guidance from Manual Streets”. It states “… 2000mm allows two wheelchairs to pass one another for Streets). comfortably. …should be regarded as the

minimum... Where … not possible …1500mm could be regarded as the minimum… The absolute minimum, where there is an obstacle, should be 1000mm clear space”.

Page 184

Summary of representation/issue Officer response

British Standard 8300:2009 refers to a minimum footway width of 1800mm (2000mm preferred). 1500mm on less busy routes (where passing places are provided) and 1200mm on the approach to existing developments. No change proposed. • Add “In exceptional circumstances, a minimum width In terms of footway width, BS8300:2009 of 1 metre for pedestrians is considered to be more up-to-date than between obstacles should only be Inclusive Mobility. Therefore, a minimum footway width of 1500 mm has been used for a distance of up to 6 retained on page 60. metres” (to be consistent with DfT No change proposed. Manual for Streets).

• “Provide a head height of at least SPD amended on page 60. 2600mm from the pavement to any overhead protrusion” (to be consistent with DfT Manual for Streets).

Anonymous

The new SPD is far improved and welcomed. Photos added on pages 38, 94 A reduction in photographs over the last document makes it less inspiring. The document should convey the importance of accessibility in context to everyday situations and this can only be done using photographs.

The Lifetime Home Standards section is New diagram (Lifetime Home Bedroom) missing some technical drawings which makes inserted on page 23. it inconsistent with the rest of the document.

SPD does not reference in the ‘introduction’ all Introduction revised on page 5. relevant London Plan policies as listed at the back of the document. Introduction should be updated to highlight Hillingdon Local Plan, UDP Saved Policies, etc.

Otherwise a well presented, informative Comment welcomed. document. No changes required

Greater London Authority, Principal Adviser - Access and Inclusion

Page 185

Summary of representation/issue Officer response

The SPD appears comprehensive and should Comment welcomed. prove to be a useful tool for both planners and No changes required prospective developers. However the SPD raises a number of issues outlined below:

• It would be helpful if reference to Reference inserted on page 7. inclusive design in the National Planning Policy Framework could be made in the section at the beginning of the document rather than in the appendix.

• It would be helpful to refer to the latest Reference amended on page 6 & 118. version of Part M of the Building Regulations which was updated in January this year.

• The full reference for the latest version Reference amended on page 6, 83 & of British Standard BS 8300 is BS 119. 8300:2009+A1:2010 (it includes advice on Changing Places WCs).

• Reference to Sport England’s guide on access for disabled people should refer Reference amended on page 101 & to their latest guide Accessible Sports 118. Facilities Design Guide which was published in 2010.

• The Government, as part of its red tape challenge, is currently reviewing and aiming to rationalise the large number of Given the ongoing changes to policies codes, standards, rules, regulations and and guidance at the national and guidance related to housing standards. London-wide level, it is not considered The accessibility working group is due appropriate to delay the adoption of the to report its findings to the housing SPD. review group at the end of April and as No changes proposed. the group has been considering the Lifetime home and wheelchair housing standards and Hillingdon Council may wish to wait for the conclusion of this review before proceeding with publication of their SPD.

• It may be helpful to provide more detail about the types of planning applications Link inserted on page 101 to further that are required to include a Design information available on the Council's and Access Statement. website.

Page 186

Summary of representation/issue Officer response

• No mention is made in the hotels Hotels, Motels and Student section (page 96) of London Plan policy Accommodation section updated on 4.5 to encourage applicants to submit page 96. an Accessibility Management Plan. Information available in draft SPG on Town Centres.

• No mention is made in the section on housing for older people of the HAPPI Design principles and reference report recommendations (Housing our included on page 58 Aging Population Panel for Innovation). It would be helpful to signpost readers to HAPPI reports to encourage the following HAPPI design principles:

i. generous internal space standards ii. plenty of natural light in the home and in circulation spaces iii. balconies and outdoor space, avoiding internal corridors and single-aspect flats iv. adaptability and ‘care aware’ design which is ready for emerging telecare and telehealthcare technologies v. circulation spaces that encourage interaction and avoid an ‘institutional feel’ vi. shared facilities and community ‘hubs’ where these are lacking in the neighbourhood vii. plants, trees, and the natural environment viii. high levels of energy efficiency, with good ventilation to avoid overheating ix. extra storage for belongings and bicycles x. shared external areas such as ‘home zones’ that give priority to pedestrians Civil Aviation Authority, Aerodrome and Air Traffic Standards Division Other than the consultation required by Section 110 of the Localism Act 2011, it is not No changes required necessary to contact the CAA about Strategic Planning Documents. Disablement Association Hillingdon (DASH) I will try to have a look at this document. No actual comments on the document received. No changes required

Page 187

Summary of representation/issue Officer response

London Borough of Harrow, Local Plans Team Harrow Council has no observations to make No changes required as a neighbouring local planning authority. Highways Agency The Highways Authority have reviewed the consultation and do not have any comment at No changes required this time. Environment Agency Having reviewed the document we have no No changes required comments to make. Canal & River Trust London I don’t have any comments to make. No changes required Network Rail The Accessible Hillingdon draft SPD sets out the Council's principles and standards for The comment relates to providing designing housing and places which are specific guidance for railway stations accessible to older and disabled people. We within the SPD. The SPD is intended to would recommend that the Council give provide generic guidance which can be consideration to ensuring accessibility at applied to developments across the railway stations within the Council’s borough, board. and that CIL or S106 developer contributions could be used to provide funding for No changes proposed. enhancements at railway stations, e.g. step free access, better facilities. Natural England Natural England does not consider that this Supplementary Planning Document poses any likely or significant risk to those features of the natural environment for which NE would No changes required otherwise provide a more detailed consultation response and so does not wish to make specific comment on the details of this consultation.

Page 188

Agenda Item 8

HOUSES IN MULTIPLE OCCUPATION IN THE UXBRIDGE SOUTH AND BRUNEL WARDS - Interim Planning Policy Document (POLICY FRAMEWORK)

Cabinet Member (s) Councillor Keith Burrows

Cabinet Portfolio(s) Planning, Transportation & Recycling

Officer Contact(s) James Rodger & Richard Shaw – Residents Services

Papers with report Appendix One - Interim Planning Policy Document: ‘Houses in Multiple Occupation in the Uxbridge South and Brunel Wards’

1. HEADLINE INFORMATION

Summary In November 2011 the Council agreed to the declaration of an Article 4 Direction for Uxbridge South & Brunel wards, removing permitted development rights for conversions of houses to Houses in Multiple Occupation (HMOs). The Article 4 Direction commenced on the 24 March 2013.

At December 20 Cabinet it was agreed that the Council should undertake a 28 day consultation on a draft policy and criteria which the Council would use to determine planning applications for HMOs in the two wards following the commencement of the Article 4 Direction.

The public consultation occurred during January and February 2013 and there has been somewhat limited feedback on the policy document. It is recommended that Cabinet take note of the comments received and that they agree that the policy document should be referred to the 9 May Full Council meeting for adoption.

Contribution to our The policy will contribute to the delivery of Strategic Policies in plans and strategies Part One (the former Core Strategy) of Hillingdon’s Local Plan and aligns closely with the Vision statement in the Sustainable Community Strategy for delivering balanced communities.

Financial Cost The limited costs of the policy document will be met from existing planning budgets within Residents Services.

Relevant Policy Residents’ and Environmental Services Policy Overview Overview Committee Committee

Ward(s) affected Uxbridge South and Brunel

Cabinet – 25 April 2013 Page 189

2. RECOMMENDATION

That Cabinet:

1) Notes the consultation responses contained within the report.

2) Recommends to Full Council the adoption of the Interim Planning Policy Document.

Reasons for recommendation:

Following concerns expressed by local residents relating to the continued loss of family housing in the area surrounding Brunel University, the Council agreed to the declaration of an Article 4 Direction for Uxbridge South & Brunel wards, removing permitted development rights for the conversion of individual houses to Houses in Multiple Occupation (HMOs). A subsequent statutory 12-month notice period commenced on 24 March 2012 prior to the Direction coming into effect. The Article 4 Direction commenced on the 24 March 2013. In order to have an effective means of considering future HMO applications it will be necessary for the Council to have a policy in place to determine new planning applications received now that the Article 4 Direction is in force

Appendix One to this report contains an “Interim Planning Policy Document” (IPPD) which sets out a proposed policy and criteria the Council would use to determine planning applications for HMOs in the two wards.

Alternative options considered / risk management

The alternative option is not to accept the criteria and policy in the IPPD and to continue to rely on the guidance contained in the 2004 SPG: ‘Houses in Multiple Occupation and other non-self contained Housing’ as a means of determining HMO applications in the two wards.

The current Supplementary Planning Guidance (SPG) contains no thresholds at a neighbourhood area level to control the number of HMOs in a particular area. The thresholds at street level are also generous and do not reflect the higher levels of controls suggested in the IDDP and therefore these aspects of the existing SPG are deemed to be inadequate.

There is a risk that implementing the policy may require additional staff time to be made available to ensure that up to date information on HMOs is collected and expeditious exchanges of data takes place between service areas to ensure information remains up to date and available to support the practical application of Policy HM1.

Policy Overview Committee comments

None at this stage.

Cabinet – 25 April 2013 Page 190

3. INFORMATION

Supporting Information

Background

1 Concerns about the effects of concentrations of large numbers of Houses in Multiple Occupation (HMOs) within a community were expressed by the Cowley Community Residents Association at their meeting on the 9th May 2011. A number of residents considered that there were too many HMOs in Cowley and the widespread use of properties as HMOs was displacing families out of the area. In addition complaints were made about the impact of the local concentration of HMOs, in particular excessive on-street parking demand, noise and anti-social behaviour. Officers attending the meeting agreed to consider the use of an Article 4 Direction to control what is otherwise ‘permitted development’. The Town & Country Planning Use Class Order 2010 does not require developers to apply for prior planning permission to change the use of residential properties to HMOs. The effect of the Article 4 Direction would be to remove these ‘permitted development’ rights and require a planning application to be submitted. The Council agreed to the use of an Article 4 Direction at its meeting on the 3rd November 2011 subject to a 12 month notice period. The Article 4 Direction commenced on the 24 March 2013.

2 In order to have an effective means of considering future HMO applications it will be necessary for the Council to have a policy in place to determine new planning applications received now that the Article 4 Direction is in force.

3 The purpose of this report is to outline the policy proposed and to update Cabinet on the recent public consultation exercise concerning the draft policy. A detailed explanation of the rationale behind the proposed policy is contained in the Interim Planning Policy Document, attached at Appendix One to this report.

4. Current local guidance on HMOs is contained in a Hillingdon Supplementary Planning Guidance note: ’Houses in Multiple Occupation and other non self contained Housing’ (published in August 2004). This document seeks to contain concentrations of HMOs by restricting numbers to 15% of the total number of residential frontages in any street section of 1000m. There is no policy to control numbers on an area basis except in respect of Conservation Areas where a maximum number of 5% conversions of residential properties is set.

5. The IPPD is suggesting tighter controls in residential streets by applying a 15% restriction to a 100m street length either side, because it is clear that within certain specific streets near the University the figure of 15% in a 1000m is being exceeded. It is also proposed to set a ceiling of 20% above which new HMOs will not be permitted in a ‘residential output area’. The methodology for applying area and street-based thresholds is summarised in the draft Interim Planning Policy Document. The area- based approach is based round the concept of ‘neighbourhood output areas’ roughly equivalent in terms of population numbers to 125 residents (as defined in the Census of Population by the Office of National Statistics). The approach for street frontages implementation is intended to be self explanatory.

Cabinet – 25 April 2013 Page 191

6. Through applying both street based assessment and annual monitoring linked to existing census data for individual neighbourhood output areas, it is considered that a far more sophisticated assessment criteria can be applied to control HMOs. The overall objective is to prevent unacceptably high concentrations of HMOs in individual streets and neighbourhoods and to maintain a reasonable balance of housing types to make the local community more sustainable in the longer term.

7. The two wards contain eight Conservation Areas which are either entirely within or partially within the wards and cross into adjoining wards. There is also one Area of Special Local Character (ASCL). In reviewing the Conservation Areas recently, resident’s expressed concern at the impact of HMO use in the Greenway Conservation Area. The Greenway Conservation Area is predominantly residential in character and located in close proximity to the University. Officers share the concerns of residents that further HMO’s could harm the character and appearance of certainly this Conservation Area but also the other Conservation Areas. Currently HMO numbers in the Greenway Conservation Area comprise 11% of residential frontages for the whole length of the road (which exceeds 200m in length). It is proposed to set a benchmark of not more than 5% HMOs for this and other Conservation Areas through the street based assessment.

8. The Council undertook a 28 day consultation over January and February 2013 through press and internet notices. The consultation was undertaken to ensure statutory protocols were complied with and included direct letters to key stakeholders such as the University and Resident Associations within the wards of Uxbridge South and Brunel. The Council only received five consultation responses commenting on the policy document, two responses are in support and three are in objection.

9. One letter is completely in support of the policy document. A second letter states it is in support, but raises concerns that non HMO properties on roads with very high concentrations of HMO’s may become un-sellable, as the only potential purchasers are landlords of HMO’s. It is suggested that maybe in those streets there could be a kind of amnesty or even a referendum with remaining residents (this comment runs contrary to the ethos of the policy document which is to prevent individual streets and neighbourhoods with high concentrations of HMO’s from having any more HMO’s).

10. Of the three letters raising objections, two letters raise concern at how accessible data will be to potential landlords so they know which properties to buy (in essence the respondents want to know whether planning permissions will be granted without having to lodge a planning application, unfortunately it does not work this way, assurance that planning permission will be granted to convert a property to an HMO can only be gained from submitting a planning application). One of the letters of concern also questions whether the local Planning Authority will impose unreasonable conditions on approvals of HMO’s (the Council has to justify all planning conditions as ‘reasonable’ and ‘necessary’ in planning terms – hence there are already legislative safeguards which cover the respondents concerns). The fifth letter is from the National Landlord Association who sent a pre-formatted letter, which it can be assumed they issue as a standard objection to Councils implementing Article 4 Directions to control HMO’s. The letter highlights the positive benefits of HMO’s in meeting housing demand. It does not provide any criticism of the specific policy outlined in the consultation document.

11. In summary, officers have not received any consultation responses which cover issues other than general support or objection to the Article 4 Direction. No comments

Cabinet – 25 April 2013 Page 192

have been received which suggest alternative options to the policy criteria outlined in the consultation document (as summarised in paragraphs 5-7 above).

12. It is recommended that Cabinet take note of the comments received and that they agree that the policy document should be referred to the 9 May Full Council meeting for adoption.

Financial Implications

One of the effects of the implementation of the Article 4 direction will be that planning applications to convert dwelling houses to small HMOs in the two wards affected will need to be determined by the Council, but under current Government regulations these applications will not attract a fee. It is anticipated that there will therefore be a net cost to the Council to determine these applications which is estimated at most at £7k per year, which will be managed within the Development Control budget from 2013/14 onwards.

4. EFFECT ON RESIDENTS, SERVICE USERS & COMMUNITIES

What will be the effect of the recommendation?

The effect of the application of Policy HM1 should be positive on residents currently affected by the adverse effects of over-concentrations of HMOs in the Uxbridge South and Brunel wards. Implementation of the policy will prevent any new additional HMOs in certain streets and neighbourhood output areas within the two wards where HMOs are the dominant house type. There are currently 3 neighbourhood output areas that already exceed the 20% criteria (and one is at 19%) based on the latest 2011 census data assessed prior to writing this report. Prior to the IDDP being implemented an up to data map of neighbourhood output areas (based on 2011 census data) will be published on the Council web pages to assist both residents and potential landlords in understanding the likely implications of implementing the IDDP. In the long term the IDDP policy should help balance the composition of house types in the area, helping the Council achieve its policy objective of encouraging mixed and balanced communities across the Borough.

Consultation Carried Out or Required

Officers undertook a public consultation for 28 days on the proposed draft Interim Planning Policy Document (IDDP). The results of that consultation are contained in the body of the Cabinet Report.

5. CORPORATE IMPLICATIONS

Corporate Finance

Corporate Finance has reviewed this report and concurs with the financial implications set out above; noting that the net cost to the Council of this policy change is relatively minor and will be managed within existing revenue budgets.

Legal

Cabinet – 25 April 2013 Page 193

The draft Interim Planning Policy Document is intended to assist decision makers in determining planning applications where a change of use of a single family dwelling to a HMO is proposed. Officers have indicated in this report that the current adopted policy (the 2004 SPG) is out of date and that a more robust and up to date policy needs to be put in place before the Article 4 direction takes effect. Whilst the draft policy that is the subject of this report is not a statutory policy, it will nonetheless be a material planning consideration in determining planning applications and must be taken into account by decision makers in reaching decisions.

Article 4 and Part 4, the Budget and Policy Framework Procedure rules of the Council’s constitution states that the Cabinet are responsible for preparing policy framework documents that require full Council approval. This document is a Supplementary Planning Document and therefore must be adopted by full Council.

In considering the consultation responses, decision makers must ensure there is a full consideration of all representations arising including those which do not accord with the officer recommendation. The decision maker must be satisfied that responses from the public are conscientiously taken into account.

Corporate Property and Construction

Support the recommendations set out in this report.

Relevant Service Groups

A copy of this report has been circulated to the Private Sector Housing Team who are happy with the content of the draft document.

6. BACKGROUND PAPERS

Previous Cabinet reports Council meeting reports and minutes – 3 November 2011 and 28 February 2013

Cabinet – 25 April 2013 Page 194

INTERIM PLANNING POLICY DOCUMENT

HOUSES IN MULTIPLE OCCUPATION IN THE UXBRIDGE SOUTH AND BRUNEL WARDS

MAY 2013

Page 195 CONTENTS

1.0 Introduction

2.0 Interim Planning Policy Documents

Purpose Scope

3.0 Context

HMO Definition Managing the spatial distribution of HMOs Use of housing legislation to improve the management and condition of HMOs

4.0 Planning Policy Framework

The Local Plan Core Strategy

5.0 Planning Policy Approach

Assessing Concentrations of HMOs Neighbourhood Level Thresholds Street Level Thresholds Residential Amenity Permitted Development Rights Enforcement Conservation Areas

6.0 Monitoring and Review

Monitoring and Review Further Advice: (Key Borough Council Contacts) Glossary of terms

Page 196 1.0 Introduction

1.1 The National Planning Policy Framework (March 2012) provides the context for planning in its role of facilitating social interaction and creating healthy, inclusive communities and in ensuring that balanced and mixed communities are developed. The Framework therefore supports mixed communities but not the narrowing of household types and the domination by a particular type of housing. Within this context, a key Council priority in the Sustainable Community Strategy (2011) is to build confident, creative and inclusive communities that are strong, supportive and durable.

1.2 Houses in Multiple Occupation or HMOs represent a significant and growing proportion of the housing mix in Hillingdon. They make an important contribution to the housing stock, providing flexible and affordable accommodation for students and young professionals, alongside low-income households who may be economically inactive or working in low paid jobs. Whist HMOs are regarded as a valuable asset to the Borough’s housing offer, there is a debate about the wider impacts that concentrations of HMOs are having on certain neighbourhoods in south Hillingdon and on increasing rental costs. This debate has mainly been driven by local residents’ concerns over the increasing number of student households particularly in two wards adjacent to Brunel University and focuses on the detrimental impact that large concentrations of student HMOs can have on surrounding neighbourhoods, such as the loss of family and starter housing.

1.3 An evidence base has been considered which explores the distribution and likely impacts of HMOs, typically occupied by student households. This indicates that Uxbridge South and Brunel wards contain the highest concentrations of HMOs in Hillingdon. This indicates there is a need to control the number of HMOs in certain areas and streets where there is over concentration. This control can, in part, be achieved through an Article 4 Direction which the Council introduced on the 24th March 2013. This will cover the two wards of Uxbridge South and Brunel as shown below in Figure 1. This will remove permitted development rights allowing a change of use from residential dwellings to HMOs without the need for planning permission. The effect of the Article 4 direction will require a planning application to be submitted to change a property into an HMO. This Interim Planning Policy Planning Document (IPPD) provides guidance on how planning applications will be determined once the Article 4 direction takes effect.

2.0 Interim Planning Policy Documents (IPPD)

Purpose

2.1 This IPPD is intended to provide a policy approach and to provide further detail of policies on HMO’s to be included in forthcoming Development Plan Documents. It does not have development plan status, but it will be afforded significant weight as a material planning consideration in the determination of planning applications.

Scope

2.2 This policy statement will apply to all planning applications for change of use from dwellinghouse (Use Class C3) to small HMOs (Use Class C4) within the two wards of Uxbridge South and Brunel as shown on Figure 1 below. Section 3.0 below contains further detail with regard to what constitutes an HMO and information regarding the Council’s Article 4 Direction.

Page 197 2.3 The statement will not apply to purpose-built student accommodation and will not apply retrospectively to existing HMOs.

2.4 Currently a change of use from a small HMO (C4) to a dwelling house is permitted development and does not require planning permission. However, permission is still required to change a dwelling house to a large HMO (6 or more residents) and to change a large HMO to a dwelling house.

2.4 In addition to this statement, other existing policies from the Saved UDP Policies 2007 and Hillingdon Local Plan Part 1 may also be relevant to the consideration of HMO planning applications depending on individual circumstances. This IPPD provides guidance only. The Council’s Development Management team will provide further advice on individual applications (contact details are provided at the end of this document).

3.0 Context

HMO Definition

3.1 On 6 April 2010, amendments made to the Use Classes Order and the General Permitted Development Order introduced a new class of development – C4 ‘Houses in Multiple Occupation’. To be classified as an HMO, a property does not need to be converted or adapted in any way. Properties that contain the owner and up to two lodgers do not constitute a HMO. Properties that contain three, four or five unrelated occupants who share basic amenities are commonly referred to as a ‘small HMOs’. A house that contains 6 or more unrelated people is commonly referred to as a ‘large HMO’. These large HMOs do not have a use class and are classified as ‘sui generis’ i.e. outside the Use Classes Order.

Managing the spatial distribution of HMOs

3.2 Changes made to the General Permitted Development Order on 1 October 2010 made the change of use from Class C3 (single household dwelling house) to C4 (HMO) permitted development. This means that planning permission for this change of use is not required. Any local authorities wishing to exert tighter planning controls on the development of HMOs, would have to remove permitted development rights via an Article 4 Direction. Under an Article 4 Direction, planning permission, within a given area, would be required for a change of use from a dwelling house to an HMO. An article 4 direction covering the two wards of Uxbridge South and Brunel came into effect on the 24th March 2013 in the area shown within the red line boundary on the map at Figure 1 (see below). It should be noted that the effect of an Article 4 Direction is not to prohibit HMOs but to require a planning application to be submitted for HMOs in the area to which it applies. The Article 4 direction does not apply beyond the two wards to which it relates.

Page 198 Figure 1

Use of housing legislation to improve the management and condition of HMOs

3.3 Housing standards and management of existing HMOs are primarily delivered through the Housing Act 2004 and associated regulations. Under this Act local authorities have a duty to license any HMOs that are three storeys or over and are occupied by five or more persons. This is mandatory licensing. Authorities also have the power to extend licensing (known as additional licensing) to other types of HMO or to specific areas (known as selective licensing). Hillingdon implements additional licensing to include two storey HMOs occupied by five or more persons. Other actions available to the Council include a landlord accreditation scheme or street/community wardens to deal with anti- social behaviour.

3.4 The Council’s current approach recognises that HMOs are a vital source of accommodation used by a range of tenants. Current policy is to:

• enforce the mandatory provisions of the Act by licensing larger HMOs; • enforce the Additional Licensing scheme by licensing smaller two storey HMO’s within a designated area covering the south of the Borough; • inspect all licensed HMOs; • respond to and investigate complaints about general housing conditions and management including overcrowding • implement the Housing Health and Safety Rating System to assess housing conditions and exercise HMO management regulations and to • provide a framework for managers to ensure that accommodation including that of outside space is kept in a good order, tidy and clean.

3.5 The Council is part of the London Landlord Accreditation Scheme which seeks to promote good practice and accredit landlords who own properties across London (see http:www.londonlandlords.org.uk/portal/index).

Page 199 3.6 The exercise of powers available to the Council under the Housing Act 2004 does not directly control the scale and distribution of HMOs but it does provide opportunities for intervention to secure improvements to the management and maintenance of HMOs. Accordingly, it presents the Council with an opportunity to pursue complementary measures in support of its planning policies.

4.0 Policy Framework

Saved Unitary Development Plan Policies 2007

4.1 For historic planning reasons the Council’s UDP policies provide no distinction between a dwelling occupied by one household, such as a family, and that of a dwelling occupied by up to 6 unrelated people. The Use Class Order (1987) did not distinguish between a dwelling occupied by a conventional household and that of a dwelling occupied by up to 6 residents living together as a single household. Accordingly, the Council had very limited control over the occupation of dwellings in the private rented sector by groups of up to 6 people. At the time of the adoption of the UDP shared houses of 6 or more residents did not fall within Class C3, were defined as HMOs, and fell within the Sui Generis use class.

4.2 In this context UDP Policy H7 and Policy H8 on ‘Conversions’ the UDP policies were written to control the conversion of properties to flats and to HMOs (for more than 6 people). These policies essentially seek to ensure that residential amenity is protected. To support these policies existing Planning Guidance on extensions and alterations to private dwelling houses is available which provide a reference for householders, builders and developers intending to alter or extend residential buildings.

Hillingdon Local Plan: Part 1 – Strategic Policies

4.3 Policies H1 and BE1 of the Hillingdon Local Plan Part 1 Strategic Policies support housing development which helps to balance Hillingdon’s housing market, addresses local housing need, and ensures that housing is adaptable to the needs of residents throughout their lifetime. This will be implemented in a number of ways as set out under Policies H1 and BE1. With regard to HMOs, the forthcoming Local Plan Part 2 Development Management Policies will seek to control the concentration of HMOs where further development of this housing type would have a detrimental impact on communities and residential amenity. Pending the development and adoption of the Development Management Policies, this IPPD will set out the Council’s approach to HMO’s in relation to the Brunel and Uxbridge South Wards.

4.4 The Local Plan recognises that higher education institutions and the student population form an important element of the community and the presence of a large student population contributes greatly to the social vibrancy of Uxbridge and the local economy. The Council are committed to ensuring student needs are met and will continue to work with Hillingdon’s higher education institutions in addressing student housing needs. However, it is also recognised that concentrations of student households, often accommodated in HMOs, can cause imbalances in the local community which can have negative effects. These negative effects can include a rise in anti social behaviour, increases in crime levels, parking pressures, general increase in demand for local shops such as takeaway establishments, off licenses etc. It can also put pressures on family and starter housing as owner occupiers and buy to let landlords compete for similar properties. It also has implications for non students seeking accommodation in the private rented sector. Page 200

4.5 The future monitoring of the spatial distribution and impacts of student housing and other HMOs will allow the Council to identify if it is necessary to prevent an increase in the number of student households and other HMOs in certain areas to ensure communities retain a satisfactory mix of households.

5.0 Planning Policy Approach

5.1 The policy approach to determining planning applications for change of use to HMO is guided by the Local Plan’s Vision for all of Hillingdon’s current and future residents to have access to decent, safe and accessible housing. A key element of the Local Plan is to maintain community cohesion and help develop strong, supportive and durable communities.

5.2 There is evidence to demonstrate that there is a need to control the number of HMOs across the two wards adjacent to Brunel University to ensure existing communities are not adversely affected by concentration of HMO’s. A policy approach to development management for HMOs of all sizes is required. A threshold based policy approach would be the best approach as this tackles concentrations of HMOs and identifies a point beyond which issues arising from concentrations of HMOs become harder to manage and community cohesion is undermined. Whilst there is no formal definition of what this point is there have been considerations of what constitutes a large HMO proportion and the threshold at which a community could be irrevocably changed. The Council’s current Supplementary Planning Guidance (SPG) on ‘Houses in Multiple Occupation and other non-self contained housing’ (2004) suggests a threshold of 15% of all properties in a street length. The current evidence base suggest 15% is a reasonable level. However, the SPG whilst recognising particular concentrations at a street level does not factor in levels of concentrations beyond individual streets at a neighbourhood level.

5.3 An assessment of the proportion of households that are HMOs has been undertaken within the two wards. To capture as many different types of shared accommodation as possible the Council has used:

• council tax records - student households are exempt from Council Tax and addresses of exempt properties have been identified. This exemption applies to all properties occupied by one or more students either in full time or term time accommodation. (NB: whilst properties falling within ‘Halls of Residence’ on campuses are not included, some accommodation owned or managed by the universities off campus is included);

• licensed and unlicensed HMOs - records from the Council’s Housing Team of those properties requiring an HMO licence have been identified, as well as databases of currently un-licensed properties;

• properties benefiting from C4 or sui generis HMO planning consent – in addition to those properties already identified as having HMO permission, or where planning permission has been given for a change of use to C4 HMO or a certificate of lawful development issued for existing HMOs; and

• properties known to the Council to be HMOs – e.g. established through site visits undertaken by the Council’s Housing team in response to complaints.

Page 201 5.4 These data sets have been collated to calculate the proportion of shared households as a percentage of all households. These sources provide the best approach to identifying the numbers and location of HMOs in an area, although it is accepted that it may not be possible to identify all properties. The data can be analysed to avoid double counting, for example, identifying where a property may be listed as a licensed HMO and have sui generis HMO planning consent. Given that the information collated may be expected to change over the course of a year as houses and households move in and out of the private rented sector it is considered appropriate to base the assessment at a single point in time. Data can therefore be reviewed annually as part of the monitoring process.

5.5 It is important to consider the appropriate geographic level at which the threshold approach should be applied. An approach that covers both neighbourhood and street level assessment of HMO will give the Council greater control in managing concentrations of HMOs. Under this approach HMOs at a neighbourhood and street level will both be controlled, acknowledging that issues arising from concentrations of HMOs affect both neighbourhoods and individual streets.

5.6 A combined approach of both a neighbourhood and street level analysis of HMOs will seek to control concentrations of HMOs of more than 20% of all households at a neighbourhood output area level and 15% at the street level. The following policy will be applied:

Policy HM1

Applications for the change of use from dwelling house (Use Class C3) to HMO (Use Class C4 and Sui Generis) will only be permitted where:

• It is in a neighbourhood output area where less than 20% of properties are exempt from paying council tax because they are entirely occupied by full time students or recorded on the Council’s database as an HMO or benefit from C4/Sui Generis HMO planning consent or are known to the Council to be HMOs (based on the Councils annual survey data) or

• Less than 15% of properties outside Conservation Areas, or 5% in Conservation Areas, within 100 metres of a street length either side of an application property are exempt from paying council tax because they are entirely occupied by full time students or recorded on the Council’s database as an HMO or benefit from C4/Sui Generis HMO planning consent or are known to the Council to be HMOs; and

• The accommodation complies with all other planning standards relating to car parking, waste storage, retention of amenity space and garages and will not have a detrimental impact upon the residential amenity of adjoining properties.

5.7 The aim of the policy is to continue to provide HMO accommodation to meet the Borough’s housing needs but to manage the supply of new HMOs to avoid high concentrations of use in a particular area. Further justification on the policy approach is set out below.

Page 202

Assessing concentrations of HMOs

Neighbourhood Level

5.8 As highlighted in the reasons underpinning the Article 4 Direction, some issues arising from concentrations of HMOs can be a neighbourhood matter, going beyond the immediate area of individual HMOs. Uxbridge South and Brunel wards contain the three highest concentrations of HMOs by Census of Population “output areas”: 29%, 28% and 26% respectively. One ‘output area’ covers approximately 125 households as defined by the Office for National Statistics. The effect of such concentrations can be a decreasing demand for local schools and changes in types of retail provision, such as local shops meeting day to day needs becoming takeaways. In the context of the Councils HMO policy document these output areas are considered to be a suitable definition of a neighbourhood and appropriate to act as defined areas where HMO numbers should be capped where 20% of the properties are identifiable to the Councils as HMOs irrespective of street based assessments over a 100m distance from the application site.

Street Level

5.10 An assessment of concentrations of HMOs at street level showed extreme variations in numbers within individual streets where the highest concentrations defined by individual output areas are the highest. The effect of the HM1 policy at street level will preclude any new HMOs in certain individual streets. The margins in many other streets are close to the 15% benchmark which will soon exclude new HMOs once the benchmark is reached. The policy should allow the Council to manage clustering of HMOs along streets and prevent whole streets from changing to HMOs. Such control may be beneficial to streets with property types that are particularly unsuited to HMO use and would protect the character of a street by maintaining a mix and balance of tenure types.

5.11 For the purposes of this approach it is considered that a length of 100 metres of a street frontage can reasonably be considered to constitute a property’s more immediate neighbours and is therefore the proposed distance threshold for assessing concentrations of HMOs at street level. This is to be measured along the adjacent street frontage on either side of the road, crossing any bisecting roads and also continuing round street corners. This is illustrated at Figure 3 below.

Page 203

Residential Amenity

5.12 Change of use from a dwellinghouse to an HMO may not involve internal or external alterations to the property but the change of use itself may constitute development. The Council seeks a standard of development that maintains or enhances the general amenity of an area and provides a safe and attractive environment for all, including neighbouring residents.

5.13 It is recognised that concentrations of HMOs can impact upon residential amenity and can create particular issues with regard to:

• increased levels of crime and the fear of crime; • poorer standards of property maintenance and repair; • littering and accumulation of rubbish; • noises between dwellings at all times and especially at night; • decreased demand for some local services; • increased parking pressures; and Page 204 • lack of community integration and less commitment to maintain the quality of the local environment.

5.14 Several of these issues can be made worse during out of term times when properties can be empty for long periods of time.

5.15 In assessing planning applications for HMOs, the Council will seek to ensure that the change of use will not be detrimental to the residential amenity of the area. In considering the impact on residential amenity, attention will be given to whether the applicant can demonstrate that:

• the dwelling is large enough to accommodate an increased number of residents; • there is sufficient space for potential additional cars to park; • there is sufficient space for appropriate provision of secure cycle parking; • the condition of the property is of a high standard that contributes positively to the character of the area and that the condition of the property will be maintained following the change of use to HMO; • the increase in number of residents will not have an adverse impact on noise levels and the level of amenity neighbouring residents can reasonably be expected to enjoy; • there is sufficient space for storage provision for waste/recycling facilities in a suitably enclosed area within the curtilage of the property; and • the change of use and increase in number of residents will not result in the loss of front gardens to hard standing to parking or refuse areas which would have a detrimental affect on the street scene.

5.16 Whilst planning powers cannot be used to enforce internal space standards of existing dwellings and the level of facilities to be provided, planning conditions can be used to secure adequate living conditions in dwellings in so far as they are affected by sunlight, daylight, outlook, privacy and noise. These factors can impinge on the internal layout of dwellings, especially HMOs and will be taken into account in assessing planning applications.

5.17 In terms of the Housing Act 2004 the standards outlined in ‘Standards to be adopted for Houses in Multiple Occupation within the London Borough of Hillingdon’ will apply.

5.18 In some cases, such as parking and bin storage there is existing council advice that applicants can refer to at www.hillingdon.gov.uk and the Hillingdon Design and Accessibility Statement SPG in particular.

Permitted Development Rights

5.19 Permitted development rights under the General Permitted Development Order allow certain types of development to proceed without the need for planning permission. The most commonly used permitted development rights relate to dwelling houses, such as small scale extensions and alterations to roofs, including dormer windows. Where planning permission is granted for a change of use from a residential use (Use Class C3) to a HMO (Use Class C4) permitted development rights no longer apply. Where it is considered reasonable to do so, the Council may decide that it is necessary to add additional planning conditions to a grant of planning permission to control inappropriate alteration or extension to properties and to avoid the hard surfacing of gardens. This will ensure that HMOs with Page 205 gardens are able to revert back to dwelling houses for family occupation during the lifetime of the property. In some cases it may also be considered necessary to attach a condition to retain garages for the purposes of vehicle parking and the storage of cycles and bins.

5.20 Should the change of use from dwelling houses to HMO involve alteration, extension, or subdivision which are acceptable in principle then detailed guidance provided in the Hillingdon Design and Accessibility SPG’s should be followed. These SPGs set out the planning principles that the Council will use to assess such development and in essence, seek to ensure that additional changes do not have an adverse impact on residential amenity, including noise impacts. They cover issues such as bin storage, parking, good design, appropriate extensions to protect the character of an area and private amenity space.

5.21 Given the important role shared housing plays as part of the Borough’s housing stock, the condition of HMO properties should be of a high standard. This is particularly important given that the Private Sector Stock Condition Survey carried out identified that 26.5% of HMOs failed decent homes standard. As such, in the interest of visual amenity and where considered reasonable to do so, the Council will require the applicant to implement a management plan for external areas of the property including arrangements for the regular maintenance of gardens and bin storage. The Council will continue to work with partners such as the university in improving standards of HMOs and tackling any residential amenity issues.

5.22 As set out in Section 3.0, the Council are able to secure improvements to the management and maintenance of HMOs (both internal and external) under the HMO Management Regulations within Housing Act 2004. In particular, applicants are encouraged to sign up to the London Landlords Accreditation Scheme. It should be noted that compliance with the planning requirements set out in this IPPD does not mean that an HMO is compliant with other legislation and requirements.

Enforcement

5.23 Enforcement will play a key role in ensuring the provisions of this guidance are implemented correctly. For more information on the Council’s approach to planning enforcement and how to report an enforcement case please see the Council’s website . It should be noted that the Council can only take action on a breach of planning control where a material change of use has actually occurred, not when a property has been sold but remains unoccupied, or when it is in the process of conversion.

Conservation Areas

5.24 The two wards contain 8 Conservation Areas which either wholly or in part lie within the two wards boundaries. Conservation Areas are particularly sensitive to conversions owing to potential adverse impacts on their special architectural and historic character. They require an additional and higher standard of protection to preserve this character. Greenway Conservation Area in particular has been identified at risk of erosion of its character and appearance by virtue of increasing numbers of HMOs given its close proximity to Brunel University. The policy in the SPG does not allow for more than 5% of dwellings to be converted to HMOs and no Page 206 two consectitive dwellings to be converted in Conservation Areas. In this IPPD the 5% figure will be applied as part of street based assessments. The 5% threshold will apply to all Conservation Areas in or abutting the two ward boundaries.

6.0 Monitoring and Review

6.1 Monitoring and review are key aspects of the Government’s ‘plan, monitor and manage’ approach to the planning system. This IPPD must involve monitoring the success and progress of the policy contained within this statement to make sure it is achieving its aims and if necessary make adjustments to the IPPD if the monitoring process reveals that changes are needed. The policy approach and in particular the thresholds will be reviewed annually to ensure that it continues to provide opportunities for a balance of household types and meets the needs for HMOs. Alternatively consideration could be given to establishing an information system and sharing of data between service areas to ensure continual monitoring of HMO changes consistent with delivering an up to date approach to the implementation of this planning policy.

Further Advice (Key Borough Council Contacts):

Private Sector Housing 01895 277437 PSTeamhousing@hillingdon .gov.uk

Development Management 01855 250230 Planning enquiries @Hillingdon.gov.uk

Planning Enforcement 01855 250230 [email protected]

Glossary of Terms

Output Areas

Output Areas or Census Output Areas. These are the smallest unit for which census data are published -They were initially generated to support publication of the Census 2001 outputs and contain at least 40 households and 100 persons, the target size being 125 households. The output areas generated in 2001 will be retained as far as possible for the publication of outputs from the 2011 Census.

Super Output Areas (SOAs) are a set of geographical areas developed following the 2001 census, initially to facilitate the calculation of the Indices of De[rivation 2004 and subsequently for a range of additional Neighbourhood Statistics. The aim was to produce a set of areas of consistent size, whose boundaries would not change (unlike electoral wards), suitable for the publication of data such as the Indices of Deprivation. They are an aggregation of adjacent Output Areas with similar social characteristics. Lower Layer Super Output Areas (LSOAs) typically contain 4 to 6 OAs with a population of around 1500. Middle Layer Super Output Areas (MSOAs) on average have a population of 7,200. The hierarchy of Output Areas and the two tiers of Super Output Areas have become known as the Neighbourhood Statistics Geography.

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Page 208 Agenda Item 9

Housing Strategy 2012/15, Tenancy Strategy, Tenancy Policy and Housing Allocations Policy: Post Consultation Report

Cabinet Member(s) Councillor Philip Corthorne

Cabinet Portfolio(s) Social Services, Health and Housing

Officer Contact(s) Neil Stubbings, Residents Services Paul Feven, Finance

Papers with report Draft Housing Strategy 2012/15 (Appendix 1) Draft Tenancy Strategy (Appendix 2) Draft Tenancy Policy (Appendix 3) Draft Housing Allocations Policy (Appendix 4) Outcome of Consultation (Appendix 5) Impact Assessment (Appendix 6)

Please note: hard copies of these appendices will be circulated to Cabinet and Executive Scrutiny Members only. Reference copies will be available in Group Offices.

Cabinet Report – 25 April 2013 Page 209

1. HEADLINE INFORMATION

Summary Cabinet gave its approval to consult on the collection of draft housing strategy and policy documents in January 2013. This report presents a summary of the outcome of consultation as well as a set of documents amended in light of comments received during the consultation process.

The Housing Strategy (Appendix 1) illustrates how the Council will enable residents to live in homes of all tenures which are in good condition, energy efficient and well managed. It also describes services and specialist housing for vulnerable people who require assistance to live independently in the community. The strategy takes account of the flexibilities offered by the Government’s localism agenda and implications of welfare reform including the opportunity to offer flexible (renewable, fixed term) tenancies for new social housing tenants rather than the tenancies that are currently offered.

The Tenancy Strategy (Appendix 2) is the Council’s guide for all registered social housing providers regarding how they should implement flexible tenancies in Hillingdon.

The Tenancy Policy (Appendix 3) explains how the Council will implement flexible tenancies in its own stock.

The Localism Act gives the Council new freedoms to revise the way in which social housing is allocated to reflect local priorities. The Housing Allocation Policy (Appendix 4) has been reviewed as a result and is included within this report for Cabinet approval.

Contribution to our The Housing Strategy, Tenancy Strategy, Tenancy Policy and plans and strategies Housing Allocations Policy support the objectives of the Sustainable Community Strategy and the Health and Wellbeing Strategy.

Financial Cost There are no direct financial implications arising from the recommendations of this report. All associated costs will be contained within future budgets prepared within the MTFF framework.

Relevant Policy Social Services, Health and Housing Policy Overview Committee Overview Committee

Ward(s) affected All

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2. RECOMMENDATION

That Cabinet:

1) Notes the outcome of consultation with stakeholders (as outlined in Appendix 5) on the Housing Strategy 2012-15, Tenancy Strategy, Tenancy Policy and the review of the Housing Allocations Policy.

2) Accepts the amendments made to the Housing Strategy, Tenancy Strategy and Tenancy Policy following consultation as outlined in paragraph 34

3) Formally approves the Housing Strategy 2012-15 (subject to approval by full Council), Tenancy Strategy and Tenancy Policy and the Housing Allocations Policy.

4) Agrees to review of the operation of the Allocations Policy after one year so that Cabinet are able to consider whether any changes to the policy should then be made.

Reasons for recommendation

The Housing Strategy, Tenancy Strategy, Tenancy Policy and Housing Allocations Policy are intended to result in the following benefits for Hillingdon residents:

• Timely and effective help and advice for households who approach the Council with a housing need; • Allocation of social housing in a clear and transparent way, taking account of criteria decided locally; • Better use made of Council housing for those who need it; • The development of affordable homes to meet the needs of families who cannot afford market housing; • Empty homes are brought back into use; • Homes in the Borough have improved energy efficiency and fewer households live in fuel poverty; • Older people and other people in vulnerable groups have the choice of living in housing especially designed for them, where care and support are provided.

Alternative options considered / risk management

The alternative options available to Cabinet are not to approve the draft documents with amendments made after consultation or to require further amendments to the documents prior to approval.

Policy Overview Committee comments

The Policy Overview Committee considered all four documents at its meeting on 30 January 2013.

The Committee enquired about how flexible tenancies would operate to use housing stock to its best advantage.

Some members of the Committee disagreed with the Council discharging its housing duty in the Private Rented Sector, the suggestion that 80% of market rents were affordable and the

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removal of lifetime tenancies. They suggested the flexible term tenancy, if adopted, should be extended from 5 years to 10 years and suggested that carers could be exempted from this policy. It was suggested that a closely monitored list of private landlords should be created to provide assurance to tenants in the PRS.

The Council’s discretionary “second succession” policy was raised in discussion and concern was expressed about instances of misunderstanding that had occurred under the current policy. Officers confirmed that tenants were entitled to one succession in law and that a recommendation would be made to Cabinet removing the discretionary second succession policy.

In relation to the Housing Allocation Policy, members asked for further clarification as to whether this would be decided by local criteria or local need. Officers explained that in all cases, the most vulnerable would be housed first but that the Localism Act would cater for some allocations to be made according to local needs.

With regard to the requirement that 10 years living continuously in the same location amounted to local residency, members asked how this might be applied to asylum seekers.

Asylum seekers do not have access to social or council housing. If asylum seekers meet requirements for housing while waiting for a decision on their application, they will be placed by the UK Borders Agency wherever suitable housing is available in the UK. They are not able to choose where to live and housing is not provided in London.

3. INFORMATION

Supporting Information

1 In January 2013, Cabinet approved the drafts of the Housing Strategy, Tenancy Strategy, Tenancy Policy and the Allocations Policy Review for consultation with stakeholders. After a period of eight weeks consultation, the Housing Strategy, Tenancy Strategy and Tenancy Policy have been amended and the final Housing Allocation policy has been drafted in light of the results.

2 This report provides a brief overview of the four documents, the outcome of the consultation and the documents themselves for formal approval. The Tenancy Policy and the Allocations Policy, if approved by Cabinet, will be implemented from a date to be agreed with the Leader of the Council.

Housing Strategy 2012-15 (Appendix 1)

3 The strategy sets out the direction for housing services with an over-riding mission to enable residents to live safe, healthy and independent lives. Services will be developed according to three strategic priorities:

• Managing demand – keeping residents independent, investing in preventative services to stop or significantly delay residents becoming homeless, in housing need or requiring ongoing social care. • Managing supply – commissioning private and voluntary housing services, and social care, delivering support, choice and independence to vulnerable, complex and high dependence residents.

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• Managing the support – efficient and effective in-house service provision that is focused on reablement, delivering time-limited interventions to effect change so that residents can learn or re-learn crucial skills to live independently.

Tenancy Strategy (Appendix 2)

4 All registered providers should have regard to the Tenancy Strategy in setting their tenancy policy for Hillingdon.

5 Under the Localism Act, the Government has introduced the freedom to grant flexible tenancies as a way of enabling local authorities to make use of this scarce and valuable public resource.

6 The security and rights of existing social housing tenants are protected, including when they move to another social rented home. However, provisions in the Localism Act allow for more flexible arrangements for people entering social housing in future. The Strategy states that social landlords can grant tenancies for a fixed length of time with the expectation that five years in Hillingdon will be the norm, with a minimum period of two years in exceptional circumstances. At the end of the fixed term, the household's circumstances will be reviewed by the social landlord. The tenancy can be renewed if the household still meets the appropriate criteria.

7 There is no upper limit on the length of tenancy and social landlords can still offer long term secure and assured tenancies if they wish. Flexible tenancies can however enable social landlords to manage their social homes more effectively and deliver better results for local communities. The intention within Hillingdon is for a five year period to be the norm.

8 Registered social housing providers (including the Council in its landlord role) must publish a tenancy policy before they can use flexible tenancies.

Tenancy policy (Appendix 3)

9 The Tenancy Policy shows how Hillingdon Council, as a registered provider of social housing, will allocate and manage social housing tenancies.

10 Flexible tenancies are recommended after one year probationary tenancies. Five year tenancies are proposed as the norm, with two year and secure and assured tenancies offered for individual household and property types, in accordance with the Draft Tenancy Strategy for the Borough. If the household still needs the accommodation the presumption will be that their tenancy will be renewed. Formal tenancy reviews are proposed no later than seven months before the end of the tenancy.

11 The Localism Act makes changes to the statutory right of succession for new secure and assured and flexible term tenancies starting after 1 April 2012. From the date of the Tenancy Policy’s introduction it is proposed to limit succession to one succession which, for new tenants, can only be taken up by the deceased tenant’s spouse (husband, wife, common law partner or partner from a civil partnership). There will also be one succession for existing tenants, but this can be taken up by the broader list of family members which is currently in use in Hillingdon.

12 Subject to the Government granting such freedoms to local authorities in the future, the Council could decide to increase the rent for a Council property to at least 80% of market rent in cases where the tenant’s income is higher than a threshold to be determined by Government.

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The reasoning behind this is that the household could afford either to rent privately or purchase on the open market. Guidance has not yet been published but Government consultation has set the possible figure at £60,000 or above. This income threshold is included in the review of the Allocations Policy. The additional rent would be used as a contribution to the cost of new affordable homes.

Housing Allocations Policy (Appendix 4)

13 The Localism Act introduces new flexibilities for local authorities to determine how they allocate social and affordable housing. The Housing Allocations Policy has been reviewed and revised to give priority to certain groups, reflecting local need and to build more sustainable communities. The review and revision of the policy has been carried out in light of the provisions of the Localism Act 2011, Welfare Reform Act 2012 and the Mayor of London’s Housing Strategy. The revision has also taken account of new regulation, changes in housing market conditions and local priorities.

14 The Housing Allocations Policy ensures that:

• Priority will continue to be given to those in statutory “reasonable preference” groups; • The scarce resources of social housing will be used flexibly and not provided to those households who do not require it; • Social housing will be used as effectively as possible to meet housing need in the Borough; • The use of social housing reduces reliance on inappropriate and costly forms of temporary accommodation; • Vulnerable people within social housing are provided with stability and support • The allocation of housing tackles health inequalities.

Outcome of consultation (Appendix 5)

15 The consultation period ran for eight weeks from 4 February to 2 April 2013. Several methods of consultation were employed to reach council tenants, residents and stakeholder organisations. In addition, the Council sent a copy of the Tenancy Strategy to private registered providers of social housing in the Borough, giving them an opportunity to comment. Registered providers were involved, at meetings and a consultative workshop, in shaping the content of the Tenancy Strategy. The Council also sent a copy of the Tenancy Strategy to the Mayor of London for his comments.

16 The four documents were made available to the general public on the Council’s web site. Anyone wishing to respond to the consultation had a range of options open to them: • Comments on the documents were sought at a number of meetings with stakeholder organisations, Council tenants, partners, residents associations and staff. • Residents could complete an on line survey form, • Residents could send a response to the Customer Engagement Team’s postal or email address or could contact the Team by phone to provide a verbal response, • A questionnaire was sent to a sample of Hillingdon residents. • An alerting message was placed on Locata inviting bidders for social housing from the Council’s housing register to respond to the public consultation. • Members of the public, including those approaching the Council for housing assistance, were interviewed in person at three locations in the Borough.

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• Copies of the documents were made available at the Civic Centre and at Libraries.

Outcome of the survey

17 The majority of the 404 people who responded to the consultation by returning a survey form were in agreement with the Council’s proposals:

18 67% agreed with the proposed change from a lifetime tenancy to a tenancy limited to a length of five years. There was very strong agreement (94%) with the proposal to retain lifetime tenancies for older people in sheltered and extra care accommodation. There was similar strong support (81%) for varying the length of tenancy in specialist housing where, for example, people with a disability might be helped to live independently.

19 81% of respondents agreed that a flexible tenancy would not be granted if a household had sufficient income or assets to meet their housing needs on the open market. 76% agreed that a tenancy would not be granted if the property were larger than was needed by the household.

20 A very high percentage of respondents (87%) agreed with the proposal that a flexible tenancy would not be granted if tenants had not met the standard conditions of a previous tenancy.

21 Just over half (55%) of respondents agreed with the proposal that households without priority need would no longer be able to join the housing register. Many commented that there seemed little point in being on the register if the wait was so long, agreeing with the principle of reducing the size of the list. Others who disagreed or were unsure viewed joining the register as a basic right regardless of the waiting time.

22 79% of respondents agreed that households must be resident in Hillingdon for ten years in order to join the housing register. There was an overwhelming majority agreement (87% of respondents) with the proposal that recent former members of the armed forces should receive additional priority for social housing. 67% agreed that working households should receive additional priority, but only 41% agreed that working couples aged over 21 should do so. There was a view that everyone needs a home, but that working couples without children should be able to afford to rent or buy in the private sector and that couples with children should have priority.

23 The proportion of respondents who agreed with the proposal that the Council would be able to house homeless households in private rented accommodation, even if the household wanted to wait for suitable social housing to become available, was 64%. Those disagreeing or unsure saw the loss of family support as a major difficulty and thought that private sector landlords may seek to gain from the situation:

24 85% of respondents agreed that households on the housing register which made bids and then refused an offer of a social rented home three times should not be allowed to bid for six months.

25 65% of respondents agreed that homeless households in temporary accommodation for longer when compared with others in the same priority and bed size can be directly allocated a settled home. Some respondents commented that the settled home should suit the family in terms of size and location.

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Outcome of consultation meetings

26 The following is a summary of the key points that were made at the range of stakeholder meetings which were held during the consultation. It is important to note that these comments are most typical of those which were made by individuals during a range of meetings with stakeholders.

Comments on the Tenancy Strategy

27 [Note: The Government’s new Affordable Housing model enables social landlords to set rents for new homes at up to 80% of market rent levels.] Comments were made that homes with rents set at 80% or even 65% of market rent could be unaffordable. The strategy states that rents will be set at an affordable level, and that affordable means no more than 40% of income is spent on housing costs. Respondents felt that spending 40% of a higher income on housing costs has a significantly smaller impact than spending 40% of a lower income. A more flexible sliding scale was felt to be more appropriate.

28 The various exemptions to the five year flexible tenancy term were welcomed but concern was expressed regarding the five year tenancy length for older people in general needs housing. There was, however, acceptance that the end of the tenancy would be an opportunity to access sheltered or extra care accommodation if needed. Respondents felt that in extra care accommodation, lifetime tenancies should be granted not just to older people but to younger people who are placed in extra care because they have a disability. Parents and other family members will want reassurance that they are permanently housed, especially if the tenant has moved into extra care from residential care.

Comments on the Tenancy Policy

29 Some questions and concerns were raised at meetings concerning when tenancy succession can take place. The legal requirement is for one succession only. It is proposed to remove the discretionary tenancy policy for new and existing tenants. For new tenants the statutory succession will be limited to the deceased tenant’s spouse. However, existing tenants will retain existing statutory and contractual succession rights which include a wider group of relatives. This broader range of eligible relatives for existing tenants was welcomed by those attending consultation meetings.

30 It was accepted as fair that there should be an income level above which the Council could charge 80% of market rent or market rent, as long as the income level was set at the relatively high level of £60,000 or more. It was also general accepted that the Council and other providers must manage the scarce subsidised resource of social housing as well as possible. It was felt that the needs of some on the housing register may be higher than those of the children of a number of current tenants.

31 Respondents questioned whether the rent could be lowered again for households charged an Affordable Rent (80% of market rent) if their income then falls below the designated threshold at a later date. There are households in private rented accommodation that the council are paying the rent for. Respondents asked whether it would make more sense for the Council to buy these properties and pay the mortgage on them.

Comments on the Allocations Policy

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32 Concern was expressed about housing people in private rented accommodation outside the Borough. Respondents thought that this should be kept to a minimum and that the vulnerability of family members should be taken into account when allocating properties.

33 It was strongly felt that allocation should be by housing need rather than local criteria, and that there may be legal issues relating to the 10 year residency requirement. The ten year residency rule to get on to the housing register runs the risk of challenge if adopted. Several comments were made that the policy may not meet equalities objectives by appearing to give preference to the established population.

Details of the outcome of the consultation and the methods used are supplied in the report at Appendix 5.

Key changes as a result of consultation

34 The documents remain largely unchanged following consultation, with the most changes being minor changes to text to improve readability and correct any drafting errors. Those changes that are more significant are detailed below.

• No significant changes have been made to the Housing Strategy.

• The Tenancy Strategy and the Tenancy Policy have been amended so that lifetime tenancies, as well as being granted for older people in extra care, will also be extended to younger people who are placed in extra care because they have an enduring disability, if they were previously housed in residential care.

• The Allocation Policy has been amended to:

• disregard military compensation when assessing the assets of former service personnel, • add reference to assets abroad resulting in prevention to access to social housing, • amend the reference to the use of Locata to make it clear that the Council will continue to use choice based lettings.

Financial Implications

There is no immediate financial impact from the proposed recommendations. The implementation of the Housing Strategy as set out in this report will be contained within resources approved by Cabinet over the life of the strategy. The Resources Section within the Housing Strategy document provides further information on funding and planned spends. The resources outlined could be increase by further funding from additional grants which could be made available to the Council in the future. These will be submitted to Cabinet as they become available.

The strategy covers the Council’s responsibilities within both General Fund and The Housing Revenue Account (HRA). The self financing settlement signalling the ending of the HRA subsidy regime provides a sounder basis for long term planning as it removes the funding volatility that was inherent within the subsidy system. Hillingdon was required to take on additional debt of £191.6m in exchange for the annual (negative) subsidy payments in the region of £18m. Although the substantial increase in debt poses a financial risk from adverse interest rate movements, these risks can be contained by an appropriate Treasury Management strategy.

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By clearly setting out priorities, the Housing Strategy can ensure that the approved resources are used in line with best value. The £1.7m savings from extending the range of supported housing options for people with learning disabilities, physical disabilities, and mental health problems who are currently in residential care is an initiative that involves a wider consideration of housing needs for the wider community including clients of adult social care. This provides an example of potential of the HRA to have a positive link with General Fund services.

4. EFFECT ON RESIDENTS, SERVICE USERS & COMMUNITIES

What will be the effect of the recommendation?

A revised housing offer will be developed for Hillingdon residents. As a result residents will find that:

• Allocation of social rented housing is conducted in a more transparent way; • Local factors are taken into consideration when social rented housing is allocated; • Households will receive proactive advice and support if threatened with loss of housing benefit; • Their homes are more energy efficient as a result of funding for planned improvements; • Well designed new homes including new affordable homes are provided to meet local housing need; • Flexible length tenancies will help the social housing stock be better used to meet need; • Council homes are kept safe, in good repair and up to date; • Vulnerable residents are able to live independently at home with the care and support they need.

Consultation Carried Out or Required

A wide ranging public consultation with stakeholders has taken place between 4 February and 2 April 2013. The full results of the consultation are included at Appendix 5 to this report and a summary of the main findings is included at paragraph 15 above.

5. CORPORATE IMPLICATIONS

Corporate Finance

Corporate Finance has reviewed this report and accompanying Appendices that set out the Housing Strategy 2012/15. Although acceptance of the recommendations to approve the strategy does not give rise to any immediate financial implications such programmes once planned and implemented will require resource allocation. This will be achieved via the Council wide MTFF process and aligned to budget setting for the Council as a whole whilst recognising the ring fenced nature of the resources provided through the HRA.

The Localism Act has seen the abolition of the Subsidy system whereby rents were largely pooled nationally and redistributed. This strategy covers the first four years under the self- financing regime introduced in April 2012 and should eliminate instability caused by annual determinations of subsidy thus enabling improved long term strategic planning. In the transition from subsidy to self-financing, Hillingdon was required to undertake £191.6m of national housing settlement debt in return for retention of annual subsidy payments of approximately £15m which were due to rise to £20m over the forthcoming years. A treasury portfolio has been

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designed according to the principles agreed by Cabinet to finance this debt at an average weighted rate of interest of 2.5%, thus, leaving sufficient resources to make provision for the repayment of both settlement and existing principal debt over the next 30 years alongside resources for enhancement of service provision and headroom for future housing development. The treasury strategy designed for Settlement assumed an additional £24m of borrowing for the Supporting Housing Programme. Any additional borrowing above this level will require additional ongoing revenue resources to finance.

The process of producing detailed budget plans within the MTFF will also necessitate consideration of risks that self-financing may bring with it alongside changes such as Right To Buy, housing benefit reforms and additional financing costs from increased borrowing that could impact substantially on HRA future income streams. These may also lead to financial implications within the GF in terms of GF Housing and Supported Housing proposals . '

Legal

This report seeks Cabinet approval of the Council’s Housing Strategy, Tenancy Strategy and Tenancy Policy and the Housing Allocations Policy. The Borough Solicitor advises as follows:

Housing Strategy

Section 8 of the Housing Act 1985 requires the Council to periodically review the provision of housing accommodation in the Borough. This strategy outlines how the Council will discharge its duties to secure accommodation within the Borough.

Tenancy Strategy and Tenancy Policy

Section 150 of the Localism Act 2011 requires the Council to prepare and publish a Tenancy Strategy setting out the matters which providers of social housing and the Council are to have regard in exercising their tenancy management functions. Prior to adopting the strategy, the Council is required to consult with registered providers of housing within the Borough and also with the Mayor of London.

The report shows that the consultation has taken place. The Borough Solicitor confirms that there are no legal impediments to Cabinet adopting the strategy and policy.

Housing Allocations Policy

Part 7 of the Localism Act 2011 amends the provisions of the Housing Act 1996 concerning the allocation of housing accommodation by the Council. Before making any major change to its policy, the Council is required to consult with providers of social housing within the Borough under section 166A (13) of the Housing Act 1996.

Appendix 5 details the consultation exercise that has been carried out. It will be noted that in addition to consulting with providers of social housing, the Council has also consulted with applicants currently on the Council’s Waiting List and relevant stakeholder organisations. Cabinet should consider the consultation responses and take these into account before deciding whether to change the current Allocations Policy. In this regard 77 % of consultees supported the Council’s proposal to only allocate accommodation to applicants who have resided in the Borough for ten years.

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Section 166A of the Housing Act 1996 requires the Council to ensure that the following applicants “have a reasonable preference in the allocation of accommodation”:

Applicants who are homeless or who are owed rehousing duties under the homelessness legislation.

People occupying insanitary or overcrowded housing or otherwise living in unsatisfactory conditions.

People who need to move on medical or welfare grounds and

People who need to move to a particular locality in the district of the authority, where failure to meet that need would cause hardship.

An “additional preference” for accommodation must also be given to qualifying members of H.M. Forces and their families where the applicant is suffering from a serious injury that is attributable to the person’s service or where the applicant is required to leave service accommodation.

Section 166A(8) of the Housing Act 1996 also enables the Secretary of State to make regulations specifying “factors which a local housing authority must not take into account in allocating accommodation”. To date, no such regulations have been made by the Secretary of State.

In addition the Council must comply with its duties under the Equality Act 2010 and have regard to statutory guidance issued by both the Secretary of State and the Equalities and Human Rights Commission.

The Borough Solicitor advises as follows.

Reasonable Preference Criteria The Equalities Impact Assessment shows that those applicants who are entitled to a statutory preference in relation to accommodation will continue to receive around 60% of lettings in the year 2015/16, with the remaining 40% going to local priority groups.

The Borough Solicitor confirms that this is considered to be a “reasonable preference” in accordance with the Council’s obligations under Section 166A of the Housing Act 1996.

Applicants from H.M Forces The Report recommends that qualifying applicants from H.M Forces will be awarded a Band B for rehousing, with any applicants needing to move urgently because of a serious injury, medical condition or disability attributable to their service being awarded a Band A.

The Borough Solicitor advises that these proposals comply with the Council’s obligations relating to these applicants.

Local Connection

The Council proposes that all other applicants will not generally be eligible for Council accommodation unless they have a local connection with HIllingdon by having resided in the Borough for a 10 year period.

Cabinet Report – 25 April 2013 Page 220

As stated above, the Secretary of State could have issued regulations restricting the Council’s ability to take the issue of local connection into account, but he has not done so. However, The Allocation of Accommodation: Guidance for Local Housing Authorities in England issued by the Secretary of State in 2012, states that local authorities should not allow local priorities (such as local connection) to “dominate the Allocations Scheme”.

As stated above, the proposed scheme will continue to ensure that applicants entitled to a reasonable or additional preference for housing will continue to receive this priority.

The changes proposed to the Council’s current allocations policy have been subject to an Equalities Impact Assessment (EIA) to ensure that the Council complies with its duties under the Equality Act 2010.

Broadly speaking, the proposed changes will have a neutral effect on applicants with different ethnic origins – the priority that an applicant will have for housing depends entirely on their individual circumstances.

It could, however, be argued that by requiring applicants to have resided in Hillingdon for ten years before they become eligible for accommodation, the Council is indirectly discriminating against applicants from a BME background. This is because, as the EIA shows, BME applicants are less likely to have resided in Hillingdon for the ten year period.

Indirect Discrimination is unlawful under section 19 of the Equality Act 2010.The Statutory Code of Practice issued by the Equalities and Human Rights Commission states that an applicant claiming indirect discrimination “must show that they have personally suffered (or could suffer) the particular disadvantage as an individual”.

The proposed allocations policy recommends that exceptions to the ten year local connection requirement be made in appropriate cases, such as applicants who have been subjected to domestic violence. An exception may also be granted where an applicant can demonstrate that they would suffer hardship if they were not considered for housing.

As stated in the EIA, it is not anticipated that BME applicants will suffer detriment if the ten year local connection requirement is introduced. However, by permitting exemptions to avoid hardship, the circumstances of all applicants can be fully considered and the possibility of an applicant suffering any disadvantage avoided. Further, by reviewing the operation of the Allocations Policy after one year, Cabinet will be able to consider whether any changes to the policy should then be made.

The Council also has a duty under section 149 of the Equality Act 2010 to “have due regard to the need to advance equality of opportunity between persons with different protected characteristics” (race, disability etc). The EIA does not suggest that the proposed changes to the Allocations Policy might possibly breach section 149, but again this will be assessed by Cabinet once the new scheme has been in operation for one year.

Relevant Service Groups

Comments from Social Care and Health have been incorporated into this report.

6. BACKGROUND PAPERS NIL

Cabinet Report – 25 April 2013 Page 221 This page is intentionally left blank

Page 222 Agenda Item 10

REVIEW OF THE LOCAL LIST OF BUILDINGS OF ARCHITECTURAL OR HISTORIC IMPORTANCE

Cabinet Member(s) Councillor Keith Burrows

Cabinet Portfolio(s) Planning, Transportation and Recycling

Officer Contact(s) Nairita Chakraborty, Residents Services

Papers with report Appendix 1 – New entries to the Local List Appendix 2 – Entry to be excluded from the Local List

1. HEADLINE INFORMATION

Summary Following the successful adoption and publication of the ‘Local List of Buildings of Architectural or Historic Importance’ in 2010 and an update in 2011, further revisions and new entries have been requested. These have been assessed and consultation has been undertaken as approved by Cabinet in October 2012. This report contains the results of the consultation exercise and seeks approval and adoption of the new entries to the Local List. The new entries are set out in Appendix 1 of this report.

Contribution to our London Borough of Hillingdon Local Plan: Part 1- Strategic plans and strategies Policies, November 2012 Sustainable Community Strategy Statement of Community Involvement

Financial Cost The cost of notifying the owners and interested parties is under £50, which will be met from the Planning budget.

Relevant Policy Residents’ and Environmental Services Policy Overview Overview Committee Committee

Ward(s) affected Botwell, Harefield, Manor, Northwood Hills, Townfield, Uxbridge North, Uxbridge South, West Drayton, West Ruislip

2. RECOMMENDATION

That Cabinet:

1. Agrees the n ew entries to the Local List of Buildings of Architectural or Historic Importance as attached in Appendix 1;

2. Agrees that the property identified in Appendix 2 should not be included in the Local List of Buildings of Architectural or Historic Importance;

3. Instructs officers to notify all the owners/occupiers of the buildings included in Appendix 1 and 2; and,

Cabinet – 25 April 2013 Page 223

4. Instructs officers to update the GIS database and the Council website to include the new entries.

Reasons for recommendation

The Local List of Buildings of Architectural or Historic Importance was adopted in May 2010 following extensive public consultation. Further changes and new entries were included in October 2011. Following this, alterations to some of the entries were requested and new additions identified for inclusion in the list. The proposed changes were considered and following Cabinet agreement in October 2012, owners and interested groups were consulted on the proposed new entries.

The report lists comments received and seeks approval for these entries to be added to the adopted List.

Alternative options considered / risk management

Cabinet could decide not to revise the existing Local List. This would leave buildings worthy of local designation unrecognised and vulnerable to insensitive development. It would also not address any issues raised by Members and residents.

Policy Overview Committee comments

None at this stage

3. INFORMATION

Supporting Information

1. The Local List of Buildings of Architectural or Historic Importance recognises buildings that are considered to be of local significance and that contribute to the unique character and sense of local distinctiveness of the Borough. On 19 th February 2009, Cabinet approved a programme for the review of the existing Local List and following assessment and consultation, the final list was adopted on 26 th of May 2010. This was revised and updated in October 2011.

2. Since then, a number of new entries have been requested by local residents and/or proposed by officers. These were assessed and 26 new entries, including a number of Council owned properties, were proposed for addition to the Local List. On 25 th October 2012, Cabinet approved in principle the additions to the list and agreed a period of consultation with their respective owners.

3. The consultation was undertaken from 12 th November to 21 st December 2012. Owners were consulted by way of letter, sent through the post and addressed to the individual properties, to ensure that there would be minimal errors in delivery. Interested groups were notified by email. All proposed entries were also made available on the Council’s website.

4. The consultation exercise resulted in only one response. This was an objection to the inclusion of 1 Grove Road in Uxbridge on the list, on grounds that it had undergone extensive works in recent years. The objector wrote that: “The owner has changed the property considerably since the late 1970s/early1980s. This was originally done as permitted

Cabinet – 25 April 2013 Page 224

development under the legislation at the time and there is documentation at the Council to show the original property. Subsequently the owner wanted to change the appearance of the property to a ‘Regency’ frontage with columns etc and this has been done in the last ten years.”

5. The original appearance of the building was confirmed by a local historian who provided a photograph dated 1979 ( Appendix 1- Entry 321) , showing the original building in a dilapidated state. The building has retained its Victorian core; however the extensive alterations, which include a side addition, basement garage and refurbished second floor and roof, have undermined its architectural integrity. Whilst the building does have townscape value, it is felt that on balance, it does not warrant inclusion in the Local List. The description of the building and the recommendation has been changed with new information included in Appendix 1 (Entry 321).

Future revisions

6. The Local List updates are part of a rolling programme and new entries will be assessed and reported to Cabinet for approval accordingly.

Financial Implications

7. The cost of notification, including envelopes and postage would be under £50. This would be contained within the Planning budget.

4. EFFECT ON RESIDENTS, SERVICE USERS & COMMUNITIES

What will be the effect of the recommendation?

The aims of the recommendations are to update the Local List, so that due recognition can be given to buildings and structures, which make a positive contribution to the Borough’s local distinctiveness and appearance. Inclusion on the List would have no statutory implications for residents, property owners or other stakeholders, although Local Listing is a material consideration when decisions are made on planning and other related applications. Relevant policies are contained within the London Borough of Hillingdon Local Plan: Part 1- Strategic Policies, November 2012.

The recently published National Planning Policy Framework (NPPF) and guidance from English Heritage provide for greater recognition of non designated heritage assets such as Locally Listed Buildings. Paragraph 135 of NPPF states that ‘The effect of an application on the significance of a non designated heritage asset should be taken into account in determining the application.’

Consultation Carried Out or Required

The results of the consultation are included in the report.

5. CORPORATE IMPLICATIONS

Corporate Finance

Corporate Finance has reviewed this report and concurs with the financial implications set out above.

Cabinet – 25 April 2013 Page 225

Legal

The Local List that is the subject of this report is a non-statutory document which will be used to guide planning decisions. The inclusion of a property on the Local List will be a material planning consideration to be taken into account in determining planning applications.

The Council’s constitution states that Cabinet are responsible for taking a lead on policy development. As such the Cabinet have the power to make changes to the Local List set out in this report.

This report indicates that public consultation has been carried out in relation to the amendments. In considering the consultation responses, decision makers must ensure there is full consideration of all representations including those which do not accord with the officer recommendation. The decision maker must be satisfied that consultation responses have been taken into account.

Corporate Property and Construction

Corporate Property and Construction supports the recommendation set out in the report.

Relevant Service Groups

Relevant service groups were consulted as part of the consultation process comments are noted below.

Green Spaces

Green Spaces supports the recommendation set out in the report.

6. BACKGROUND PAPERS

− Cabinet Member report dated 19 th February, 2009. − Cabinet report dated 19 th November, 2009. − Cabinet report dated 26 th May 2010. − Cabinet report dated 27 th October, 2011 − Cabinet report date 25 th October, 2012 − Adopted Local List, 2010 − London Borough of Hillingdon Local Plan: Part 1- Strategic Policies, November 2012 − Statement of Community Involvement, November 2006

Cabinet – 25 April 2013 Page 226 Appendix 1: New entries to the Local List

Date Post Con Area/ Serial Building Name/No Road name Ward Prop code ASLC No osed Bull’s Bridge UB2 June Bull’s Toll House Townfield 303 Road 5LX 2012 Bridge CA West Wall and gates to UB7 West June Station Road Drayton 304 Coppinger Court 9PH Drayton 2012 Green CA Jackets Barn to Battlers Lane, UB9 June Harefield 305 Wells Farm Northwood 6PZ 2012 Road Jackets Battlers Wells Lane, UB9 June Cottage Harefield 306 Northwood 6PZ 2012 (Dar Al Tableegh) Road Osborne UB8 Uxbridge June St Michael’s Church 307 Road 1UE South 2012

Presbytery to St Osborne UB8 Uxbridge June 308 Michael’s Church Road 1UE South 2012

Bofors Gun tower at Grosvenor HA4 June Ruislip Manor Sports Manor 309 Vale 6JQ 2012 & Social Club Ltd Lodge to Fassnidge Rockingham UB8 Uxbridge June 310 Park Parade 2UW South 2012 Bandstand, Rockingham UB8 Uxbridge June 311 Fassnidge Park Parade 2UW South 2012

Memorial Stone, Rockingham UB8 Uxbridge June 312 Fassnidge Park Parade 2UW South 2012

Drinking Fountain, Rockingham UB8 Uxbridge June 313 Fassnidge Park Parade 2UW South 2012 Entrance Gates and Rockingham UB8 Uxbridge June piers to Fassnidge 314 Parade 2UW South 2012 Park Northwood & Pinner HA6 Northwoo June Pinner Road 315 Cottage Hospital 1DE d Hills 2012 Entrance warehouse Nestles UB3 June Botwell to Nestle Botwell 316 Avenue 4RF 2012 Nestle CA (Canteen building)

Page 227 Cottages to Nestle Nestles UB3 June Botwell Botwell 317 building Avenue 4RF 2012 Nestle CA

Railings, gates and Nestles UB3 June Botwell piers to Nestle Botwell 318 Avenue 4RF 2012 Nestle CA buildings St Mary’s Church Hemmen UB3 June Hayes Townfield 319 Hall Lane 2LW 2012 Village CA Ickenham HA4 West June Ruislip No 11a Road, 320 7BT Ruislip 2012 Village CA Ruislip North UB8 Uxbridge June Nos 2, 3 and 4 Grove Road Uxbridge 322 1QR North 2012 ASLC North UB8 Uxbridge June Nos 5 and 6 Grove Road Uxbridge 323 1QR North 2012 ASLC North UB8 Uxbridge June No 7 Grove Road Uxbridge 324 1QR North 2012 ASLC UB8 No 8 Grove Road Grove Road 1QR North Uxbridge June and No 81 Park and Park and Uxbridge 325 North 2012 Road Road UB8 1 ASLC NW Breakspear UB9 June Harefield Langley Farm Barn Harefield 326 Road North 6NB 2012 Village CA

Coppermill UB9 June Coppermill Waterways Cottage Harefield 327 Lock 6JA 2012 Lock CA

Harlington UB8 June The Lodge Botwell 328 Road 3HF 2012

Page 228 Building Name/No: Toll House Serial No 303

Address: Bull’s Bridge Road, Hayes, UB2 5LX Ward: Townfield Use: Industrial (Vacant)

Front elevation from the Canal Front elevation from Bull’s Bridge Statement of significance/ Reasons for designation Architectural: Mid 19th century 3 bay two storey house with a projecting wing to the east. White rendered with shallow hipped slate roof. Windows now boarded. In poor condition. The building is to be retained as part of a new development approved by the Council in June 2012. Townscape: Group value with the listed canal bridge and located in the Bull’s Bridge Conservation Area; key landmark on the canal. Historic: Associated with the Grand Union Canal/ Paddington Arm and located close to an infilled wharf. The Bull’s Bridge junction was an important stopping off point at the heart of the system, where bargees waited for their orders. Photograph date: October 2011 Location Map

© Crown copyright. London Borough of Hillingdon 100019283 2012 Authenticity (I c): 1; Architectural (II d): 2; Townscape (III f): 2; Historic (IV h): 2 Total = 7 RECOMMENDATION: To be included in the Local List

Page 229 Wall and gates to Building Name/No: Serial No 304 Coppinger Court

Address: Station Road, West Drayton, UB7 9PH Ward: West Drayton Use: Means of enclosure Statement of significance/ Reasons for designation Architectural: Ornate Iron gates associated with the former Vicarage to St Martin’s Church, West Drayton. Later red brick piers with coping. Earlier stock brick wall retained to the west side. Townscape: Local value West Drayton Conservation Area. Historic: Associated with the former Vicarage to St Martin’s Church, demolished in 1993 for redevelopment.

Photograph date: October 2011 Location Map

© Crown copyright. London Borough of Hillingdon 100019283 2012 Authenticity (I c): 1; Architectural (II d): 2; Townscape (III f): 2; Historic (IV i): 1 Total = 6 RECOMMENDATION: To be included in the Local List

Page 230 Barn to Battlers Building Name/No: Serial No 305 Wells Farm

Address: Jackets Lane, Northwood Road, UB9 6PZ Ward: Harefield Use: Agricultural storage Statement of significance/ Reasons for designation Architectural: Altered, single storey brick barn roughly in an L shape plan form. Steeply pitched tiled roof with later applied weather-boarding. Internal structural information unavailable. Townscape: Group value within the Green Belt. Historic: Associated with the Battlers Wells Farm.

Photograph date: October 2011 Location Map

Authenticity (I c): 1; Architectural (II d): 2; Townscape (III f): 2; Historic (IV i): 1 Total = 6 RECOMMENDATION: To be included in the Local List

Page 231 Building Name/No: Dar-al-Tableegh Serial No 306

Address: Jackets Lane, Northwood Road, UB9 6PZ Ward: Harefield Use: Educational

Statement of significance/ Reasons for designation Architectural: Circa 1920s, Arts and Crafts influenced one and half storeys with attic and basement, in red brick. C shaped plan form with steeply pitched tiled hip roof. Two projecting gabled wings. Central section with hipped roof dormers to first and attic floors. Prominent brick chimneys cruciform in plan. Central door entrance with decorative surround. Townscape: Group value within the Green Belt. Historic: Associated with the Battlers Wells Farm. Photograph date: October 2011 Location Map

Page 232 Building Church of Our Lady of Serial No 307 Name/No: Lourdes and St Michael

Address: Osborne Road, UB8 1UE Ward: Uxbridge South Use: Religious Statement of significance/ Reasons for designation Architectural: 1931. Designed by the diocesan architect, T. H. B. Scott. Romanesque style with a robust external appearance and austere stripped back interior. In yellow stock brick with red brick detailing. Semi-circular arched entrance and windows. Later lean-to extension to the flank elevation.

Townscape: Striking landmark on the approach to the town centre, otherwise dominated by large modern buildings and traffic.

Historic: First Catholic Church established in Uxbridge, current building opened in 1931. Closely associated with the Gilbeys of Denham (local wine merchants). A memorial plaque in their honour is located near The Lady Altar. Forms a group with the adjacent Vicarage. Photograph date: May 2012 Location Map

© Crown copyright. London Borough of Hillingdon 100019283 2012 Authenticity (I c): 1; Architectural (II d, e): 2+1; Townscape (III g): 1; Historic (IV h, i): 2+1 Total = 8 RECOMMENDATION: To be included in the Local List

Page 233 Building Presbytery to Church of Our Lady of Serial No 308 Name/No: Lourdes and St Michael

Address: Osborne Road, UB8 1UE Ward: Uxbridge South Use: Residential Statement of significance/ Reasons for designation Architectural: Large detached late Victorian house in yellow stock brick with slate roof with decorative ridge tiles. Symmetrical gabled bays to the front, with decorative red brick detailing. Main entrance through archway, with decorative imposts. Townscape: Together with Our Lady of Lourdes and St Michael’s Church, forms a landmark on the approach to the town centre, otherwise dominated by large buildings and traffic. Historic: Originally No 37 Lawn Road, this is the only remaining house in Lawn Road on this side of the Ring Road. Acquired by the RC Church of St Michael when first opened in 1893.

Photograph date: May 2012 Location Map

© Crown copyright. London Borough of Hillingdon 100019283 2012 Authenticity (I c): 1; Architectural (II d): 2; Townscape (III g): 1; Historic (IV i): 1 Total = 5 RECOMMENDATION: To be included in the Local List

Page 234 Building Serial Bofors Gun tower and Pill Box, 309 Name/No: Ruislip Manor Sports & Social Club No

Address: Grosvenor Vale, HA4 6JQ Ward: Manor Use: Millitary (disused)

Gun Tower Pill box Statement of significance/ Reasons for designation Architectural: A rare surviving pair of Bofors anti-aircraft gun towers (confirmed by independent MoD historic buildings specialist). Constructed of reinforced concrete, in poor condition. Site includes a type 24 Pill Box. Historic: It is thought that these structures formed part of the World War II defences protecting the nearby underground munitions factory at Ruislip Manor Depot. Photograph date: May 2012 Location Map

Page 235 Building Serial Lodge to Fassnidge Park 310 Name/No: No

Address: Rockingham Parade, Uxbridge, UB8 2UW Ward: Uxbridge South Use: Residential

Statement of significance/ Reasons for designation Architectural: 1926 Arts and Crafts influenced, two storey house in brick. Gable front elevation to the park, with mock timber framing and white render. Decorative herringbone brickwork to elevations. Steeply pitched tiled roof and prominent brick chimneys. Townscape: Group value and notable feature within the park. Historic: Associated with local land owners- Mr and Mrs Fassnidge, who dedicated the park for the use of Uxbridge residents in 1926. Originally built as a park keeper’s lodge, now a private residence. Photograph date: May 2012 Information: http://www.londongardensonline.org.uk/gardens-online-record.asp?ID=HIL017 http://www.hillingdon.gov.uk/index.jsp?articleid=14359 Location Map

© Crown copyright. London Borough of Hillingdon 100019283 2012 Authenticity (I c): 1; Architectural (II d): 2; Townscape (III f): 2; Historic (IV i): 1 Total = 7 RECOMMENDATION: To be included in the Local List

Page 236 Building Serial Bandstand, Fassnidge Park 311 Name/No: No

Address: Rockingham Parade, Uxbridge, UB8 2UW Ward: Uxbridge South Use: Community Statement of significance/ Reasons for designation Architectural: Stone plinth, slender wrought iron columns with ornamental spandrels, supporting cast iron frieze and a low, conical bell shaped copper roof. Cast iron balustrades with a diamond shaped wire mesh decoration. Townscape: Group value and notable feature within the park. Historic: Associated with local land owners - Mr and Mrs Fassnidge, who dedicated the park for the use of Uxbridge residents in 1926. The first recreation ground dedicated to the public in Uxbridge, it was designed by William Lionel Eves, the Uxbridge UDC Surveyor. Photograph date: May 2012 Information: http://www.londongardensonline.org.uk/gardens-online-record.asp?ID=HIL017 http://www.hillingdon.gov.uk/index.jsp?articleid=14359 Location Map

Page 237 Building Serial Memorial Stone, Fassnidge Park 312 Name/No: No

Address: Rockingham Parade, Uxbridge, UB8 2UW Ward: Uxbridge South Use: Memorial Stone Statement of significance/ Reasons for designation Townscape: Group value within the park. Historic: Associated with local land owners- Mr and Mrs Fassnidge, who dedicated the park for the use of Uxbridge residents in 1926. The first recreation ground dedicated to the public in Uxbridge, it was designed by William Lionel Eves, the Uxbridge UDC Surveyor. This is a block of granite installed in 1927, sent from Uxbridge in Massachusetts with the inscription: 'To Uxbridge Middlesex. This stone is dedicated on the 200th anniversary of the incorporation of Uxbridge, Massachusetts, June 27th 1927. One race of ancient fame, one tongue, one faith we claim'. Photograph date: May 2012 Information: http://www.londongardensonline.org.uk/gardens-online-record.asp?ID=HIL017 http://www.hillingdon.gov.uk/index.jsp?articleid=14359 Location Map

Page 238 Drinking Fountain, Fassnidge Serial Building Name/No: 313 Park No

Address: Rockingham Parade, Uxbridge, UB8 2UW Ward: Uxbridge South Use: Drinking Fountain Statement of significance/ Reasons for designation Architectural: Drinking Fountain recording the gift of the ‘Fassnidge Memorial Recreation Ground to Uxbridge’ by Mrs Kate Fassnidge in 1926. In granite, square in plan with a moulded capstone. Originally with a plaque to the south face, which read - 'for the quiet enjoyment and pleasure of its townspeople by Kate Fassnidge, as a memorial to her husband'. This has now been removed/stolen. Townscape: Group value within the park. Historic: Associated with local land owners- Mr and Mrs Fassnidge, who dedicated the park for the use of Uxbridge residents in 1926. The first recreation ground dedicated to the public in Uxbridge, it was designed by William Lionel Eves, the Uxbridge UDC Surveyor. Photograph date: May 2012 Information: http://www.londongardensonline.org.uk/gardens-online-record.asp?ID=HIL017 http://www.hillingdon.gov.uk/index.jsp?articleid=14359 Location Map

© Crown copyright. London Borough of Hillingdon 100019283 2012 Authenticity (I b): 2; Architectural (II d): 2; Townscape (III f): 2; Historic (IV i): 1 Total = 7 RECOMMENDATION: To be included in the Local List

Page 239 Entrance gates and piers to Building Name/No: Serial No 314 Fassnidge Park

Address: Rockingham Parade, Uxbridge, UB8 2UW Ward: Uxbridge South Use:

Photograph date: May 2012 Statement of significance/ Reasons for designation Architectural: Wrought Iron gates (1926) with elaborate scroll work above top rail. Square red brick piers topped with stone, bearing a shield engraving and moulded capstone. Townscape: Group value within the park. Historic: Associated with local land owners, Mr and Mrs Fassnidge, who dedicated the park for the use of Uxbridge residents in 1926. The first recreation ground dedicated to the public in Uxbridge, it was designed by William Lionel Eves, the Uxbridge UDC Surveyor. Information: http://www.londongardensonline.org.uk/gardens-online-record.asp?ID=HIL017 http://www.hillingdon.gov.uk/index.jsp?articleid=14359 Location Map

Page 240 Northwood & Pinner Building Name/No: Serial No 315 Community Hospital

Address: Pinner Road, Northwood, HA6 1DE Ward: Northwood Hills Use: Health care storage

Statement of significance/ Reasons for designation Architectural: Two storey brick building in Arts and Crafts style with 3 bay façade. Steeply pitched hipped tile roof. Ground floor windows with ‘fan’ shaped brick arches, all windows with louvered shutters. Central entrance door with pedimented surround. Townscape: Landmark building on Pinner Road. Historic: Built in 1924 as Northwood and Pinner War Memorial, extended in 1930. Redundant by 2000 and in use as ambulance depot and health care storage. Photograph date: May 2012 Location Map

© Crown copyright. London Borough of Hillingdon 100019283 2012 Authenticity (I c): 1; Architectural (II d): 2; Townscape (III g): 1; Historic (IV h, i): 2+1 Total = 7 RECOMMENDATION: To be included in the Local List

Page 241 Nestle Works: former Building Serial canteen (Nestle Uk 316 Name/No: No: Ltd)

Address: North Hyde Gardens, Hayes (Botwell), UB3 4RF Ward: Botwell Use: Industrial

Statement of significance/ Reasons for designation Architectural: Built in 1954 in the Moderne Style, as an office canteen. Now used as a warehouse. Painted concrete with large areas of glazing. 2 storeys multi-paned windows, with original Crittal type metal glazing. Townscape: Group value with the Art Deco original factory building, gates, railings and lodge. Located within the Conservation Area; key landmark on Nestles Avenue. Historic: An important element of the Borough’s industrial history. Photograph date: October 2011 Location Map

© Crown copyright. London Borough of Hillingdon 100019283 2012 Authenticity (I b): 2; Architectural (II d): 2; Townscape (III f): 2; Historic (IV i): 2 Total = 8 RECOMMENDATION: To be included in the Local List

Page 242 Building Nestle Works: lodge Serial 317 Name/No: (Nestle Uk Ltd) No:

Address: North Hyde Gardens, Hayes (Botwell), UB3 4RF Ward: Botwell Use: Industrial

Statement of significance/ Reasons for designation Architectural: Pair of caretakers’ houses, purpose built for the factory. Arts and Crafts influenced style, two and a half storey with basement. Red brick, with steep tiled roof and dormers. Central gables to front and rear elevations. Very prominent from North Hyde Gardens. Townscape: Group value within the factory complex and the Conservation Area; key landmark along North Hyde Gardens. Historic: Associated with the Borough’s industrial history. Photograph date: October 2012 Location Map

Page 243 Building Nestle Works: gates/ Serial 318 Name/No: railings (Nestle Uk Ltd) No:

Address: North Hyde Gardens, Hayes (Botwell), UB3 4RF Ward: Botwell Use: Industrial

Statement of significance/ Reasons for designation Architectural: Decorative metal piers, gates and railings aligned with the entrance to main factory building. Linked to distinctive metal railings with decorative curved supports and concrete piers fronting Nestle Avenue. A further set of concrete piers and decorative iron gates is located at the original service entrance. Townscape: Group value within the factory complex and the Conservation Area. Integral with the design of the main building. Historic: 19th century railings relocated from the original Swiss factory. Associated with the Borough’s industrial history. Photograph date: October 2012 Location Map

Page 244 Serial Building Name/No: St Mary’s Church Hall 319 No:

Address: Hemmen Lane, Hayes, UB3 2LW Ward: Townfield Use: Community

Statement of significance/ Reasons for designation Photograph Architectural: Early 20th century hall. White rendered with renewed tiled roof. Dormers to street elevation now blocked. Original clock tower/cupola also blocked. Modern extension with cat slide roof to the rear. Timber windows with glazing bars. Townscape: Contributes to the local character and street scene. Historical: St Mary’s Church Hall, built by public subscription.

(Reassessed following the submission of additional information)

Information provided by: Hayes and Harlington Local History Society Photograph: July 2009 Location Map

© Crown copyright. London Borough of Hillingdon 100019283 2009 Authenticity (I c): 1; Architectural (II d): 2; Townscape (III f, g):2+1; Historical (IV h):2 Total = 8 RECOMMENDATION: To be included in the Local List

Page 245 Serial Building Name/No: 11a 320 No:

Address: Ickenham Road, Ruislip, HA4 7BT Ward: West Ruislip Use: Residential

Photograph Statement of significance/ Reasons for designation Architectural: Early 20th century. Attractive, large two storey house in brick, now painted white. Hexagonal chamfered corner entrance, with simple canopy over the door. Crittal type windows, with ‘fan type’ arches and keystones to ground floor openings. Townscape: Contributes to the local character and street scene of the conservation area.

Information provided by: Hayes and Harlington Local History Society Photograph: July 2009 Location Map

Page 246 Serial Building Name/No: Nos 2, 3 and 4 322 No:

Address: Grove Road, UB8 1QR Ward: Uxbridge North Use: Residential

Photograph Statement of significance/ Reasons for designation Architectural: Mid 19th century two storey symmetrical terrace in yellow stock brick, with shallow hipped slate roof. Moulded render architraves to windows and doorways. Recessed front doors. Sash type windows to No 4. Modern flat roof extension to side of No 2.

Townscape: Group value within North Uxbridge ASLC.

Photograph date: May 2012 Location Map

Page 247 Building Name/No: Grove Cottages Serial No: 323

Address: Nos 5 and 6 Grove Road, UB8 1QR Ward: Uxbridge North Use: Residential

Photograph Statement of significance/ Reasons for designation Architectural: Early-mid 19th century pair, each two storeys. Stock brick with stuccoed quoins and dentil cornice. Slated roof with eaves soffit. Stuccoed alternating block surrounds to windows with vermiculated key blocks. Windows now replaced with modern UPVc. Arched entrances to the flank elevations.

Townscape: Group value within North Uxbridge ASLC. Photograph date: May 2012 Location Map

Page 248 Building Name/No: No 7 Serial No: 324

Address: Grove Road, UB8 1QR Ward: Uxbridge North Use: Residential

Statement of significance/ Reasons for designation Architectural: Two storeys, substantial early to mid 19th century villa in Italianate style, in stock brick with hipped roof and bracketed eaves detail. Sash windows with semi-circular brick arches, stone sills and banding between ground and first floor. Townscape: Landmark building in the street scene. Photograph date: May 2012 Location Map

Page 249 No 8 Grove Road and Serial Building Name/No: 325 No 81 Park Road No:

Address: Grove Road, UB8 1QR; Park Road UB8 1NW Ward: Uxbridge North Use: Residential

Photograph Statement of significance/ Reasons for designation Architectural: Two storey mid to late 19th century pair in yellow stock brick, with decorative red brick banding and dentil cornice to eaves. Shallow pitched roof with small gables over principal windows on Grove Road frontage. Angled brick arches to windows.

Townscape: Group Value

Photograph date: May 2012 Location Map

Page 250 Serial Building Name/No: Langley Farm 326 No:

Address: Breakspear Road North, UB9 6NB Ward: Harefield Use: Vacant

Photograph Statement of significance/ Reasons for designation Architectural: Five bay barn, with central threshing floor and wagon porch. It was brought to the site from Brockley Hill Farm in LB Harrow in 1985 and re-assembled. At that time between a half and two-thirds of its timbers, and all the weatherboarding, were renewed.

Townscape: Distinctive, large building within the Green Belt and Harefield Village Conservation Area. Photograph date: May 2012 Location Map

Page 251 Building Name/No: Waterways Cottage Serial No: 327

Address: Coppermill Lock, UB9 6NB Ward: Harefield Use: Residential

Canal side elevation Rear elevation Statement of significance/ Reasons for designation Architectural: Early to mid 19th century. Two storey brick building, now painted white. Shallow pitched hipped slate roof. Basement to canal side. Sash windows with brick arches over. Later Victorian two storey side extension. Townscape: Group Value within the Coppermill Lock Conservation Area. Historic: Originally the Lock Cottage for Coppermill Lock. Photograph date: May 2012 Location Map

Page 252 Building Name/No: The Lodge Serial No: 328

Address: Harlington Road, UB8 3HF Ward: Botwell Use: Residential Statement of significance/ Reasons for designation Architectural: Two storey, circa 1900 house in red brick and steeply pitched plain tiled roof. Dark grey brick string course details and window arches. Stone window surrounds. Later open porch and additions. Townscape: Landmark value, unusual location on island site. History: Original Lodge to Dawley Court, now demolished.

Photograph date: May 2012 Location Map

© Crown copyright. London Borough of Hillingdon 100019283 2009 Authenticity (I c): 1; Architectural (II d): 2; Townscape (III f): 1; Historic (IV i): 1 Total = 5 RECOMMENDATION: To be included in the Local List

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Page 254 Appendix 2: Entry to be excluded from the Local List

Date Post Con Area/ Serial Building Name/No Road name Ward Prop code ASLC No osed North UB8 Uxbridge June No 1 Grove Road Uxbridge 321 1QR North 2012 ASLC

Page 255 Page 256 Building Name/No: No 1 Serial No: 321

Address: Grove Road, UB8 1QR Ward: Uxbridge North Use: Residential

Photograph date: 1979, undergoing alterations Photograph date: May 2012 Courtsey: Barry Newitt, local resident and historian Statement of significance/ Reasons for designation Architectural/Historic: Early 19th century detached house in yellow stock brick. Front elevation now rendered and altered with ‘regency’ style frontage. Originally, two/three storeys plus basement, in yellow stock bricks with hipped slate roof. New alterations include- one bay side addition, basement garage, refurbished upper floor and roof and rusticated stucco frontage. Townscape: Landmark within the street scene. Location Map

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Page 258 Agenda Item 11

HILLINGDON’S JOINT HEALTH AND WELLBEING STRATEGY 2013-2016

Cabinet Member(s) Councillor Ray Puddifoot Councillor Philip Corthorne

Cabinet Portfolio(s) Leader of the Council ocial Services, Health and Housing

Officer Contact(s) Linda Sanders, Social Care and Health

Papers with report Appendix 1 – Joint Health and Wellbeing Strategy

HEADLINE INFORMATION

Summary This report is seeking Cabinet approval for Hillingdon’s Health and Wellbeing Strategy following an agreed period of consultation about the priorities proposed in the strategy. The strategy was endorsed by Hillingdon’s shadow Health and Wellbeing Board on 19 th February 2013. The purpose of the joint strategy is to improve the health and wellbeing of Hillingdon’s residents and address the needs of Hillingdon’s residents, as identified within Hillingdon’s Joint Strategic Needs Assessment (JSNA).

Contribution to our The Joint Health and Wellbeing Strategy is a key over-arching plan plans and strategies helping to inform the priorities of the Council and local partners.

Financial Cost There are no direct costs arising from the recommendations of this report. The delivery of the strategy will need to be contained with the budget of the Council and partner organisations.

Relevant Policy Social Services, Health and Housing Overview Committee

Ward(s) affected All wards in Hillingdon

2. RECOMMENDATION

That Cabinet approve the proposed Joint Health & Wellbeing Strategy for Hillingdon.

Reasons for recommendation

Guidance from the Department of Health (Joint Strategic Needs Assessment and Joint Health and Wellbeing Strategies) sets out a duty to prepare a strategy to address health inequalities and promote health improvement and to involve stakeholders in preparing the strategy. The strategy should be based on evidence, seek to address the greatest health and wellbeing concerns for local residents and set out the key outcomes to be achieved.

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The adoption of the strategy will enable the Council to comply with its duty under Section 116 of the 2007 Local Government and Public Involvement in Health Act (as amended by the 2012 Health and Social Care Act) to work with the Clinical Commissioning Group (CCG) to develop a Health and Wellbeing Strategy that will address the needs identified in the local Joint Strategic Needs Assessment (JSNA).

Alternative options considered / risk management No alternative options have been considered.

Policy Overview Committee comments The Social Services, Health and Housing Policy Overview Committee made the following comments at their meeting on 27 th February 2013 about the priorities set out in the draft strategy which Cabinet are asked to consider:-

1. there should be an additional, stand alone priority to ensure that people had access to information on the range of health and social care services available to them.

2. in relation to the key priority ‘Develop Integrated High Quality Social Care and Health Services within the Community or at Home’ - diabetes should be included as a stand alone priority.

Overall, Members of the Policy Overview Committee agreed that the strategy document provided a concise and informative document which seeks to address a number of key local issues including: a focus on prevention, depression, diabetes, dementia and carers access to primary care.

Members should note that the External Services Scrutiny Committee is currently reviewing diabetes needs and services in Hillingdon and will report to Cabinet in due course with recommendations.

3. INFORMATION

Hillingdon’s Joint Health and Wellbeing Strategy

3.1 Hillingdon’s priorities for health and wellbeing have been developed with partners and following a period of consultation. The draft strategy was approved for consultation by the shadow Health and Wellbeing Board at the October 2012 meeting of the Board. As both statutory and voluntary sectors are working with limited resources, one of the key principles of Hillingdon’s strategy is to target the areas where a collective focus will offer the greatest benefits as well as the greatest value for money to Hillingdon’s residents.

3.2 Other key guiding principles of the strategy include:

• Residents want to have a say about the services they use. • Most residents prefer to be treated as close to their homes as possible. • Preventing disease and illness is always better than curing it. • When illness does occur, the sooner services can help people, the better. • People prefer to live as independently as possible, at home and within the community as opposed to institutional settings.

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• Technology can help residents to live independently when they are unwell or have health and care needs. • All services need to evidence the benefits they offer to residents and be open and honest about how well they are performing generally. • All of the various services helping to deliver health and wellbeing in Hillingdon need to work together and communicate well with each other and with Hillingdon residents.

Hillingdon’s Health and Wellbeing Needs – A summary

3.3 The key needs the joint Health and Wellbeing Strategy will be seeking to address are set out below:

Children engaged in risky behaviour Too many young people engage in potentially harmful behaviours that can risk their health, such as alcohol abuse, drug taking, smoking, taking risks with sexual behaviour or being overweight. Dementia As we live longer, more of us will suffer from dementia, and we are not currently doing enough to diagnose or support its treatment. Physical activity If we can increase the amount of physical activity for people, then we can improve physical and mental health and reduce chronic disease. Obesity Obesity is the most widespread threat to the health and wellbeing of the population. Adult and Child Mental Health Mental illness is the largest single cause of disability in our society, and we can be more imaginative in the design of services to support adults and children. Type 2 Diabetes Type 2 Diabetes is a major cause of morbidity and mortality but good management of the condition can significantly improve outcomes for those with the condition. Increasing child population and Maternity Services With an above average birth rate in Hillingdon, we need to do more to support pregnant mothers. Older People including sight loss With more of us living longer, the range of services for older people needs to be updated and improved. Dental Health Our children have above average levels of dental decay and we need to educate families about the value of good oral health.

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Hillingdon’s Strategy – Objectives and Priorities 2013-2016

3.4 The following summarises the key objectives and priorities set out within the joint Health and Wellbeing strategy:

Objective 1 Improve health and wellbeing and reduce inequalities We know that people will feel better and be healthier if they are more active and have access to better facilities across Hillingdon. As a priority we will focus on: • Physical activity and obesity.

Objective 2 Invest in prevention and early intervention We need to spend more on preventing disease and illness. The sooner health and social care are delivered, the better the chance of a good outcome. As a priority we will focus on: • Reducing reliance on acute and statutory services; • Children's mental health and risky behaviours; • Dementia and adult mental health; • Sight loss.

Objective 3 Develop integrated, high quality social care and health services within the community or at home The changes in health and social care legislation are designed to create a more joined up set of services for our patients, their families and carers. We want to make this the normal experience for the people of Hillingdon. As a priority we will focus on: • Integrated approaches for health and well-being, including telehealth; • The ‘Integrated Care Pilot’ for frail older people, people with diabetes and mental health.

Objective 4 Creating a positive experience of care We will tailor our services in a more personalised way. We can only achieve this if we hear your views and experiences. As a priority we will focus on: • Tailored, personalised services; • An ongoing commitment to stakeholder engagement.

Consultation on the priorities for improving Health and Wellbeing

3.5 In developing this strategy the Shadow Health and Wellbeing Board agreed at their meeting on 18 th October 2012 to consult on the priorities for improving health and wellbeing in Hillingdon. The consultation confirmed support for the four proposed key priorities in the draft strategy and indicated a need for further information about the

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implementation plan to deliver the priorities. A consultation plan was prepared to ensure a wide cross-section of opinion was gathered using a mixture of approaches to inform the development of the strategy. This included an online survey and presentations / discussions at a number of local Groups. The consultation approach covered the following:

• Standard and easy read versions of the consultation survey were created. These were made available online and in paper format. • The consultation had its own page on the Council’s website, with details of the strategy and links to both versions of the survey (standard and easy read versions). • An email promoting the consultation was sent to an established consultation list of over 1,700 residents. • Messages were sent to partner organisations in the Borough inviting contributions. • Local groups and forums were approached to take part in the consultation. Officers attended many of the groups to take part in and listen to the discussion. A number of scheduled events and groups took part in the consultation which included service users, carers, local residents and representatives from partner organisations. These included the following groups and events:

o Age UK Conference – 5 th December o Hillingdon Disabled Tenants’ and Residents’ Group -18 th December o BAME Elders Forum, Hayes – 8 th January o Carers Strategy Group – 9 th January o People in Partnership event, Hayes – 11 th January o Hillingdon Youth Council – 14 th January o Women in the Community Network Steering Group, Yeading – 15 th January o Learning Disability Partnership Board – 15 th January o Sheltered Housing Group – 17 th January o Hillingdon Parent Carers Support Group – 23 rd January o Disability Assembly Steering Group – 25 th January o Learning Disability Forum for Providers – 25 th January o Parent Carer Reference Group – 29 th January o Carers’ Café arranged by Hillingdon Carers in Hayes – 31 st January o Hillingdon Centre for Independent Living Forum – 4th February o Traveller Forum – 6 th February o Older People’s Assembly Steering Group, Civic Centre – 8 th February o Assembly for Disabled People, Civic Centre – 11 th February

3.6 Through these group meetings and discussions, hundreds of people in Hillingdon engaged in the discussion about the priorities for Hillingdon’s draft Health and Wellbeing Strategy. In general, those taking part welcomed the opportunity to engage in the consultation about the health and well being priorities for Hillingdon. In addition there were 127 written responses to the consultation between 30th November 2012 and 11th February 2013, of which 65 were paper responses and 62 were online.

The Consultation – Key Findings 3.7 The following section of the report sets out the headline findings from the consultation. In general, the consultation findings demonstrate support for the four key priorities set out in Hillingdon’s draft Joint Health and Wellbeing strategy. Only two responses directly disagreed with any of the proposed priorities. Some people / organisations responding to the consultation suggested other priorities which represent suggestions for how the

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priorities could be delivered across partners. Cabinet are asked to note that these suggestions will be taken forward for consideration as part of the implementation of the strategy.

A. The majority of responses agreed with one or more of the four proposed priorities: • Three quarters (78% - 99 people) agree with all four priorities. • Priority 1 – Improved health and wellbeing and reducing inequalities (90% agree - 114). • Priority 2 – Prevention and early intervention (89% agree - 113). • Priority 3 – Developing integrated, high quality social care and health services within the community or at home (90% agree - 114). • Priority 4 – A positive experience of care (92% agree - 117).

B. Only two of the responses disagreed with any of the priorities. Some only agreed ‘in part’ with the priorities. Reasons given for this include: • Seeking assurance that the quality of care services will not be adversely affected. • Wanting more detail about the priorities/implementation plans. • Comments /raising questions about the challenge ahead to influence health improvement by changing behaviours (e.g. healthy eating, increasing physical activity). • The need to focus on early years, early intervention and prevention.

C. Just under half (47% - 60 people) suggested other priorities, including: • A comprehensive communications strategy to ensure all social groups are engaged and aware of relevant health messages e.g. using a range of targeted messages delivered via different media. • Ensuring that the strategy is the product of meaningful engagement with the public. • Financial support / sign-posting for vulnerable carers and patients to help them cope when they are unwell or struggling with their circumstances. • Ensuring that care standards are maintained or improved. • Continuing to improve care pathways for those leaving hospital. • Recognising the challenge that the local authority, health partners and other partners face in delivering the changes needed.

D. One third (33% - 42 people) of the respondents made further comments about the proposals. They were broadly supportive but some requested: • More detail on proposed activities and on the funding available for the strategy and possible impacts on existing services. • Assurances about care standards and waiting times. • Assurances that the wider determinants of public health are recognised and addressed.

Financial Implications

The adoption of the strategy will not result in any direct costs to London Borough of Hillingdon. The delivery of the strategy will need to be contained within the budgets of the Council and partner organisations.

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4. EFFECT ON RESIDENTS, SERVICE USERS & COMMUNITIES

What will be the effect of the recommendation? Approval of the strategy will set clear priorities for improving health and wellbeing in Hillingdon. It will also ensure that the Council is compliant with its statutory obligations .

Consultation Carried Out or Required The development of Hillingdon’s Joint Health and Wellbeing Strategy has involved partners to develop the suggested priorities for the strategy and a programme of consultation on these priorities for improvement has followed which has involved consultation with a wide range of local stakeholders, including local residents. This has included consideration of the draft strategy by the Social Services, Health and Housing Policy and Overview Committee.

5. CORPORATE IMPLICATIONS

Corporate Finance Whilst there are no direct financial implications associated with the approval of the draft Health and Wellbeing Strategy, the delivery of the final strategy will need to be delivered within the approved revenue and capital budgets for the various services impacted by the strategy. The development of the strategy must also, where appropriate, take account of any current savings proposals within the MTFF that impact upon the proposed objectives and priorities to address the key needs identified within the Joint Strategic Needs Assessment.

Legal The Health and Social Care Act (2012) places a duty on Local Authorities and Clinical Commissioning Groups (CCGs) to develop a Joint Health and Wellbeing Strategy that focuses on the needs identified in the Joint Strategic Needs Assessment (JSNA). These statutory duties came into force in April 2013 and will be statutory duties of the Health and Wellbeing Board. Guidance from Central Government encourages local authorities, CCGs and other partners to work together.

6. BACKGROUND PAPERS

NIL

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Page 266

Appendix 1

HillingdonHillingdon’s’s’s’s Health and WellWell---- Being Strategy 2012013333----2012012016666

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1. IIntroductionntroduction ––– Why we have produced this strategy

All aspects of our everyday life have an impact on our health and wellbeing: from health services through to our environment, housing, employment, education, transport and our involvement in local communities. This means that working to improve community health and wellbeing is everybody’s business and in everybody’s interest.

For many years there has been a strong partnership between the statutory sector (the Council and the NHS) and the voluntary and community sector in identifying and tackling the specific health and wellbeing needs of people in Hillingdon.

This was strengthened further by the Health and Social Care Act 2012 which established local Health and Wellbeing Boards (HWBs) to improve the health and wellbeing of the local population and reduce health inequalities. The Act also transferred responsibility for public health to local authorities. HWBs must enable health or social care services to work in an integrated manner to advance the health and wellbeing of the people in their area. HWBs are also a forum to work with wider partners to address the other key influences on health such as housing and education.

HWBs bring together local councillors, GPs, directors of public health, adult and children's services. Together, their expertise delivers a collaborative and targeted approach to meet the needs of the local population. In Hillingdon, the HWB has been working in “shadow“ form for the last year but will take up its full powers from April 2013.

The HWBs have the power to agree, in consultation with the local community, the health and social care priorities which would make the most difference to improving health and wellbeing and reducing inequalities in the local area. While the priorities are also informed by outcomes set out in a national framework, this represents a move away from centrally driven targets, enabling Hillingdon’s HWB to have a very local focus on benefiting the community it serves.

HWBs must undertake a detailed assessment of local needs, called the Joint Strategic Needs Assessment (JSNA), and then develop a Health and Wellbeing Strategy focussing on how the outcomes which matter most can be achieved or improved. Local people, including the Local HealthWatch organisation from October 2013, will be fully involved in the development of future JSNAs and the HWB strategy. For more information on how to get involved next year please contact the Customer Engagement Team on 01895 250270.

These two documents – the supporting JSNA and the Strategy itself - give direction to the two key decision-making bodies (Hillingdon Council and the NHS’s Clinical Commissioning Group) to develop and/or purchase the right services locally to deliver on the strategy. Indeed these bodies have a legal duty to have regard to this strategy.

Hillingdon’s Clinical Commissioning Group (CCG) is made up of Hillingdon GPs, practice nurses, hospital staff and a representative from the public. On 1 April 2012 HCCG started work in shadow form, making decisions on how NHS Hillingdon budgets should be spent.

The particular value of the role of the Health and Wellbeing Board is in identifying the issues that this partnership can most influence, for example:

• How working together can bring the most benefit to outcomes for Hillingdon residents.

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• How we can address the most important local needs, now and in the future.

• How we can build on the strengths in our communities and what is already working well.

• How we can best protect or include the most vulnerable people in our communities.

• How we can work together at a time of public sector financial restraint to use our resources most efficiently.

We have a strong track record of partnership working in Hillingdon between Local Government, the NHS and the voluntary/community sector. This strategy sets out our plans to continue to work together with our residents in an attempt to tackle the most pressing health problems in Hillingdon.

Health and wellbeing is good overall, but we are determined to build on our record to date and make it even better for the longer-term.

2. Our approach and common principles

In order for this strategy to work, all of the various partners need to work to an agreed and common set of principles. We think that these principles should be:

• Residents want to have a say about the services they use.

• Most residents prefer to be treated as close to their homes as possible.

• Preventing disease and illness is always better than curing it.

• When illness does occur, the sooner services can help people, the better.

• People prefer to live as independently as possible, at home and within the community as opposed to institutional settings.

• Technology can help residents to live independently when they are unwell or have health and care needs.

• Both statutory and voluntary sectors are working with limited resources so we all need to make sure we make best use of the finances that are available. This may lead to difficult choices but our collective focus must be on those services which offer the greatest benefits and the greatest value for money to Hillingdon’s residents.

• All services need to evidence the benefits they offer to residents and be open and honest about how well they are performing generally.

• All of the various services helping to deliver health and wellbeing in Hillingdon need to work together and communicate well with each other and with Hillingdon residents.

We are facing unprecedented financial challenges at a time of major organisational change so it is imperative that the HWB is able to balance needs carefully and to influence its constituent organisations to make difficult decisions about priorities.

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We will continue to find ways to build and sustain value for money local services as opposed to making blanket cuts. We want to continue to use available health and social care budgets to focus on delivering improvements to health outcomes for local people. We will look at all services to assess whether they are desirable, affordable and sustainable in order to prioritise our expenditure.

From 1 April 2013 public health services will be funded by a ring-fenced budget based on historic spending. In the future it will be based on relative population health need and weighted for inequalities but it is not clear at present when this needs-based funding will be introduced. Public health services funding will be kept separate from the budget managed through the NHS Commissioning Board for healthcare to ensure that investment in public health is maintained.

A further budgetary consideration is the government’s proposed ‘Health premium’, designed to incentivise action to reduce health inequalities with a cash incentive. Payment will be dependent upon the Council making progress against certain public health indicators. However payments will not be made until 2015/2016.

3. Information that directs our strategy

Our health and wellbeing strategy has been developed to meet the needs identified in the joint strategic needs assessment (JSNA).

The JSNA is the process we use to identify the current and future health and social care needs of the population in the local authority area. It looks at the big picture of the local population over both the short term (3 to five years) and the long term.

Among other things, it describes in detail the health, care and wellbeing needs of the local population, identifying those groups where health and care needs are not being met and those which are experiencing comparatively different outcomes. Once we have a collective understanding of the needs of people in Hillingdon, it is important that we also focus on those that we can most influence, change and improve.

Understanding Hillingdon and the characteristics of its population is critical for the development of our strategy as having this insight allows us to better judge current and future needs, eg for specific services such as maternity and the demand for the treatment of certain conditions which are more prevalent in specific population groups.

The JSNA looks at the evidence of what works in both the prevention and the treatment of health problems. In some cases there is limited evidence of effective prevention and/or treatment of serious health problems. Our strategy will tend to implement approaches that are known to be effective.

In developing this strategy the Shadow Health and Wellbeing Board agreed at their meeting on 18 th October 2012 to consult on the priorities for improving health and wellbeing in Hillingdon. The consultation confirmed support for the four proposed key priorities in the draft strategy and indicated a need for further information about the implementation plan to deliver the priorities. This will be taken forward by the Board.

A consultation plan was prepared to ensure a wide cross-section of opinion was gathered using a mixture of approaches to inform the development of the strategy. This included an

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online survey and presentations / discussions at a number of local Groups. The consultation approach covered the following:

• Standard and easy read versions of the consultation survey were created. These were made available online and in paper format. • The consultation had its own page on the Council’s website, with details of the strategy and links to both versions of the survey (standard and easy read versions). • An email promoting the consultation was sent to an established consultation list of over 1,700 residents. • Messages were sent to partner organisations in the borough inviting contributions. • Local groups and forums were approached to take part in the consultation. Officers attended many of the groups to take part in and listen to the discussion. A number of scheduled events and groups took part in the consultation which included service users, carers, local residents and representatives from partner organisations. These included the following groups and events:-

Through these group meetings and discussions, hundreds of people in Hillingdon engaged in the discussion about the priorities for Hillingdon’s draft health and wellbeing strategy. In general, those taking part welcomed the consultation. In addition, there were 127 written responses to the consultation between 30th November 2012 and 11th February 2013, of which 65 were paper responses and 62 were online.

The Consultation – Key Findings

The following section of the report sets out the headline findings from the consultation. In general, the consultation findings demonstrate support for the four key priorities set out in Hillingdon’s draft Joint Health and Wellbeing strategy. Only two responses directly disagreed with any of the proposed priorities. Some people / organisations responding to the consultation suggested other priorities which represent suggestions for how the priorities could be delivered across partners. Cabinet are asked to note that these suggestions will be taken forward for consideration as part of the implementation of the strategy.

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4. National Priorities by Sector and Outcomes

Focusing on what matters to local residents and making a difference to their lives is at the heart of improving health and wellbeing in Hillingdon. Across health and social care there are three national outcome based accountability frameworks covering health, public health and social care which seek to focus on achieving outcomes which matter to people. The following diagram summarises how the three outcome frameworks join together. They have been used to guide the development of Hillingdon’s draft Joint Health and Wellbeing strategy and relevant outcome measures to check progress will be used where they fit local priorities.

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5. Hillingdon at a glance

Hillingdon is a diverse, prosperous Borough in West London bordered by Hertfordshire, Buckinghamshire, Hounslow, Ealing, and Harrow. It’s the second largest of London’s 32 boroughs covering an area of 42 square miles (11571 hectares), over half of which is a mosaic of countryside including canals, rivers, parks and woodland. As the home of Heathrow Airport, Hillingdon is London’s foremost gateway to the world, and is also home to the largest RAF airport at RAF Northolt. Hillingdon shares its borders with Hertfordshire, Buckinghamshire, Hounslow, Ealing, and Harrow.

The London Borough of Hillingdon has been in existence since 1965. In its current form, it is made up of 22 wards, or 163 Super Output Areas. The 2011 Census confirmed Hillingdon’s population to be 273,900.

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Hillingdon is a borough of contrasts. The north of the borough is semi-rural with a large proportion protected by green belt regulation, and Ruislip is the major centre of population. The south of Hillingdon is more densely populated, urban in character and contains the administrative centre of Uxbridge and towns of Hayes and West Drayton.

Heathrow airport is situated in the south of the borough and is the largest employer offering a range of relatively well-paid skilled and unskilled manual positions. There are a number of major manufacturing and retail organisations with headquarters and sites in Hillingdon. Stockley Park, to the north of Heathrow, is one of Europe’s largest business parks. Hillingdon council, RAF Northolt, Brunel University, Harefield and Hillingdon hospitals are major public sector employers within the area.

Hillingdon is a borough where town and country meet, boasting 800 acres of woodland, country parks, fields and farms, several rivers and the Grand Union Canal. We have more land under prestigious Green Flag status than any other London borough.

There are a range of opportunities to live well including: • Ruislip Lido, which boasts one of London's few beaches. • Ruislip Woods National Nature Reserve. • The Hillingdon Sports and Leisure Complex, a multi-million pound indoor swimming pool and leisure complex, which includes a restored 1930s open-air pool. The swimming pool is the first 50m Olympic-sized to be built in London for more than 45 years. • The country's first playground designed specifically for disabled children. • The picturesque villages of Harefield and Harmondsworth. • Four 18-hole golf courses. • Various theatres, arts centres and state of the art libraries. • Uxbridge shopping centre, one of the top-ten shopping centres in London is also located in Hillingdon.

The council shares an almost co-terminus boundary with the NHS Hillingdon. Hillingdon has 48 GPs; some of these patients come from surrounding boroughs.

There are good east west transport links in the borough, with the A40 and M4 offering direct access to central London, and respectively, Birmingham and the north; and Bristol and the west. Branches of the Metropolitan and Piccadilly lines of London Underground serving the north of the borough terminate in Uxbridge. Public transport in the south of the borough, with the exception of Heathrow airport is more limited. West Drayton and Hayes and Harlington national rail stations are on the London Paddington to Reading line. Travelling from north to south Hillingdon is much more complicated, with buses the sole form of public transport. Road journeys involve crossing the A40 at one of a number of traffic hotspots.

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6. Hillingdon: Key Facts about Health and Wellbeing

Understanding the needs of Hillingdon is important in guiding this strategy to target priorities to improve health and social care and reduce inequality. Further information about the needs of Hillingdon’s people can be found in Hillingdon’s Joint Strategic Needs Assessment.

• Hillingdon has a significantly higher birth rate than England as a whole. Between 2003 and 2010, there was a 25.7% increase in the total number of births in Hillingdon; higher than London and England. Over 40% of pregnant women in Hillingdon do not have an antenatal assessment within 12 weeks. This is significantly worse than the national average. • In 2010, Hillingdon had a significantly larger proportion of people in younger age groups (5-19 years) when compared with England and London. The higher proportion of this age group is more notable in boys than girls. The population of older age groups (50+) is also larger than London but smaller than England. However, the population of 25-44 year olds is less than the London average but still larger than England especially the female population. • The number of older people in the population is increasing. People are living longer meaning that we need to make sure we have services in place to meet these needs. In 2011/12 4,122 older people were supported by the Council with community care services. There were 3,419 packages of care, 450 residential placements and 378 nursing placements for older people during this period. • Black and minority ethnic (BME) communities make up approximately 32% of population of Hillingdon in 2011, an increase of 12% compared to 2001. The largest ethnic minority community is Asian (20%), of which the Indian category forms 12%. The Black African population is 4% of the total population. • Infant mortality rates in Hillingdon are not significantly different to the England average. However, the proportion of babies born with low birth weight is significantly higher than the national average. • Life expectancy for males in Hillingdon for 2008-10 was 78.7 years which was similar to London and England averages; and the female life expectancy for Hillingdon was 83.4 years, significantly higher than the England average, but similar to London average. Life expectancy has increased on average by at least 2.5 years, for males and females, during the past 15 years. Geographic areas in the south of the borough have generally lower life expectancy that those in the north. • Despite rates of smoking during pregnancy being lower than the England average, the rate of women recorded to be smoking during pregnancy in Hillingdon is significantly higher than the London average with 10% of pregnant women in the borough smoking at the time of delivery. • Major causes of death for residents of all ages are cancers (31% in Males and 26% in females), circulatory diseases (30% in males and 34% in females) and respiratory diseases (14% in Males and females). • As regards morbidity , hypertensive disease is the most prevalent condition recorded in GP registers (12%), followed by obesity (9.5%), depression (9.1%) and diabetes (5.9%). • Over a quarter (26.4%) of all children in Hillingdon are living in poverty as compared with 21.9% in England and 29.7% in London.

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• Levels of overweight and obesity are a growing threat for population health in Hillingdon as in the rest of the country. Ten per cent of children attending Reception Year and 21% in Year 6 are classified as obese. Twenty three percent of the adult population is estimated to be obese, which is lower than England (24.2%) and higher than London (20.7%). • Hillingdon is a high user of long term residential and nursing placements for older people in comparison with other areas of London. The all London average when measured on a per 10,000 population basis for 2010/11 and based on Department of Health data shows Hillingdon to be the 3 rd highest in London for residential and nursing expenditure. The same pattern is repeated for people with learning disability, physical disability and mental health services. Conversely the Council has the 2 nd lowest spend on non-residential services of all London boroughs, a trend the borough is actively seeking to reverse. • Dementia presents major challenges for health and social care services. Currently there is a significant gap between the estimated prevalence of dementia and the actual numbers on the GP registers suggesting there are possible issues with diagnosis with primary care. From a social care perspective, during 2011/12 482 older people with dementia were supported with community care services and of these 281 received packages of care, 128 received a residential placement and 83 a nursing placement. • Learning Disabilities - In 2011/12 490 adults with learning disabilities were supported by the council with community care services. 286 people received a community based package and 336 were supported either in residential or nursing care. The majority of people with learning disability (54%) have more than one complex need, e.g. a physical and/or sensory disability, challenging behaviour, epilepsy, health needs, Down’s syndrome, etc. • Physical Disabilities - In 2011/12 655 people of working age with physical and/or sensory disabilities received community care services from the Council. There were 602 community based packages of care, 33 residential and 30 nursing placements. • Mental Health - In Hillingdon 402 adults with mental health needs were supported by Adult Social Care during 2011/12. Of these 340 received community based packages of care, 54 were placed in residential home care and 10 in nursing home care. • Sensory Disabilities – In 2011/12 67 people with a sight loss as their main need were provided with community care services by the Council and of these 15 were aged below 65. During this period 24 people with a hearing loss as their main need were provided with community care services and of these one person was aged 65. There were 5 people with dual sensory loss, i.e. both deaf and blind, supported during this period and all were aged 65 and over.

7. Improving Health and Wellbeing

Clearly, there are challenges ahead but we are not starting from scratch. The partnership of statutory and voluntary sectors in Hillingdon has led to a number of improvements to health and wellbeing over the years. Here is a summary of some of the more recent improvements:

• There have been improvements in breastfeeding initiation rates (81%) and continuation (60%) as compared to 77% and 54% in the previous year. • Improvements in childhood immunisations have led to Hillingdon being ranked 1st or 2nd against a range of different indicators in London.

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• The MEND programme was commissioned to tackle the increasing rates of childhood obesity for ages 5-7 years and 7-13 years across geographic areas in Hillingdon. MEND Barnhill received a Quality Assurance Gold Award as one of the top five performing sites. • Within the Healthy Schools Programme, Hillingdon school children won an award under the NHS London initiative for their ideas on how to promote responsible sexual behaviour, resist peer pressure and access local services. • In Hillingdon, the percentage of NEET (people Not involved in Education, Employment or Training) decreased by 1.1% which is an improvement from last year. This moves Hillingdon’s position to ‘significantly better than England average’. • The NHS Health Check programme assessed over 6,500 people between age group 40- 74 years. • The take-up of personal budgets for social care is increasing which helps people who need care to be in control of the care and support they need. • Hillingdon’s stop smoking service helped 1647 smokers quit smoking and achieved a conversions to quit rate (4%) similar to England (4%) and higher than London (3.8%). • Department of Health funded project HAEDI (Hillingdon Awareness and Early Diagnosis Initiative) was delivered to raise awareness of Bowel Cancer in Hillingdon. • A new physical activity scheme for cancer survivors was developed in partnership with Hillingdon Hospital and Hillingdon Leisure Services. • A Specialist Alcohol Nurse in Hillingdon Hospital A&E has been funded to pilot brief intervention and diverting patients from presentations at A&E into community based treatment. • Hillingdon has established an integrated Sexual Health Service where all services work in partnership to provide a one stop approach for service users. • Telecareline assistive technology in combination with the Council’s Reablement Service are proving very effective in helping people to feel safe in their own homes and to regain their mobility to live independently. The services are critical in helping to prevent unnecessary admissions to hospital and/or residential / nursing homes. • The provision of extra care and supported housing is helping older people and people with disabilities to live independently in the community with support.

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8. The priority needs of Hillingdon’s residents

The following is a summary of the key needs of people in Hillingdon which this strategy will focus in reducing:

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9. The Health and Wellbeing Strategy - objectives and priorities

We have four broad objectives (the shaded areas below) as well as a number of more specific priorities to focus on. Each of these has a more detailed section within this.

1. IMPROVE HEALTH & WELLBEING AND REDUCE INEQUALITIES

We know that people will feel better and be healthier if they are more active and have access to better facilities across Hillingdon.

As a priority we will focus on physical activity and obesity.

2. INVEST IN PREVENTION AND EARLY INTERVENTION

We need to spend more on preventing disease and illness. The sooner health and social care are delivered, the better the chance of a good outcome.

As a priority we will focus on: • Reducing reliance on acute and statutory services; • Children's mental health and risky behaviours; • Dementia and adult mental health; • Sight loss.

3. DEVELOP INTEGRATED, HIGH QUALITY SOCIAL CARE AND HEALTH SERVICES WITHIN THE COMMUNITY OR AT HOME

The changes in health and social care legislation are designed to create a more joined up set of services for our patients, their families and carers. We want to make this the normal experience for the people of Hillingdon.

As a priority we will focus on: • Integrated approaches for health and well-being, including telehealth; • Integrated Care Pilot for frail older people as well as diabetes and mental health.

4. CREATING A POSITIVE EXPERIENCE OF CARE

We will tailor our services in a more personalised way. We can only achieve this if we hear your views and experiences. As a priority we will focus on: • Tailored, personalised services; • An ongoing commitment to stakeholder engagement.

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OBJECTIVE 1 - IMPROVE HEALTH & WELLBEING AND REDUCE INEQUALITIES

KEY PRIORITY - Physical Activity and Obesity What is happening in Hillingdon? • £3.6 million is spent annually on treating chronic illness due to physical inactivity. • Only 52% of adults are physically active in Hillingdon for 30 minutes or more per week. • We have some key partners for our strategy. • Hillingdon is well placed to support physical activity with first class facilities and natural resources. • There is a gap of 16.9% between disabled and non-disabled participation in physical activity of 3 x 30 minutes per week.

Trends/Information Compared to other Boroughs in England, there is typically a lower number of adults and older people taking part in physical activities on a regular basis in Hillingdon and a higher number of children who are displaying signs of obesity (see published Hillingdon health profile 2012). There is an opportunity to encourage residents in Hillingdon to get involved in activities which improve their health and wellbeing.

What are we going to do? • To continue to develop sports programmes for children, young people, adults and older people. • Set up care pathways with primary care and Public Health. • Review the support and facilities for people with disabilities in partnership with DASH. • Set up Change4Life campaign (over 3 years) to encourage residents of all ages to participate in 150 minutes of physical activity a week. • Recruit Sport Makers across the borough (including LBH staff). • Increase in walking and cycling. • Set up Active Travel plans and develop Walk Hillingdon plan.

We will succeed if we can: Linked to: • Increase percentage of physically active JSNA – promoting a healthier lifestyle. population exercising for 30 minutes per week by 15% or 21,000.

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• Decrease gap between disabled and non-disabled people's participation in sport (as measured by Active People Survey) to less than 14.4% (currently 16.9%).

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OBJECTIVE 2 - INVEST IN PREVENTION AND EARLY INTERVENTION

KEY PRIORITY - Reducing reliance on acute and statutory services What is happening in Hillingdon?

Generally speaking, there are a number of ways we already work together to reduce reliance on statutory and acute health and social care services. • Universal services aimed at preventing ill-health before its onset ; they can improve quality of life and prevent problems escalating thus avoiding or delaying the need for intensive and more costly interventions or services later on. o For example, the Council funds a range of voluntary and community sector organisations to deliver a range of community based clubs and societies for older people, people with mental health needs and people with other disabilities to support and develop social networks in order to prevent social isolation. o The Council also funds Age UK to provide the Ageing Well service which utilises the common facilities in seven sheltered schemes to support scheme residents and people from the local community living with dementia and their carers. • Services aimed at detecting and treating pre-symptomatic disease that, if left undetected, could become harmful. o For example, NHS Hillingdon has screening programmes in place for cervical cancer for women aged 25 – 64; breast cancer for women aged 47 – 73 and bowel cancer for men and women aged 60 – 74. The uptake and coverage of these programmes in Hillingdon are higher than the London average. o Annual health checks by Hillingdon’s GPs of 178 people with learning disabilities was under-taken in 2011/12. • Interventions aimed at improving the quality of life for people with various conditions by limiting complications and disabilities, reducing the severity and progression of disease, and aiding rehabilitation or recovery. Examples include the TeleCareLine and Reablement services referred to below.

Here are some other specific areas of progress: • Specialist information and advice services: organisations like Age UK, the Disablement Association Hillingdon, Hillingdon Carers, the Stroke Association and the Alzheimers’ Society receive funding from the Council to provide information and advice services to Hillingdon residents. • Access to information and advice: an online directory of services called Careplace and including information and advice services has been developed by the Council in partnership with other West London Councils. • The Council has developed its Telecareline service which includes a range of sensors, e.g. exit sensors, epilepsy sensors and detectors, e.g. carbon monoxide, flood, fire, etc, that all link to a central contact centre and include a mobile response service. This is available free of charge to people aged 85 and over and those eligible for community care services (subject to a financial assessment) and in 2011/12 supported 1,168

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Hillingdon residents to live safely in their own homes. • The range of skills within the Rapid Response Team at Hillingdon Hospital has been extended to include psychology in order to assist older residents with dementia back into the community following a hospital attendance to prevent unnecessary admission. • Age UK provides a service that provides support to older people that have returned home following a hospital admission for up to six weeks to enable them to grow in confidence and prevent a hospital readmission. • A major programme of commissioning and building supported housing for people with learning and physical disabilities, mental health issues, frail older people and people with dementia is in progress. This will reverse the trend of too many people being referred to residential or nursing care when they could be supported within the community and at home. • We are working with partners to deliver health care in the right place at the right time by ensuring easy access to high quality care and shifting settings of care to provide more services out of hospital and closer to home. • The 111 service has been introduced as a 24/7 single point of access for non-emergency help. • The Urgent Care Centre at Hillingdon Hospital has been improved to provide easy access to high quality care. • The Council’s Reablement service is helping people to live independently in their own home, helping to reduce reliance on residential/nursing care and prevent placements made directly from hospital as well as increase people’s ability to support themselves. Eligible people approaching the Council for assistance with their care receive a free service up to six weeks.

Trends/Information a) Supported housing programme Supported housing programme by client group and planned year of delivery, 2012/13 to 2014/15 Learning Physical Mental Older Total disabilities disabilities health people 2012/13 23 7 5 - 35 2013/14 86 6 26 - 118 2014/15 72 37 24 136 269 Total 181 50 55 136 422

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b) Reablement

The Reablement service is achieving its aims of increasing people’s independence and reducing reliance on statutory services. In terms of trends: • Over 60% of people have no ongoing care needs once the 6 week Reablement service has been provided • 38% of people had an ongoing care need but 68% of people left the Reablement service with a reduced care package i.e. they could do more for themselves as a result of their recovery and the impact of the service. c) Residential and nursing care The Council remains a high user of long term placements for Older People which is an unsustainable position. The all London average when measured on a per 10,000 population basis for 2010/11 shows Hillingdon Council to be 3rd highest in London for residential and nursing expenditure. This same pattern is repeated for Learning Disability, Physical Disability and Mental Health services. Conversely the Council is 2nd lowest spend on non-residential services of all London Boroughs, a trend the borough is actively seeking to reverse.

The success of TeleCareLine (see Objective 3) and Reablement will significantly contribute to the service objective of reducing the spend on residential care from its current 53% to below 35%; the DH state that good practice would be no more than 40%. d) Urgent Hospital care

Benchmarking against London and NHS averages show that Hillingdon has a higher activity for emergency attendances at A&E and admission to hospital rates for some conditions. Hillingdon is consulting on ways to improve access to high quality responsive primary and community care to make out of hospital care the first point of contact for people with urgent but not life threatening needs. The UCC will aim to see approximately 80,000 patients each year. This will reduce usage of A&E by around 50,000 attendances allowing A&E specialists to focus on the most serious and life threatening conditions and reducing patient waiting times. In addition, the scope and range of skills within the community Rapid Response team will be enhanced to prevent avoidable admissions and provide enhanced support for people to remain independent at home following a crisis.

What are we going to do? • Allow easy access to high quality, responsive primary care. • Develop clearly understood planned care pathways. • Create a rapid response to urgent needs. • Develop a wide range of supported housing to ensure that people have real alternatives to residential and nursing care. • Ensure that providers work together to proactively manage your care. • Ensure you spend an appropriate time in hospital with supported discharge.

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We will succeed if: Linked to: • We complete the delivery of 422 self-contained flats for JSNA Priority – older older people, people with learning disabilities, people with people. physical disabilities and people with mental health needs by April 2015. Hillingdon out of hospital • Access times reduce. strategy. • Patient satisfaction increases. • Alternative care pathways enable a reduction in the need for hospital outpatient attendances. • Rapid response to urgent needs is provided so that 1,500 fewer people need to access hospital emergency care. • Lengths of stay in hospital reduce, especially for frail and elderly people. • The number of falls related admissions to hospital is reduced. • Readmission to hospital rates reduce. • Referral rates to residential and nursing care continue to reduce. • Reablement is even more successful in reducing people’s ongoing reliance on statutory services.

KEY PRIORITY - Children's Mental Health & Risky Behaviours What is happening in Hillingdon? • Hillingdon has a growing population of 0-19 year olds which forms 25.7% of the local population. National data suggests that about 4,600 children in Hillingdon have a specific mental health need which requires support. • Partners are working together on shared priorities including developing early intervention, improved multi agency pathways for vulnerable groups, and reducing the need for inpatient care. • An early intervention service has enabled improved access to specialist help for young people with psychosis and other intensive home support.

Trends/Information • A recent study suggests that about 380 high school population in Hillingdon are self harming.

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• Rates for sexually transmitted infections, for young women between 16-19 are rising. • A comparative analysis shows there is a London wide increase in specialist admissions for under 18ys as a result of mental health needs including eating disorder. 909 inpatient bed days were used in 11/12 by young people from Hillingdon for specialist care. • Some vulnerable groups more likely to require support for mental health needs and other risky behaviours. These include those living in poverty, looked after children, people with a learning disability, young offenders, and those not in employment, education or training. Data suggests that 61 Looked after Children in Hillingdon need support for mental health needs.

What are we going to do? • To develop our workforce to be better at identifying and supporting children who need targeted support from universal services including schools. • Improve information sharing between the agencies about vulnerable children. • Improve the uptake of screening for sexually transmitted diseases in young people. • To decrease the number of children who need out of area specialist hospital based care. • Improve local pathways for children and young people who are experiencing crisis including for mental health needs and challenging behaviour.

We will succeed if we: Linked to: • Launch a tracker system and single • JSNA Priority – risk behaviour. information portal and introduce a fast • JSNA Priority – CAMHS. track inter-agency referral process to • CAMHS DAS challenge. improve links across local services. • Develop good practice models and local pathways (Risky behaviour subgroup) and cascade via the Children's Trust. • Prioritise the commissioning of effective parenting services. • Reduce inappropriate use of specialist services.

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KEY PRIORITY - Dementia and Adult Mental Health What is happening in Hillingdon - Adult Mental Health? • NHS Hillingdon and London Borough of Hillingdon are increasingly working together to deliver and improve services; there is potential to improve services by exploring and establishing models of joint commissioning and joint delivery. • There is an increased focus on prevention, early intervention and recovery orientated care with a recognition of the ongoing over reliance on secondary mental health services. • There is significant potential to “shift settings of care”, transferring the management of people with serious mental illness who are stable from secondary to primary care and to increasing the assessment, diagnosis treatment of people in primary care settings. • Too many people with mental health issues are living in residential care when they could be living in a more independent supported housing environment with care and support on-site. A major programme of commissioning and building supported accommodation is starting to address this and will seek to provide over 400 units of supported accommodation (including those for people with mental health issues) over the next 3-4 years. • The need to improve the management of the physical health care needs of people with mental health problems in both primary and secondary care has been acknowledged with strategies to achieve this being implemented through improvements in assessment and treatment in both primary and secondary care and establishment of a psychiatric liaison service. • The specialist needs of people with an eating disorder, forensic need or personality disorder are not fully addressed. • People experiencing a mental health crisis and their carers feel unsupported and unsure about how to access timely support and treatment, particularly “out of hours”. • The potential of the voluntary sector and organisations in the wider community to contribute to effective and efficient service provision and improved patient experience and outcomes has been acknowledged; the potential to maximise this contribution has been recognised. • Services can be improved by improving co-ordination and partnership working across sectors; improvement can be achieved through the development of integrated care pathways and service redesign. Dementia • As part of a joint approach to dementia, NHS Hillingdon and Hillingdon Council will shortly deliver a joint strategy on adult mental health needs including dementia. • Many dementia patients present to services in a crisis that could have been avoided through earlier diagnosis, intervention and more effective support. • The rate of diagnosis of dementia is being improved through improved assessment and treatment processes in primary care and establishment of memory assessment services

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(subject to consultation). • Improved community based assessment, treatment and support is needed along with improved co-ordination of care in primary and secondary care. • Acute general hospital beds are not always used appropriately; improvement is being made through implementation of a range of strategies including establishment of a psychiatric liaison service. • Steps have been taken in-year to move from a bed to community based service; the potential to further reduce reliance on beds and to re-invest in community services needs further exploration. • The importance of the role of carers has been acknowledged; further improvement is needed to support them in their essential caring role. • The potential role of the voluntary sector and the wide range of organisations that work with older people in supporting people with dementia and their carers has been and must be continue to be acknowledged and explored to maximise outcomes, effectiveness and efficiency. Trends/Information Adult Mental Health • The adult population in Hillingdon is projected to rise by 1% per annum over the next 5 years. • There is potential to significantly improve effectiveness, efficiency, experience and outcomes by shifting the setting of care from secondary to primary care settings and reducing use of acute and rehabilitation beds and specialist placements. • 30% of the population of Hillingdon is from a black and minority ethnic community; the mental health needs of these groups have not been fully addressed and identified and is a priority. Dementia • 13% of our population is over 65, and 7% of these have dementia. • The number of people with dementia is expected to increase by 9% within 5 years. • Rate of diagnosis of dementia is currently low (27%) of estimated numbers. • There is potential to improve efficiency, patient experience and outcomes by ensuring early diagnosis, early intervention and improved assessment, treatment and support in the community. • There is potential to improve efficiency, patient experience and outcomes by reducing reliance on acute beds – physical and mental health care - and residential placements.

What are we going to do? Adult mental health • Explore cost effective methods to promote mental health and wellbeing in all communities.

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• Establish a joint approach to assessment, treatment and support for mental health and physical health care needs between primary and secondary care, ensuring early diagnosis and intervention and shifting responsibility for the care of people with serious mental illness who are stable from secondary to primary care. • Establish a robust primary care based mental health service through service redesign (including IAPT services). • Continue to promote a community based model of care including exploring the potential to reduce use of acute and rehabilitation beds and specialist placements. • Ensure that arrangements are in place to support people and their carers when they are in crisis. • Explore the potential to provide the specialist interventions needed by people with an eating disorder, personality disorder through service redesign and joint work with the National Commissioning Board as appropriate. • Work with faith and other groups to identify and start to address the mental health needs of black and minority ethnic (BME) communities. • Maximise the contribution of voluntary and community services to the support and recovery of people with mental health problems through service redesign and ensuring maximum benefit of the investment in these services. • Bring together and progress all of the above in a joint strategy agreed by NHS Hillingdon and Hillingdon Council and explore models to promote improved joint commissioning and service delivery. Dementia • Address the needs of people with dementia within the out of hospital strategy. • Reduce reliance on acute mental health beds and through service reconfiguration (closure of under used beds) and establish a memory assessment service (subject to consultation). • Improve the infrastructure for community based assessment, treatment and support over time. • Specialist dementia extra care housing will be part of the major programme of supported accommodation being developed and delivered by the Council. • Improve the co-ordination of care through improved assessment and multi-disciplinary working in primary care (older people integrated care pilot - ICP) and integration of the work of all relevant agencies in a care model. • Evaluate and consider continued operation of the psychiatric liaison service at The Hillingdon Hospital (mental health integrated care pilot - ICP). • Bring together and progress all of the above in a joint strategy agreed by NHS Hillingdon and Hillingdon Council.

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We will succeed if we: Linked to: • Take action to promote mental health • JSNA Priority – "Transforming Pathways and wellbeing in local communities and of Care; Planned Care". address the needs of BME communities. • NHS Hillingdon Community Strategy • Establish effective early diagnosis and 2009-14: care priority pathway. intervention approaches. • Older People ICP, NWL. • Establish effective community and • Mental Health ICP, NWL. primary care based services and • DAS Challenge, NHS Hillingdon. approaches in order to enable and • Hillingdon Health and Wellbeing support primary care to assess, treat and Strategy, 2012. support people with mental health needs and their carers effectively. • Maximise the potential contribution of the voluntary sector and other community based organisations to address the needs of people with mental health problems including ensuring that the resources invested are use effectively and efficiently. • Continue to review care pathways and redesign services to deliver cost effective services based on community rather than bed based models of care. • Ensure the appropriate use of acute beds • Acknowledge the essential role of and provide effective support to carers. • Ensure an effective joint approach to commissioning and service delivery by NHS Hillingdon and London Borough of Hillingdon.

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OBJECTIVE 3 ––– DEVELOP INTEGRATED, HIGH QUALITY SOCIAL CARE AND HEALTH SERVICES WITHIN THE COMMUNITY OR AT HOME

KEY PRIORITY - Integrated approaches to HWB What is happening in Hillingdon? • The Council’s Telecareline service has been very successful in providing simple as well as sophisticated equipment to help people live independently that would otherwise rely more heavily on statutory care provision. Telecare can range from the simple lifeline and pendant to bed, chair and exit sensors and safer wandering devices (linked to a central contact centre and mobile response service) and is an integral part of the Reablement Service. Telecareline is free to anyone aged 85 +, to those receiving the six week reablement service and to residents on an ongoing basis who are eligible for community care services (subject to financial assessment).

• Health and social care partners are developing a new model of supported hospital discharge that enables a seamless patient journey back to their usual place of care with enhanced support when need. This could include joined up intermediate care for up to 6 weeks at home or in a step-down bed, and access to supportive services such as equipment, telecare, rehabilitation and reablement. This will also help patients to return to their home rather than institutional care after discharge from hospital. • The Hillingdon Hospital is currently piloting a psychiatric liaison service. This service will help diagnose mental health problems while the patient is in hospital. The service will improve coordination with out-of-hospital care providers and housing services, meaning a higher proportion of patients can be discharged directly to their own homes, or appropriate accommodation. • The voluntary sector has a key role in co-developing services with patients to enable greater choice and control as well as promoting and supporting self-directed care. Voluntary sector services can also work collaboratively with each other, and with statutory services, and their role in communities can also support the new networks with co-developing services and involving patients and the public.

Trends/Information a) TeleCareLine

The number of new users of the TeleCareLine Service in 2011/12 was 1,178. The target for the number of new clients taking up the service for 2011/12 was a net increase of 750 which has been exceeded with a total of 1120 new users during the year. Although this first year take up is very encouraging particularly amongst the older population it is noticeable that take up by younger disabled people is lower than anticipated. As at 31 March 2013, the provisional out-turn is that 2,219 new service users have benefitted from TeleCareLine equipment since the scheme started in April 2011.

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b) Intermediate care

A total of 74,731 emergency patients per year get admitted to the Hillingdon Hospital NHS Foundation Trust (THHFT) who are 65 years or over. A proportion of these patients (22%) continue to stay for more than the required length of time after they are medically fit to move from an acute hospital setting. Patients can benefit spending more appropriate time in hospital by introducing joined up intermediate care and discharge planning.

What are we going to do? • Extend the Telecareline service to 3000 people by March 2015 • Enable patients over 65 years admitted to hospital as an emergency to experience supported discharge from hospital to their usual place of residence. This will enable people to leave hospital as soon as they are medically fit to do so, by hospital and community services to work seamlessly together taking a joint approach across health and social care. This will enable older people to maintain an optimum level of independence in the community. • Develop and submit a bid to the Integrated Care Pilot (ICP) Innovation Fund for a pilot telehealth initiative. A local case for telehealth as a way of helping to prevent ill health and reducing hospital admission for some long term conditions is being explored, based on the recently published evaluation of the National Whole System Demonstrator Pilots.

We will succeed if we: Linked to: • Achieve 750 new TeleCareLine • Adult Social Care Transformation Plan: registrations by the end of 2013. Priority 2 (p7) and target (p24). • Up to 1,600 patients benefiting from • CCG commissioning priority: supported hospital discharge and "Transforming Pathways of Care. maintain an optimum level of • JSNA Priority theme: "Community-based independence in the community. Resident-focused Services". • QIPP Plan project (OOH/111).

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KEY PRIORITY - Integrated Care Pilot What is happening in Hillingdon? • The integrated care service for older people pilot was launched in July 2012. It will provide a joined up approach to patient care which puts the patient at the centre, and proactively manages their care across health and social care. GPs and other members of the multi-disciplinary group will identify the most complex patients who require integrated care from a number of professionals. • The pilot is based on multidisciplinary teams of GP practices and provider partners working in geographical networks. • The Pilot will focus on older people who are frail and over 75, those with diabetes, coronary heart disease or respiratory disease. • The multidisciplinary teams have now started discussing patients identified as needing integrated care and co developing care plans with these patients.

Trends/Information

How the integrated care model will work in practice

The MDG meets 7 regularly to review its Each patient is then Performance Review performance and decide given an individual 7 how it can improve its 4 integrated care plan that ways of working to meet varies according to risk ü The MDG uses the ü the Pilot goals and need ü ICP information tool to stratify these 2 patients by risk of 4 emergency Work Planning A small number of the admission 5 1 Care Delivery most complex patients will be discussed at a 6 multi-disciplinary case conference, which will 1 2 help plan and Patient Registry Risk Stratification coordinate care GP Practice nurse

6 Case Conference

District nurse Social care worker

Community Community pharmacist Mental Health

Each MDG holds a register of all patients who are Patients receive care from a over the age of 75 range of providers across 1 3 All providers in the MDG and/or who have Shared Clinical Protocols settings, with primary care diabetes – these agree to provide high 5 playing the crucial co- quality care as laid out patients are part of 3 ordinating role and every the Pilot in the Pilot’s body using the ICP IT tool to recommended coordinate delivery of care pathways and protocols

Exhibit 6 Model Diagram

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What are we going to do?

1. Regular multi-disciplinary case conferences will bring together hospital specialists, GPs, community health providers, social workers, mental health specialists and others to discuss how best to provide for complex patients. A care plan will be co developed with the patient (and their carer where appropriate), ensuring all the services that the patient needs are working together. 2. This proactive case management and secondary prevention will provide ongoing support to patients with risk of deterioration, including enhanced support to patients in care homes. 3. Purchase an IT tool to automate the data needed to manage the Pilot, including risk assessment, work planning and messages between provider organisations 4. Pursue development of an improved falls pathway through the Integrated Care Pilot Innovation Fund.

We will succeed if we: Linked to: • All patients who have had three or more • CCG Commissioning Priority: "Scaling-up emergency admissions in the previous Integrated Care". year are offered case management by a dedicated team of community nurses, • Hillingdon Out of Hospital strategy. with care plans and support to reduce • HWBB Integrated Care for Older People the number of avoidable health crises case for change and implementation and their need for hospital based care. plan. • Greater support at end of life, with an increasing proportion of people dying in their place of choice. • More use is made of services such as telehealth and telecare to help keep people, such as those with respiratory conditions, healthy and in their own homes. • Achieve full roll out of the integrated care service to all Hillingdon's GP practices by the end of 2013.

Page 294 Strategy Page 28 of 33

OBJECTIVE 4 --- CREATING A POSITIVE EEXPERIENCEXPERIENCE OF CARE

KEY PRIORITY - Tailored and personalised services What is happening in Hillingdon? • Personal budgets for social care services helps to ensure that people are in the driving seat, able to choose and then control the services and the support they receive. By 31 March 2012, 26% of people receiving community care services were receiving self directed services. Since then, the use of personal budgets by eligible social care service users has increased and the new national target of 70% will be achieved. • The Council works in partnership with the voluntary sector to make sure that service users have support and hands-on advice about how to use their personal budgets. • In partnership with other west London authorities, the Council has produced an online directory of providers – CarePlace- to help inform personal budget holders about the choice of services, help and support available in the local community. • In partnership with three other West London authorities, we will develop a new voluntary sector support planning and brokerage service – helping people to develop support plans to meet their assessed social care needs as well as helping people to purchase the services and activities that will turn the support plan into action. • Developing an on-line directory to enable residents and professionals identify the services that residents eligible for community care services may wish to purchase with their personal budgets. • An extensive supported housing programme which will see the development of 422 self- contained flats over a four-year period. The care and support services for these schemes will be developed on a “core and flexi” basis so that residents have a choice about who delivers those aspects of care and support services that are not critical to the safe management of the supported housing scheme. This also enables the Council to commission the “core” services while not removing choice from service users who want to be actively involved in the management of their personal care and support. • The Council is currently working with providers of existing supported housing schemes for people with learning disabilities and people with mental health needs to personalise the service model on a core and flexi basis. • Hillingdon Council is working jointly with providers to develop replacement services for both planned and unplanned situations when the personal assistant (PA) of a resident receiving community care services is unavailable, i.e. due to sickness, holiday, etc. • 54% of people say they would prefer to die at home but in NW London this is only achieved for 18%.

Page 295 Strategy Page 29 of 33

Trends/Information

• The Council employs a small team of inspectors to work with providers of social care and support (across the statutory, private and voluntary sectors) and ensure that quality services are being offered. Inspectors use a mixture of contract monitoring, planned and unscheduled inspections, and meetings with service users to develop a picture of what services are like on the ground. The over-riding objective is to improve the experience of care services and help to raise and then maintain standards where things are not as good as they could be. • The take-up of personal budgets for adult social care is continuing to increase providing more and more people with choice and greater control over their care and support needs.

What are we going to do? • We are working to increase the percentage of adults in receipt of community care services with a personal budget. • We will put in place a new Personal Budgets Support Service to support and advise people with their personal budgets. • Work with providers to ensure that residents who are eligible for community care services can access emergency and planned replacement care arrangements to cover periods when their PAs are not available, e.g. sickness, holidays, etc. • We will continue to develop CarePlace including adding functions that enable people to share their experiences of local services (similar to ‘Trip Advisor’) which will help the social care market to more effectively respond to people’s needs. • We will work with voluntary and community sector providers to support them to provide services that people may want to purchase using their Personal Budgets. • Ensure that community based services are in place to support people with terminal conditions to die at home if that is their choice. • Complete the delivery of 422 self-contained flats for older people, people with learning disabilities, people with physical disabilities and people with mental health needs by April 2015.

Page 296 Strategy Page 30 of 33

We will succeed if we: Linked to: • Deliver Personal Budgets to all those • Adult Social Care Personalisation and eligible. Commissioning Plan 2011/2015. • Launch the Personal Budgets Support Service.

KEY PRIORITY - Stakeholder engagement: our commitment What is happening in Hillingdon?

Ensuring that our residents are informed and involved in decisions that affect them or their families helps to make sure that service improve their health and well-being at an early stage and prevent health needs deteriorating. Improved communication is a key part of increasing capability for prevention and early intervention. • NHS partners are committed to engaging and involving patients and the public as set out in the NHS constitution: ‘You have the right to be involved, directly or through a representative, in the planning of healthcare services, the development and consideration of proposals for changes in the way those services are provided, and in decisions to be made affecting the operation of those services’ • The Council involves residents and their families in the development of services including agreeing the tender specification and taking part in the evaluation of organisations bidding to deliver services.

Our approach is to create and sustain an on-going dialogue. This will ensure our residents are aware of any changes proposed and have had the opportunity to share their views about health and social care changes. In practice, this will include:

• Strategic planning: patient and resident representatives will contribute to the development of health and social care strategy and plans, for example dementia care in Hillingdon

• Development of services: we will involve patient and resident representatives in service developments such as the community-based pathways.

• Wider communication: we will use a range of channels to communicate with Hillingdon residents and specific groups on key priorities to access information on local services, for example out of hospital services.

Page 297 Strategy Page 31 of 33

Trends/Information

This diagram shows how we are working together across partners to co-ordinate services which support improvements in health and wellbeing. The percentages in the diagram above refer to the estimated volume of feedback from service users, carers and partners.

What are we going to do? • Establish principal services of patient and service user data. • Systematically gather patient and resident experience data and analyse then respond to it. • Ensure that the Hillingdon HWB is a major contributor to the emerging Hillingdon CCG Patient, Public, Involvement Model. • Establish relationship and communication points with HealthWatch on all aspects of the HWB's agenda in a planning cycle.

We will succeed if we can: Linked to: • Focus on improving the experience of • Link PPI strategy (this is the Public, care using the feedback from residents Patient, Involvement model used by the who have used services Hillingdon CCG). • Focus on improving the lives of our • HCCG Commissioning Strategy for

Page 298 Strategy Page 32 of 33

residents by measuring outcomes and patient and public engagement. listening to their views about service • Adult Social Care Personalisation and improvements. Commissioning Plan, 2011 – 2015. • Publish an annual report on Patient Experience and the HWB's response to it. • Publish a list of contacts for all aspects of the HWB's business. • Agree and publish a communications planning cycle for the HWB.

8. KKeepingeeping in touch

We will provide regular updates on how this strategy is doing, and we hope that you use this document to assess how all the various organisations in Health, Social Care and Public Health in Hillingdon are doing – and particularly how their own plans match this one.

If you have any thoughts or questions on this Strategy, please let us know by contacting the Council’s Customer Engagement Team:

Customer Engagement Team

Email: [email protected]

Telephone: 01895 250270

Page 299 Strategy Page 33 of 33 This page is intentionally left blank

Page 300 Agenda Item 12

GIFT FUNDING: ADDITIONAL PLANNING RESOURCE FOR ST ANDREW’S PARK (FORMER RAF UXBRIDGE)

Cabinet Member(s) Councillor Keith Burrows

Cabinet Portfolio(s) Planning, Transportation and Recycling

Officer Contact(s) Matthew Duigan / James Rodger, Residents Services

Papers with report None

1. HEADLINE INFORMATION

Summary This report considers recruitment of an additional staff member to assist with providing a discretionary service.

Specifically, a Planning Officer is sought to process and determine details applications (planning condition and planning obligation discharges) and undertake report writing and processing of major reserved matters applications associated with the St Andrew’s Park site (former RAF Uxbridge).

Costs arising from the additional staff member will be paid for by VSM Estates. The funding covers employment of the planning officer for a period of 3 months.

This will ensure additional resources are dedicated to provide the discretionary service, consistent with the importance of this project to the local community and the wider area.

Contribution to our The recommendations will assist the planning process to realise plans and strategies the objectives of the Sustainable Community Strategy.

Financial Cost Costs arising from the discretionary services will be paid for by VSM Estates who have made an offer of £15,000 in gift funding which will cover the costs of assessing and determining reserved matter applications and associated pre-commencement conditions and planning obligations applications.

Relevant Policy Residents’ and Environmental Services Overview Committee

Ward(s) affected Uxbridge North and the surrounding wards.

Cabinet – 25 April 2013 Page 301

2. RECOMMENDATION

That Cabinet accepts the of fer of a gift of £ 15,000 from VSM Estates and authorises officers to provide the discretionary services in accordance with the provisions of Section 93 of the Local Government Act 2003.

Reasons for recommendation

The key to delivering the development of the former St Andrew’s Park (RAF Uxbridge) site is the early commencement of necessary infrastructure (such as new roads within the site and necessary improvements to various highway junctions).

A considerable amount of planning work has already been done to discharge conditions and planning obligations necessary for development to proceed and construction of the first houses on the site is underway.

Not withstanding this, the scale of the development (which is phased) is such that there are still further reserved matters and pre-commencement condition applications which must be determined before they can implement the construction of some of the site infrastructure.

The developer (VSM Estates) has requested that the Council provide a dedicated planning officer to process reserved matters and pre-commencement condition applications. The processing of these submissions and applications will incur costs to the Council. The sum of £15,000 in relation to discretionary services will greatly assist the Council in meeting those costs.

As part of fulfilling the requirements of assessment and determination, there will be the need for on-going meetings, and the provision of consistent and timely advice throughout the process. In the case of the reserved matters application, there is an additional requirement for public consultation and finally, to report the matter to Central and South Planning Committee for a decision.

Alternative options considered / risk management

I. Refuse to offer the discretionary services and not accept the £15,000 gift funding. It should be noted that should this be refused the costs would need to be met through the existing budget.

Policy Overview Committee comments

None at this stage.

3. INFORMATION

Supporting Information

1. St Andrew's Park (i.e. the former RAF Uxbridge site) covers an extensive area near to Uxbridge Town Centre. The site has the potential to provide over 1,300 new dwellings, and to significantly improve the aesthetic appeal of the site and the immediate area, and

Cabinet – 25 April 2013 Page 302

contribute to improving services and facilities in the local area, including through the provision of a new primary school.

2. The current situation is that the outline planning permission has been granted and many of the pre-commencement conditions have been discharged. Some construction work is underway. However detailed approval is still being sought in relation to the initial works necessary to ensure delivery of infrastructure required to facilitate the wider redevelopment of the site.

3. The applicant has requested that the Council enter into a Planning Performance Agreement for the continued provision of the determination of the reserved matters application for the provision of preliminary infrastructure as well as the discharge of pre- commencement conditions associated with the same. The sum of £15,000 would cover costs associated with this work. This would also meet the costs of temporary Planning staff.

4. In order to meet the reasonable and justifiable costs to Council and to ensure that dedicated resources are provided to ensure the best outcomes for the project, it is considered appropriate that the Council should accept the sum of £15,000 from VSM Estates. The sum would be strictly ring-fenced to ensure that it is used in accordance with the planning functions associated with the former RAF Uxbridge site.

5. Whilst the acceptance of the sum cannot in any way influence the outcome of the reserved matters and pre-commencement conditions applications, it can provide an adequate staffing resource to enable the development proposals to be afforded a higher level of priority than might otherwise be possible, particularly given the complexity and importance of this project. In this regard, a temporary dedicated project officer would enable the resolution of issues, help realise the expectations of the Council through the planning process and also to provide a central contact for the community and key stakeholders.

6. The Council has previously agreed funding in relation to various planning delivery agreements on the former RAF Uxbridge site. There is a proven track record of Planning Performance Agreements delivering a high quality and efficient planning service.

7. The alternative, to refuse the sum, would involve meeting the costs of the assessment through the existing planning budget, which is not likely to achieve the same objectives, given the current constraints on that budget and the competing priorities of other work streams.

8. Cabinet is recommended to authorise officers to provide the discretionary services to be paid for by VSM Estates in the sum of £15,000. If funding is not provided externally by VSM Estates then these on-going costs will need to be met from existing Council resources.

Financial Implications

The sum of £15,000 from VSM Estates will cover the costs of providing pre-application advice, assessing and determining reserved matters and pre-commencement conditions discharge applications for the initial component of redevelopment of the former RAF Uxbridge site.

Cabinet – 25 April 2013 Page 303

The additional temporary planning staffing required to deliver the services under the proposed Planning Performance Agreement will be engaged on a temporary assignment, over and above the approved establishment of the planning service, subject to the separate informal approval of the Leader of the Council.

4. EFFECT ON RESIDENTS, SERVICE USERS & COMMUNITIES

What will be the effect of the recommendation?

In terms of service user outputs the sum of £15,000 offers the opportunity to provide a higher standard of service than may otherwise be possible. The dedicated project officer would be proactive in engaging with various stakeholders, act as a central point of contact for enquiries and add value to the overall process. The project officers would facilitate the sharing of information, coordinating responses from Council to VSM Estates and other stakeholders and ensure a consistent approach to deliver the best outcomes for redevelopment of the site. Such an approach is consistent with the latest guidance from Government and is in the best interests of achieving Councils objectives, as set out in the Sustainable Community Strategy.

Consultation Carried Out or Required

None.

5. CORPORATE IMPLICATIONS

Corporate Finance

Corporate Finance has reviewed this report and is satisfied with the financial implications as stated. The offer of £15,000 from VSM Estates will provide additional temporary resources for the Council to carry out its statutory planning functions.

Legal

Section 139 of the Local Government Act 1972 empowers the Council to accept gifts for the purpose of discharging any of their functions. This would include accepting a gift to enable the Council to discharge its planning functions. However, the nature of the transaction in this case is more akin to a payment for the provision of services and therefore Section 139 of the 1972 Act should not be relied upon.

Section 93 of the Local Government Act 2003 provides a general power to local authorities to charge for discretionary services. Discretionary Services are those services that an authority has the power, but is not obliged, to provide. This power aims to encourage local authorities to provide wider ranging and new and innovative services for their communities. The Council may utilise this power if:

1. the Council already has the power to provide the service, but is not mandated or has a duty to provide; and 2. the recipient of the discretionary service has agreed to its provision and to pay for it.

Cabinet – 25 April 2013 Page 304

Charges may be set differentially, so that different people are charged different amounts. The Council is not required to charge for discretionary services. They may provide them for free if they have the resources to do so. However, by virtue of Section 93 (3) & (4) of the LGA 2003 there are limitations to the cost of recovery in that for “each kind of service” the income from charges for that service does not exceed the costs of provision. Each Council can decide the method they wish to adopt for assessing the costs.

In planning terms, the effect of the above legislation is that the Council can provide extensions to statutory services including a range of advisory services linked to planning and development control. These are not a statutory requirement, but can make an important contribution to the operation of the statutory services. The Council are entitled to receive income for provision of the discretionary services so long as it does not exceed the cost of providing the service.

The Council’s constitution states that Cabinet shall be responsible for fixing of fees and charges for Council services which would include the one-off bespoke services that are described in this report.

In order to conform to Government guidance the Planning Performance Agreements ought to be negotiated by officers and properly formalised. In terms of member involvement, Members and officers should have regard to the helpful guidance on Members pre-application involvement set out in the Department of Communities and Local Government “Member Involvement in Planning Decisions”.

Corporate Property and Construction

Supports the recommendation in the report.

Relevant Service Groups

No other service groups are directly impacted by the recommendation.

6. BACKGROUND PAPERS

NIL

Cabinet – 25 April 2013 Page 305 This page is intentionally left blank

Page 306 Agenda Item 13

GIFT FUNDING ARRANGEMENTS FOR NANAKSAR FREE SCHOOL FROM THE EDUCATION FUNDING AGENCY

Cabinet Member Councillor Keith Burrows

Cabinet Portfolio Planning, Transportation and Recycling

Officer Contact James Rodger – Residents Services

Papers with report None

1. HEADLINE INFORMATION

Purpose of report This report considers a proposed offer of a gift from the Education Funding Agency (who act on behalf of proposed new free schools) in accordance with the provisions of Section 93 of the Local Government Act 2003. The gift is required to assist in meeting the Council’s reasonable and justifiable costs associated with the discharge of its planning function; in particular it would be used to fund services of an independent transport consultancy to review a Transport Assessment. The Transport Assessment will include complex data and highway modelling for the proposed interim and full planning applications due to be submitted in April 2013 and May 2013 respectively for Nanaksar Sikh Faith Primary School, Springfield Road, Hayes. This will ensure additional resources are dedicated consistent with the importance of this project to the local community and the wider area. It is recommended that the gift be accepted.

Contribution to our The recommendations will assist the planning process to plans and strategies realise the objectives of the Sustainable Community Strategy.

Financial Cost The offer of £15,000 gift funding (£10,000 initial and an additional £5,000 to cover the review of any addendum assessments) from the Education Funding Agency will cover the costs of an independent transport consultant to evaluate the Transport Assessment. This will provide additional resources to the Council to enable it to carry out its statutory planning functions.

Relevant Policy Residents’ and Environmental Services Overview Committee

Ward(s) affected Townfield and surrounding wards

Cabinet – 25 April 2013 Page 307 2. RECOMMENDATION

That Cabinet accepts the offer of a gift from Education Funding Agency in accordance with the provisions of Section 93 of the Local Government Act 2003.

INFORMATION

Reasons for recommendation

It has been a long standing practice of the Council to request that developers pay for the cost of independent assessment of financial appraisals that are used to determine what level of affordable housing an applicant can provide. The Education Funding Agency is proposing to submit two planning applications, one application for an interim temporary proposal (circa 120 pupils) which they hope will be lodged in April 2013 (proposed to be operational for September 2013) and a second application seeking permission for a permanent school proposal (840 pupils with all forms of entry) to be lodged in May 2013 (proposed to be operational for September 2014). Both applications will include complex transport assessments. Officers have only very recently been approached for pre-application advice. Officers have highlighted that the timescales proposed are very tight (in particular for the interim temporary proposal) and that to assist the Council in meeting the tight timescales it would be advantageous to involve external highway consultants.

Agreement has been reached with the Education Funding Agency that they will gift fund the appointment of an external transport consultant to review the transport appraisals. This will involve all the technical aspects of the data/modelling in the transport assessments being looked by the appointed consultant who will advise if they consider the transport aspects of the proposals are acceptable and make recommendations. It is considered essential that the transport aspects of the planning applications are considered in detail and the use of a consultant will assist the Council in this regard. It will also enable the planning applications to be determined without unnecessary delay.

It is therefore considered appropriate that the Council should accept an offer of gift funding to contribute towards the reasonable and justifiable costs of carrying out the above identified planning functions.

Alternative options considered / risk management

I. Refuse the gift from the Education Funding Agency. This is not considered to be in the best interests of local communities or the Council.

II. Request changes to the proposed gift funding from developer. It should be noted that the gift relates to likely actual costs, hence this is also not considered to be a viable option.

Cabinet – 25 April 2013 Page 308 Comments of Policy Overview Committee(s)

None at this stage.

3. SUPPORTING INFORMATION

3.1 The Nanaksar Sikh Faith Primary School is located on Springfield Road, Hayes in Townfield Ward close to the Borough boundary. To the north, Springfield Road meets with Uxbridge Road at a signal controlled junction, to the west of which is the signal controlled Ossie Garvin Roundabout located over The Parkway A312. The Parkway is part of the Transport for London road network.

3.2 The Education Funding Agency is the Department of Education’s delivery agency for funding and compliance. They support the delivery of building and maintenance programmes for schools, academies, Free Schools and sixth- form colleges.

3.3. The Education Funding Agency is proposing to submit two planning applications, one for an interim temporary proposal (circa 120 pupils) and the other for a permanent school proposal (840 pupils).

3.4 The Council’s Highway Engineer has prepared a brief to employ consultants and to illustrate the complex nature of the transport assessment work to be reviewed. The consultant would be required to review the following matters (which it should be stressed is not a complete list of the matters to be considered):

• Extent of the study area; • Existing and future school catchment areas and mode of travel; • Traffic modeling to be submitted by the applicant; • Validity and suitability of trip rate data utilised; • Acceptability of assumptions regarding trip generation; • Assignment of development trips on the highway network; • Traffic growth over time; • Suitability of the modeling scenarios in terms of the network and development peaks; • Assumptions and conclusions of the impact of development traffic flows on the adjacent links and at key links and junctions within the affected area; • Assumptions regarding committed highway and development proposals that could affect local traffic conditions; • Validity of the input and output data and the conclusions of the Transport Assessment that the proposals can be adequately accommodated without unacceptable detriment on the highway network; • Proposed site and access layout;

Cabinet – 25 April 2013 Page 309 • Acceptability of expected saturations levels, reserve capacity, delays etc and at junctions; • Safety review of the proposals; • Level of parking provision and justification; • On street parking demand and capacity; • PERS audit, pedestrian routes and linkages; • Impact of the development on existing public transport services; • Travel plan including measures and robustness.

3.5 In order to meet the reasonable and justifiable costs to Council and to ensure that dedicated resources are provided to ensure the best outcomes for the project, it is considered appropriate that the Council should accept an offer of gift funding of £15,000 from the Education Funding Agency. The gift funding would be strictly ring-fenced to ensure that it is spent in accordance with the terms of the gift, on the planning functions associated with the Nanaksar Sikh Faith Primary School.

3.6 Whilst the acceptance of a gift cannot in any way influence the outcome of the planning applications, in this case it will assist with considering the acceptability of the applicant’s proposals from the transport viewpoint, particularly given the tight timescales and the complexity of the subject matter. It should also be noted that this is a high profile application which the Council would wish to ensure is rigorously scrutinised.

3.7 The Council has recently accepted gift funding in relation to various planning delivery agreements and planning initiatives, including the proposals from:

• Bride Hall Developments Ltd for Morrisons superstore, retail units a hotel and housing at Land Adjacent to Hillingdon Station & Swallow Inn Long Lane Hillingdon; • Spenhill Developments Ltd for a superstore, retail units, hotel and housing on the former Master Brewer Hotel Site, Hillingdon Circus; and • For various aspects of the NATS development.

3.8 Should comments be received by the Local Planning Authority from third parties such as Resident Associations relating to the validity of the Transport Assessment, which are relevant to considering the transport impacts of the proposal, Council officers will require that such matters are also considered by the appointed consultant. In this regard the consultant will be required to not just consider the submitted Transport Assessment but any relevant third party comments arising from the consultation process that relate to the Transport Assessment.

3.9 Standard procurement rules will be followed and officers wish to be given full authority to appoint the chosen consultants. Officers consider that the gift funding should cover the cost of evaluating the Transport Assessment.

3.10 The Cabinet is recommended to accept gift funding of up to £15,000. If funding is not provided externally by the developer then these on-going costs will need to be met from existing Council resources.

Cabinet – 25 April 2013 Page 310

Financial Implications

The offer of £15,000 gift funding from the Department for Education will cover the costs of independent transport consultancy services to evaluate the Transport Assessment of the proposed planning applications discussed above. This will provide additional resources to the Council to enable it to carry out the services outlined in the report and thus achieve a better quality of planning outcomes for residents and the local community.

4. EFFECT ON RESIDENTS, SERVICE USERS & COMMUNITIES

What will be the effect of the recommendation?

It is considered that the use of the specialist transport consultancy will both assist the Council in evaluating the transport aspect of the proposals but also help provide an evidence base to interest third parties to identify that the Council has rigorously considered the transport implications of the development proposals. In this regard, there are not considered to be any negative impacts on residents, service users and communities of accepting the gift funding.

Consultation Carried Out or Required

None

5. CORPORATE IMPLICATIONS

Corporate Finance

Corporate Finance concurs with the financial implications set out above, noting that the use of gift funding will enable the Council to expedite planning work on this development and provide a central point of contact for stakeholders.

Legal

The Council also has powers under Section 93 of the Local Government Act 2003 to charge a person for providing a service provided that the Council is not obliged to provide that service in any event. This report indicates that the service to be provided to the Department for Education would expedite the planning application; that it goes over and above what the Council would be statutorily required to provide in handling planning applications and giving application advice. The amount charged should not exceed the cost of providing the service. Officers have indicated in this report that the entirety of the monies from the Education Funding Agency will be used to engage the services of the transport consultant.

Cabinet – 25 April 2013 Page 311 The Council’s constitution states that Cabinet shall be responsible for fixing of fees and charges for Council services which would include the one-off bespoke services that are described in this report.

Corporate Landlord

Support the recommendations in this report.

Relevant Service Groups

No other service groups are directly impacted by the recommendation.

6. BACKGROUND PAPERS

NIL

Cabinet – 25 April 2013 Page 312 Agenda Item 14 COUNCIL BUDGET – MONTH 11 2012/13 REVENUE AND CAPITAL MONITORING

Cabinet Member Councillor Jonathan Bianco

Cabinet Portfolio Finance, Property and Business Services

Report Author Paul Whaymand, Finance Directorate

Papers with report None

HEADLINE INFORMATION

Purpose of report The report sets out the Council’s overall 2012/13 revenue and capital position, as forecast at the end of Month 11. The in-year revenue position is forecast as an underspend of £3,039k, an improvement of £170k from Month 10.

An underspend of £4,658k is currently forecast on General Fund capital budgets for 2012-15. There is a forecast pressure of £1,368k on the HRA capital programme over this period due to projected variances on new build projects.

Contribution to our Achieving value for money is an important element of the Council’s plans and strategies medium term financial plan.

Financial Cost N/A

Relevant Policy Corporate Services and Partnerships Overview Committee

Ward(s) affected All

RECOMMENDATIONS

That Cabinet:

1. Note the forecast management budget position for revenue and capital as at Month 11. 2. Note the treasury Month 11 update at Appendix B. 3. Approve the addition of £183k Department for Communities and Local Government grant funding to 2013/14 revenue budgets in order to support continuing cross-cutting work tackling ‘Beds in Sheds’. 4. Approve the carry forward of any unspent contingency (currently £489k) at the year end and its addition to the 2013/14 contingency budget. 5. Accept Transport for London's Local Implementation Plan settlement of £4,377k for 2013/14, noting that further funding may be forthcoming for Bridge Assessment and Strengthening works. Furthermore, that Cabinet delegate authority to the Deputy Chief Executive and Corporate Director of Residents Services, in consultation with the Leader of the Council and Cabinet Member for Planning, Transportation and Recycling, to agree the programmed expenditure and report this back to Cabinet.

Page 313 Cabinet – 25 April 2013

INFORMATION

Reasons for Recommendations

1. The reason for the monitoring recommendation is to ensure that the Council achieves its budgetary objectives. The report informs Cabinet of the latest forecast revenue and capital position for the current year 2012/13.

2. The Council has successfully applied to the Department of Communities and Local Government for a share of £790k made available nationally to tackle ‘Beds in Sheds’. Recommendation 3 seeks authority to add the £183k funding awarded to 2013/14 Residents Services budgets, which will support the Council’s existing cross-cutting team in tackling the issue of ‘Beds in Sheds’.

3. Cabinet is asked to accept the Transport for London Local Implementation Plan capital and revenue grant totalling £4,377k for 2013/14, delegating authority to the relevant Officer and Cabinet Members to agree expenditure and report back to Cabinet on the detailed programme of works. The settlement for bridge works is still to be confirmed and will be reported to Members in due course.

Alternative options considered

4. There are no other options proposed for consideration.

SUMMARY

A) Revenue

5. As at Month 11 the in year revenue outturn is forecast to be £3,039k less than budget, with movement of £170k from Month 10 consisting of £266k improvement on directorate operating budgets and £96k adverse movement on contingency.

6. The reported underspend of £3,039k at Month 11 consists of a net underspend on directorate budgets of £409k, primarily due to the early delivery of 2013/14 savings, an underspend of £3,250k on corporate operating budgets due to deferral of borrowing costs and the previously reported exceptional West London Waste Authority levy payment of £620k.

7. Balances brought forward at 31 st March 2012 were £23,313k, to which a further £2,126k was budgeted to be added during 2012/13. Forecast balances at 31 March 2013 are expected to reach £28,478k as a result of this budgeted contribution and the in-year underspend noted above.

8. The reported position takes into account the delivery of the £17,696k savings which were included in the 2012/13 budget. The final position shows £15,717k, or 89% are banked, with compensatory initiatives off-setting the remaining savings.

B) Capital

9. Forecast outturn on the 2012/13 General Fund Capital Programme is £47,297k, a variance of £13,698k on a revised budget of £60,995k. 10. Over the three-year period 2012 to 2015, an underspend of £4,658k is now reported on the General Fund Capital Programme. Table 7 provides further detail of this projected underspend.

Page 314 Cabinet – 25 April 2013

11. General Fund capital receipts for 2012/13 are expected to be £5,831k at outturn, from an original budget of £13,344k with receipts totalling approximately £3,600k achieved in March 2013. 12. An overall favourable variance of capital receipts of £10,218k is reported over the period 2012/13 to 2014/15, with no movement reported from month 10. 13. A net pressure of £1,368k is reported on the HRA capital programme over the period of 2012 to 2015, which relates to variances on New Build projects.

Page 315 Cabinet – 25 April 2013

A) Revenue 14. Table 1 indicates the overall impact of the expenditure forecast now reported on the approved budget and the resulting balances position.

Table 1 2012/13 Budget 2012/13 Original Changes (As at Month 11) Variances (+ adv/- fav) Budget Current Forecast % Var Varianc Variance Change Budget of e (As at (As at from budget Month Month Month 11) 10) 10 £’000 £’000 £’000 £’000 £’000 £’000 £’000 Directorates Budgets on normal 229,902 -1,212 activities 228,690 228,281 0% -409 -239 -170 Corporate Budgets -41,360 1,212 on normal activities -40,148 -43,398 8% -3,250 -3,250 -0 Sub-total Normal 188,542 0 Activities 188,542 184,883 -2% -3,659 -3,489 -170 Exceptional items: Supplementary WLWA Levy 620 +620 +620 0 0 0 Sub-Total 0 620 +620 +620 0 Total net 188,542 0 expenditure 188,542 185,503 -2% -3,039 -2,869 -170 Budget -190,668 0 Requirement -190,668 -190,668 0 0 0 -2,126 0 Net total -2,126 -5,165 -3,039 -2,869 -170 Balances b/f -23,313 1/4/012 -23,313 -23,313 0 0 0 Balances c/f -25,439 0 31/3/13 -25,439 -28,478 -3,039 -2,869 -170

Directorates’ Forecast Expenditure Month 11

15. Table 2 provides analysis of the budget, forecast and variance at directorate level. Further detail on each directorate is set out in Appendix A. The group forecasts exclude sums provided for in contingency which are set out in table 4.

Page 316 Cabinet – 25 April 2013

Table 2

2012/13 Budget 2012/13 Directorate 2012/13 Variances (+ adv/- fav) Original changes Current Forecast % As at As at Change Budget Budget (as at Var Month Month from (as at Month 11 10 Month Month 11) 11) 10

£’000 £’000 £’000 £’000 £’000 £’000 £’000 22,090 166,431 188,521 Administration Exp 188,316 0% -205 -172 -33 -9,004 -165,163 -174,167 & Finance Inc -174,806 0% -639 -632 -7 13,085 1,269 14,354 Total 13,510 -6% -844 -804 -40 386,494 10,708 397,202 Residents Exp 394,165 -1% -3,037 -2,972 -65 -298,379 1,564 -296,815 Services Inc -294,728 -1% +2,087 +2,181 -94 88,115 12,272 100,387 Total 99,437 -1% -950 -791 -159 315,308 -194,610 120,698 Social Care & Exp 124,450 3% +3,752 +3,793 -41 -205,801 181,680 -24,121 Health Inc -27,748 15% -3,627 -3,601 -26 109,507 -12,930 96,577 Total 96,702 0% +125 +192 -67 16,691 -1,761 14,930 Contingency 16,190 8% +1,260 +1,164 +96 2,504 -62 2,442 Priority Growth 2,442 0% 0 0 0 Sub-Total Normal 229,902 -1,212 228,690 Activities 228,281 0% -409 -239 -170

16. An underspend of £844k (£40k improvement) is projected on Administration & Finance budgets, with the favourable position primarily due to early delivery of savings initiatives included in the 2013/14 revenue budget.

17. Within Residents Services an underspend of £950k (£159k improvement) is reported due to significant early delivery of 2013/14 savings within the Education Service. The improvement from Month 10 relates to further early delivery of savings and the revenue impact of higher than anticipated capital receipts being achieved in the current financial year.

18. Social Care & Health are reporting a net overspend of £125k (£67k improvement) due to pressures in excess of £1,500k linked to delayed implementation of 2012/13 savings proposals being partially off-set in the short-term by early achievement of 2013/14 savings.

Progress on 2012/13 Savings

19. Table 3 below sets out the year end position in the delivery of the savings programme for 2012/13. All savings are now classed as red (delivered) or blue (not achievable in this year).

Table 3

Rag Status of Savings (At Month 11) Administration Residents Social Care Total & Finance Services & Health (Month 11) % Banked -1,836 -7,756 -6,125 -15,717 88.8 On track for delivery 0 0 0 0 0 Potential significant savings shortfall or a significant or risky project which is at an early stage; 0 0 0 0 0 Serious problems in the delivery of the saving. -300 -407 -1,272 -1,979 11.2 Total -2,136 -8,163 -7,397 -17,696 100.00

Page 317 Cabinet – 25 April 2013

20. The end of year position is showing 88.8% as banked, leaving 11.2% of the original savings proposals undelivered. Compensatory measures and early delivery of 2013/14 savings have been sufficient to enable directorate operating budgets to forecast a net underspend in the current financial year. Given the on-off nature of such mitigating actions, it will be necessary to ensure these savings are delivered in full during 2013/14, or permanent compensatory savings identified, to avoid budget pressures.

Development & Risk Contingency : £771k overspend (£393k improvement)

21. £16,691k of potential calls on the Development & Risk Contingency were incorporated into the 2012/13 budget. Following decisions by Cabinet to make a number of allocations from contingency reflecting the fact that risks were no longer contingent, the remaining contingency budget is now £14,930k.

Page 318 Cabinet – 25 April 2013

Table 4

Group Development and Risk Contingency 2012/13 Forecast Variance (+adv / -fav) Budget as Variance Variance Change Needed (As at (As at from (Month Month Month Month 11) 11) 10) 10 2012/13 allocations: £’000 £’000 £’000 £’000 £’000 Current Commitments: All General Contingency 1,000 1,000 0 0 0 All Pump Priming for BID Savings 500 500 0 0 0 A&F Uninsured Claims 400 400 0 0 0 Schools withdrawal from the HR payroll A&F 300 300 0 0 0 and OH service Impact of HB Changes on Temporary RS 737 737 0 0 0 Accommodation RS Waste Disposal Levy 550 757 +207 +142 +65 RS Additional costs for two year olds 357 194 -163 -163 0 RS Development Control Income 500 500 0 0 0 Carbon Reduction Commitment Energy RS 450 350 -100 -100 0 Efficiency Scheme Local Development Framework Legal & RS 90 90 0 0 0 Consultancy Fees RS SEN Transport 100 818 +718 +692 +26 RS HS2 Challenge Contingency 200 200 0 0 0 Contingency against Leisure RS 480 747 +267 +257 +10 outsourced income streams SC&H Social Care Pressures (Adults’) 6,171 6,171 0 0 0 SC&H Social Care Pressures (Children’s) 165 165 0 0 0 Increase in Transitional Children due to SC&H 2,742 2,742 0 0 0 Demographic Changes Potential shortfall in reablement, LD & SC&H 500 500 0 0 0 PD savings targets SC&H Asylum Funding Shortfall 1,449 1,516 +67 +67 0 RS Fuel 75 +75 +80 -5 RS Legal Costs (SAS Fire Security) 123 +123 +123 0 RS Legal Costs (M25 Spur Road CPO) 30 +30 +30 0 RS Traveller Incursions 8 +8 +8 0 RS Planning Appeals 28 +28 +28 0 Original Contingency Allocation 16,691 +17,951 +1,260 +1,164 +96 Approved Permanent Allocations: SC&H Social Care Pressures (Children’s) -140 -140 0 0 0 Schools withdrawal from the HR payroll A&F -230 -230 0 0 0 and OH service RS Development Control Income -500 -500 0 0 0 Contingency against Leisure RS -380 -380 0 0 0 outsourced income streams Approved One-Off Allocations: ICT Licenses – Microsoft Migration RS -321 -321 0 0 0 (General Contingency) RS Childrens’ Homes Urgent Works -190 -190 0 0 0 Forecast Remaining Contingency 14,930 +16,190 +1,260 +1,164 +96

22. An adverse movement of £65k is reported on levy payments to the West London Waste Authority due to the omission of transportation costs from the waste authority’s previous levy calculation. There remains scope for further changes to this forecast in the event of fluctuations in waste tonnages in the final months of 2012/13. Page 319 Cabinet – 25 April 2013

23. Minor movements are reported on SEN Transport, Leisure and Fuel contingency items as forecasts continue to be refreshed in the run-up to the financial year end. In addition the current forecast assumes that the £1,000k General Contingency will be required in full during 2012/13 although only £511k has been allocated to date.

Priority Growth: £1,642k underspend (nil movement)

24. The 2012/13 General Fund budget approved by Council on 23 February 2012 increased the unallocated Priority Growth budget from £1,000k to £1,704k, while maintaining a budget of £800k for HIP Initiatives. Table 5 summarises the position with regards to each element of priority growth.

Table 5 Priority Growth 2012/13 Agreed Unallo Budget draw downs cated 2012/13 Unallocated Priority Growth at £’000 £’000 £’000 start of the year HIP Initiatives Budget: 800 Communications Projects 7 Heritage/Civic Pride/Environmental Projects 371 Business Improvement Delivery 414 HIP Initiatives unallocated balance 800 792 8 Unallocated non specific growth 1,704 Green Spaces (approved October 2012) 50 Transportation Planning Policy Officer 12 (approved February 2013) Balance of unallocated growth 1,704 62 1,642 Total 2,504 797 1,650

25. As at Month 11 HIP Steering Group have approved £792k allocations from the HIP Initiatives budget, leaving £8k as yet unallocated. To date, Cabinet have approved two releases from unallocated growth, leaving £1,642k available to fund further initiatives in the current financial year.

26. The forecast at Month 11 assumes the remaining unallocated budgets for HIP Initiatives and Priority Growth will be committed in full.

Corporate Budgets Forecasts : £3,250k underspend (no movement)

27. Table 6 shows budget, forecast and variance reported on corporate budgets as at Month 11.

Page 320 Cabinet – 25 April 2013

Table 6 2012/13 Budget 2012/13 Corporate Budgets 2012/13 Variances (+ adv/- fav) Original Changes Current Forecast Variance Variance Change Budget Budget Outturn (As at (As at from (as at (as at Month Month Month Month Month 11) 10) 10 11) 11) £’000 £’000 £’000 £’000 £’000 £’000 £’000 12,340 -922 11,418 Financing Costs 8,168 -3,250 -3,250 0 950 1,546 2,496 IAS 19 Pension Adjustment 2,496 0 0 0 -35,583 -1,094 -36,677 Asset Management A/c -36,677 0 0 0 10,165 1,682 11,847 Levies & other corp budgets 11,847 0 0 0 -29,232 0 -29,232 Corporate Govt Grants -29,232 0 0 0 -41,360 1,212 -40,148 Corporate Budgets -43,398 -3,250 -3,250 0

28. Although there remains an underspend of £3,250k on financing costs due to the deferral of borrowing on the Primary School Expansion Programme and healthy cash flows during 2012/13, this sum is expected to be required in full in the medium term as the Council continues to provide additional school places within the Borough.

B) Capital

Programme Monitoring

29. Table 7 sets out the latest forecast outturn on current General Fund capital projects. Forecasts for future years include live capital projects and programmes of works as included in the draft programmes for 2013/14 to 2015/16 reported to Cabinet and Council in February 2012.

30. Year to date General Fund Capital Expenditure has reached £32,841k (Month 10 £29,680k), representing 69% of forecast outturn. Prior years experience would indicate that the forecast outturn of £47,297k in the current year is achievable; however there remain a number of areas where currently reported outturns could reduce.

Table 7

2012/13 2013/14 2014/15 Total Total

Month 11 Month 10 £’000 £’000 £’000 £’000 £’000 Original Budget 89,286 71,110 37,012 197,408 197,408 Revised Budget 60,995 100,840 52,224 214,059 214,038 Forecast Outturn 47,297 111,380 50,724 209,401 209,410 Council Resourced Variance – see table 8 -10,043 6,885 -1,500 -4,658 -4,628 External Grants Variance -3,063 3,063 0 0 0 Other Resourced Variance -592 592 0 0 0 Programme Variance -13,698 10,540 -1,500 -4,658 -4,628

31. The main programme shows a net favourable variance of £2,475k comprising pressures of £407k, underspends of £2,882k as set out in Table 8 below.

Page 321 Cabinet – 25 April 2013

Table 8

Total Total Council Resourced Variance 2012/13 2013/14 2014/15 (Mth 11) (Mth 10) £’000 £’000 £’000 £’000 £’000 Pressures: Botwell Green Leisure Centre 63 0 0 63 63 Hillingdon Sports & Leisure Centre 0 50 0 50 50 Merrifields Fire Safety Works 0 0 0 0 0 Primary School Expansions – Phase 2A Temporary 0 294 0 294 294 Total Council Resourced Pressures: 63 344 0 407 407 Underspends: Civic Centre Works Programme -717 0 0 -717 -717 Primary School Expansions – Phase 1A Temporary -300 0 0 -300 -300 Primary School Expansions – Rosedale Temporary -275 0 0 -275 -275 New Young People’s Centres -158 0 0 -158 -158 Road Safety -75 0 0 -75 -75 Manor Farm Stables Development -82 0 0 -82 -72 South Ruislip Development – Plot A 0 -75 0 -75 -75 Primary School Expansions – Minor Works -60 0 0 -60 -60 Ruislip High School Expansion 0 -70 0 -70 -70 Disabled Facilities Grant (DFG) -700 0 0 -700 -700 Private Sector Renewal Grant (PSRG) -150 0 0 -150 -150 New Years Green Lane Civic Amenity Site – Phase 1-3 -90 0 0 -90 -90 New Years Green Lane Civic Amenity Site – Phase 4 -80 0 0 -80 -80 Street Lighting -50 0 0 -50 -30 Total Council Underspends: -2,737 -145 0 -2,882 -2,852 Projected Rephasing -7,347 7,347 0 0 0 Main Programme Variance -10,021 7,546 0 -2,475 -2,445 General Contingency -22 -661 -1,500 -2,183 -2,183 Unallocated Priority Growth 0 0 0 0 0 Council Resourced Variance -10,043 6,885 -1,500 -4,658 -4,628

32. Schools Expansion Programme – Rosedale Temporary is reporting an underspend of £275k, due to lower construction costs and savings in furniture and equipment. The accounts are still being finalised for the remaining temporaries for phase 1A and the estimated underspend is between £300k and £500k due to savings against budget on the main contract and fees. This project was completed in September 2011. The budget carried forward contains the retention which will be released when defects are rectified. The Minor works are currently forecasting an underspend of £60k from a revised budget of £437k.

33. On the Primary School Expansions Phase 2A Temporary project, works on all the temporary schools (namely Rosedale, Wood End, Rabbsfarm, Ryefield, Hillingdon, and Charville) were completed in time for the start of the September term. New contractors were employed at an estimated additional cost up to £500k, with the overspend on this phase estimated to be £294k, although accounts with the original contractor still need to be finalised.

34. The Civic Centre Works Programme is currently forecasting an underspend of £717k, against a budget of £2,104k, due to a number of projects being delayed.

Page 322 Cabinet – 25 April 2013

35. South Ruislip Development Plot A - The project is forecasting a £75k underspend on the library fit-out. The flats have been marketed and potential buyers identified with ales expected to be completed early in the new financial year.

36. The Road Safety programme is forecasting to underspend by £75k from the full budget of £250k. This is partly due to the use of TFL grant monies being prioritised for the resident- identified schemes rather than council funding. Further work is underway to review and agree in principle a range of additional suitable measures that will not require formal public consultation. These actions could potentially reduce the forecast underspend.

37. The Disabled Facilities Grant (DFG) is forecasting an underspend of £700k, against a budget of £2,500k and the Private Sector Renewal Grant (PSRG) is forecasting an underspend of £150k, against a budget of £450k. A number of projects will now be delivered in the next financial year.

38. New Years Green Lane Civic Amenity Site – Underspend £170k. Phase 1-3 has now completed and retention fees in the region of £45k have been earmarked to be paid in 2013/14. Phase 4 is nearing completion and retention fees of £40k have also been set aside to be paid in 2013/14. The underspend on these projects is largely due to contingencies not being required.

39. Street Lighting – This project is forecasting an underspend of £50k, which is due to a delay in works to defective steel column replacement. These works will now be completed in 2013/14.

40. Manor Farm underspend – This project is forecasting an underspend of £82k, this is £10k higher than the figure reported in Month 10, due to a reduction in the anticipated cost for damp proofing.

Capital Financing Table 9 2015/16- Total Total Capital Receipts 2012/13 2013/14 2014/15 2016/17 Month 11 Month 10 £’000 £’000 £’000 £’000 £’000 £’000 Budget Approved February 2012 13,344 12,675 0 0 26,019 26,019 Revised Budget 6,551 9,362 20,410 0 36,323 36,323 Forecast Disposals 5,831 9,017 17,057 14,636 46,541 46,541 Variance 720 345 3,353 -14,636 -10,218 -10,218

41. Forecast capital receipts for 2012/13 are £5,831, this is an increase of £2,919k from Month 10 (£2,912) based on total actual receipts received in 2012/13.

42. The programme is still anticipated to generate an overall surplus of £10,218k. This surplus will deliver significant revenue savings to the Council through reduced borrowing costs. Table 10 below shows the forecast borrowing for the period 2012/13 to 2016/17.

Page 323 Cabinet – 25 April 2013

Table 10

Total 2015/16- Total Month Prudential Borrowing Forecast 2012/13 2013/14 2014/15 2016/17 Month 11 10 £’000 £’000 £’000 £’000 £’000 £’000 Revised Budget 22,040 49,961 10,859 0 82,860 82,860 Council Resourced Variance -10,043 6,885 -1,500 0 -4,658 -4,628 - Capital Receipts Variance 720 345 3,353 -14,636 -10,218 10,218 Forecast Borrowing 12,717 57,191 12,712 -14,636 67,984 68,014

Housing Revenue Account Capital Programme 43. Table 11 sets out the latest forecast outturn for the HRA capital programme. Table 11 Total Total 2012/13 2013/14 2014/15 Month Month Housing Revenue Account Capital Programme Budget Budget Budget 11 10 £’000 £’000 £’000 £’000 £’000 Original Budget 17,923 13,708 7,052 38,683 38,683 Revised Budget 3,900 29,857 7,052 40,809 40,809 Forecast Outturn 2,352 32,717 7,108 42,177 42,177 HRA Resourced Variance – see table 12 -21 1,333 56 1,368 1,368 External Grants Variance -286 286 0 0 0 Other Resources Variance -1,241 1,241 0 0 0 Programme Variance -1,548 2,860 56 1,368 1,368

44. The HRA capital expenditure to the end of February 2013 was £1,388k which represents 59% of the forecast outturn. Further overspends forecast for 2013/14 and 2014/15 bring the total pressure on HRA projects to £1,368k as set out in table 12 below.

Table 12 Total Total Month Month HRA Resourced Variance 2012/13 2013/14 2014/15 11 10 £’000 £’000 £’000 £’000 £’000 Pressures: New Build – Extra Care Sites Phase 1 0 724 0 724 724 New Build – HRA Pipeline Sites Phase 1 203 0 0 203 203 New Build – Learning Disability Sites Phase 1 46 81 0 127 127 New Build – HRA Pipeline Sites Phase 2 0 258 56 314 314 New Build – Supported Housing Programme 0 0 0 0 0 Total HRA Resourced Pressures: 249 1,063 56 1,368 1,368 Projected Re-phasing -270 270 0 0 0 HRA Programme Variance -21 1,333 56 1,368 1,368

45. New Build HRA Extra Care Sites Phase 1: Triscott House – the current monitoring shows overspend of £724k. This forecast represents a median case scenario, with the range of potential outturn estimated to be between £419 and £892k, this is approximately 10% of the Page 324 Cabinet – 25 April 2013

total budget. The final outcome is dependent on negotiations with the contractor on the cost of remedial works and its final claim on works done.

46. The final account for the New Build Pipeline Phase 1 project is forecasting an overspend of £203k. This has arisen from variations to highways, fixtures and fittings and building related works.

47. The New Build HRA Learning Disability Sites scheme is currently expected to overspend by £127k. These works are related to further drainage, utility and external landscaping works that were not included in the original contract. The contract variation order was approved in July 2012.

48. The New Build HRA Pipeline Sites Phase 2 scheme is forecasting an overspend of £314k, of which £87k relates to the Gilbert Road site. The balance of £227k relates to the forecast on the remaining seven sites. These seven sites have been put on hold whilst the business case is updated and reviewed. Officers are awaiting assurance that the HCA grant authority will allow for the long stop date to be extended to the end of 2013/14.

49. The supported housing programme remains on hold at this stage and therefore a nil variance is shown against the currently approved budget.

50. The HRA Works to Stock programme is forecasting an underspend of £1,241k, against the revised budget of £2,604k this is largely due to the Double Glazing programme of £1,049k, with the balance of other Works to Stock Programmes amounting to £192k not being completed in 2012/13.

CORPORATE CONSULTATIONS CARRIED OUT

Financial Implications

51. The financial implications are contained in the body of the report.

CORPORATE IMPLICATIONS

Corporate Finance

52. This is a Corporate Finance report.

Legal

53. There are no legal implications arising from this report.

BACKGROUND PAPERS

54. Previous Budget monitoring reports to Cabinet

Page 325 Cabinet – 25 April 2013

Appendix A – Detailed Group Forecasts

Administration & Finance £844k underspend (£40k improvement)

1. Overall for Administration and Finance, the position for month 11 is an underspend of £844k, which represents an improvement of £40k from month 10. The movement this month is as a result of the realignment of forecasts to reflect delays within the current recruitment schedule across the Groups and continued revisions to non salaries and income forecasts.

2012/13 Variances (As at Month 11) (+ adv/- fav) Current Forecast % Var of Variance Variance Change Budget budget (As at (As at from Services Month 11) Month 10) Month 10 £’000 £’000 £’000 £’000 £’000 Administration 7,394 6,768 -8% -625 -600 -25 Finance 6,960 6,740 -3% -219 -204 -15 Total 14,354 13,510 -6% -844 -804 -40

Page 326 Cabinet – 25 April 2013

Administration - £625k underspend (£25k improvement)

2012/13 Variances (As at Month 11) (+ adv/- fav) Current Forecast % Var Variance Variance Change Budget of (As at (As at from budget Month 11) Month 10) Month Services 10 £’000 £’000 £’000 £’000 £’000 Administration Directorate Exp 656 606 -8% -51 -51 0 Inc -56 -56 0% 0 0 0 Rechgs 35 35 0% 0 0 0 Total 635 584 -51 -51 0 Corporate Communications Exp 875 809 -8% -67 -58 -9 Inc -103 -104 1% -1 4 -6 Rechgs -804 -804 0% 0 0 0 Total -31 -99 -68 -54 -14 Democratic Services Exp 3,285 3,255 -1% -29 -32 3 Inc -819 -898 10% -80 -77 -2 Rechgs 617 617 0% 0 0 0 Total 3,084 2,975 -109 -109 1 Human Resources Exp 3,425 3,329 -3% -96 -107 11 Inc -785 -793 1% -9 3 -12 Rechgs -2,779 -2,779 0% 0 0 0 Total -138 -243 -105 -103 -1 Legal Services Exp 1,930 1,926 0% -5 -1 -3 Inc -557 -567 2% -10 -9 -1 Rechgs -1,414 -1,414 0% 0 0 0 Total -40 -55 -15 -10 -5 Policy & Performance Exp 4,350 4,094 -6% -256 -251 -5 Inc -567 -589 4% -22 -22 0 Rechgs 101 101 0% 0 0 0 Total 3,884 3,606 0 -278 -273 -5 Total Expenditure 14,522 14,018 -3% -504 -500 -4 Total Income -2,886 -3,007 4% -122 -100 -21 Total Recharges -4,242 -4,242 0% 0 0 0 Administration Total 7,394 6,768 0 -625 -600 -25

Administration Directorate £51k favourable (nil movement)

1. The variance in the service relates exclusively to salaries underspends as a result of changes to the top tier structure of the Council and also the retirement of a PA.

Corporate Communications : £68k favourable (£14k improvement)

2. Underspends in salaries cover the cost of one agency member of staff working on the BID programme and non salaries underspends make up the favourable position on the department. Forecasts have improved this month due to further non salaries realignments and additional unanticipated income from Hillingdon People advertising been realised.

Page 327 Cabinet – 25 April 2013

Democratic Services: £109k favourable (£1k adverse movement)

3. Further revisions to salaries and non salaries forecasts have resulted in a slight adverse movement this month. Income continues to be closely monitored to ensure accurate forecasting.

Human Resources: £105k favourable (£1k improvement)

4. The underspend is as a result of the realignment of the senior tier of the HR structure and other vacant posts within the service being held open for longer than was previously anticipated. Further realignment of salaries and reductions in forecasts for expenditure against the income from the schools SLA has led to the slight improvement this month.

Legal Services: £15k favourable (£5k improvement)

5. Underspends within salaries budgets as a result of vacant posts and not recruiting to maternity leave have allowed the MVF to be met entirely. Income continues to be monitored closely and shows a slight improvement this month, and is expected to achieve slightly more than budgeted.

Policy, Performance and Partnerships: £278k favourable (£5k improvement)

6. There is an underspend on salaries due to the in-year effect of the BSU restructure that has resulted in 2 vacant posts and the part year effect of various vacant posts in the Performance and Intelligence team, for which recruitment is in progress.

Page 328 Cabinet – 25 April 2013

Finance - £219k underspend (£15k improvement)

2012/13 Variances (As at Month 11) (+ adv/- fav) Current Forecast % Var Variance Variance Change Budget of (As at (As at from budget Month 11) Month 10) Month Services 10 £’000 £’000 £’000 £’000 £’000 Audit & Corporate Fraud Exp 1,238 1,314 6% 76 80 -4 Inc 0 -13 0% -13 -13 0 Rechgs -1,259 -1,259 0% 0 0 0 Total -22 41 63 67 -4 Finance Exp 10,243 10,524 3% 281 295 -14 Inc -2,995 -3,198 7% -203 -217 14 Rechgs -3,469 -3,469 0% 0 0 0 Total 3,778 3,857 79 79 0 Procurement Exp 771 855 11% 83 91 -8 Inc -45 -47 3% -2 -2 0 Rechgs -781 -781 0% 0 0 0 Total -55 27 82 90 -8 Commissioning Exp 1,415 1,348 -5% -67 -64 -2 Inc -299 -314 5% -15 -15 0 Rechgs -1,047 -1,047 0% 0 0 0 Total 69 -13 -82 -80 -2 Housing Benefit Exp 169,835 169,759 0% -76 -75 -1 Inc -167,942 -168,227 0% -285 -285 0 Rechgs 1,295 1,295 0% 0 0 0 Total 3,189 2,828 -361 -361 -1 Total Expenditure 183,502 183,800 0% 297 326 -29 Total Income -171,281 -171,799 0% -518 -532 14 Total Recharges -5,261 -5,261 0% 0 0 0 Finance Total 6,960 6,740 0 -219 -204 -15

Audit and Corporate Fraud: £63k pressure (£4k improvement)

7. The improvement in position this month relates to a member of the Corporate Fraud team going on maternity leave, therefore reducing the staffing costs.

Finance: £79k pressure (nil movement)

8. This overspend covers additional staffing resources required in the Revenues team for the implementation of Council Tax localisation, additional costs of the Liberata contract and redundancy costs as a result of the Finance and Revenues restructures. This has been mitigated by revisions to non salary forecasts and increased recharges to the HRA for debt management charges.

Procurement: £82k pressure (£8k adverse movement)

9. The pressure reported within Procurement budgets relates to additional costs associated with Interim Commercial managers who are supporting the service in the move towards category management.

Page 329 Cabinet – 25 April 2013

Commissioning: £82k favourable (£2k adverse movement)

10. The underspend is made up of vacant posts being held open within the service, underspends on consultancy budgets and unbudgeted income from the London Strategic Health Authority. The position this month relates primarily to a number of minor realignments to non-salaries forecasts in the service area.

Housing Benefit: £361k favourable (nil movement)

11. The bulk of the underspend relates to the in year release of provision relating to the Housing Benefit subsidy grant, however, this is being reduced by costs of redundancies within Housing Benefit and costs of the Housing Benefit Reception refurbishment are included in the forecasted position.

Page 330 Cabinet – 25 April 2013

Residents Services

Revenue: £950k underspend (£159k improvement)

1. The Group has a projected outturn position of a £950k underspend, excluding pressure areas that have identified contingency provisions.

2012/13 Services (As at Month 11) Variances (+ adv/- fav) Variance Variance % Var (As at (As at Change Current of Month Month from Budget Forecast budget 11) 10) Month 10 £’000 £’000 £’000 £’000 £’000 Corporate Property & Construction Exp 3,492 3,663 5% +171 +171 0 Rech -495 -495 0% 0 0 0 Inc -2,313 -2,298 -1% +15 +65 -50 Total 684 870 27% +186 +236 -50 Education Exp 279,191 277,957 0% -1,234 -1,184 -50 Rech -382 -382 0% 0 0 0 Inc -242,754 -242,780 0% -26 -26 0 Total 36,055 34,795 -3% -1,260 -1,210 -50 Housing (General Fund) Exp 20,645 18,698 -9% -1,947 -1,991 +44 Rech -492 -492 0% 0 0 0 Inc -11,142 -8,903 -20% +2,239 +2,283 -44 Total 9,011 9,303 3% +292 +292 0 ICT Highways & Business Services Exp 48,859 48,891 0% +32 +91 -59 Rech -17,015 -17,015 0% 0 0 0 Inc -12,104 -12,139 0% -35 -35 0 Total 19,740 19,737 0% -3 +56 -59 Planning Sport & Green Spaces Exp 12,363 12,494 1% +131 +131 0 Rech -114 -114 0% 0 0 0 Inc -4,651 -4,887 5% -236 -236 0 Total 7,598 7,493 -1% -105 -105 0 Public Safety & Environment Exp 50,447 50,307 0% -140 -140 0 Rech -3,109 -3,109 0% 0 0 0 Inc -19,407 -19,277 -1% +130 +130 0 Total 27,932 27,922 0% -10 -10 0 Transportation Planning Policy & Community Engagement Exp 3,812 3,762 -1% -50 -50 0 Rech 0 0 0% 0 0 0 Inc -4,444 -4,444 0% 0 0 0 Total -632 -682 8% -50 -50 0 Total Expenditure 418,809 415,772 -1% -3,037 -2,972 -65 Total Recharges -21,607 -21,607 0% 0 0 0 Total Income -296,815 -294,728 -1% +2,087 +2,181 -94 Residents Services Total 100,387 99,437 -1% -950 -791 -159

Contingency Items: Gross Pressure £3,777k (£96k adverse)

2. The Council’s 2012/13 contingency budget contains provision for areas of expenditure or income for which there is a greater degree of uncertainty. The net position after the application of the contingency is shown in the table below.

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Gross Gross Change Contingency Net Pressure Pressure from Allocation Pressure Month 11 Month 10 Month 10 Contingency Item (£000s) (£000s) (£000s) (£000s) (£000s) Impact of Housing Benefit Changes on Temporary Accommodation 737 737 0 737 0 Waste Disposal Levy 757 692 65 550 207 Development Control Income 500 500 0 500 0 Carbon Reduction Commitment 350 350 0 450 -100 Additional Costs for 2 Year Olds 194 194 0 357 -163

HS2 Challenge Contingency 200 200 0 200 0 Contingency Against Leisure Outsourced Income Streams 747 737 10 480 267 SEN Transport 818 792 26 100 718 Local Development Framework 90 90 0 90 0 Fuel 75 80 -5 0 75 Traveller Incursions 8 8 0 0 8 Planning Appeals 28 28 0 0 28 Legal Costs (SAS Fire Security) 123 123 0 0 123 ICT Licenses – Microsoft Migration (General Contingency) 321 321 0 321 0 Children’s Homes Urgent Works 190 190 0 190 0 Legal Costs (M25 Spur Road CPO) 30 30 0 0 30 Original Contingency Allocation 5,168 5,072 96 3,975 1,193 Approved Permanent Allocations: 0 0 Development Control Income -500 -500 0 -500 0 Contingency against Leisure outsourced income streams -380 -380 0 -380 0 Approved One-Off Allocations: 0 0 ICT Licenses – Microsoft Migration (General Contingency) -321 -321 0 -321 0 Children’s Homes Urgent Works (General Contingency) -190 -190 0 -190 0 Current Remaining Contingency 3,777 3,681 96 2,584 1,193

3. The contingency to cover the impact of changes in Housing Benefit on temporary accommodation is forecast to be required in full. This contingency relates to the impact of the migration of temporary accommodation leases to rates linked to the Local Housing Allowance, and is not directly linked to the increase in demands on the Housing Needs service that is also leading to pressures in the current year.

4. The latest tonnage data on the ‘pay as you throw’ (PAYT) waste disposal levy from the West London Waste Authority (WLWA) suggests that the £550k budgeted contingency provision will not be sufficient. After a significant adverse movement in the WLWA financial position emerged earlier this year, WLWA eventually served a supplementary levy on the constituent Boroughs for which Hillingdon’s share is £620k. This has been treated as an exceptional item, however there is a further pressure on the PAYT tonnages which has now become clearer with actual tonnage data available up to February 2013. For Hillingdon this relates to an increasing proportion of tonnage being sent to landfill than assumed when the levy was set, as WLWA diversion schemes have either been cancelled or not met expectations. Hillingdon is currently sending 80% of the waste disposed through the PAYT levy to landfill. This has been exacerbated by an underlying increase in tonnages and erroneous seasonal

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profiling of the monthly PAYT payments by WLWA. The current variance on the contingency is forecast to be £207k, an adverse movement of £65k compared to Month 10 due to transportation costs omitted by WLWA, and there is still a risk this could increase depending on the level of tonnages delivered in March.

5. The Carbon Reduction Commitment contingency is for the estimated costs for the requirement to purchase allowances for each tonne of carbon produced by the Council, the overall required allowances of £350k includes the reduction in actual allowances purchased for 2011/12 reported to Cabinet in September 2012. It also includes the £250k budget for allowances for schools that has been provided for in the schools budget.

6. The forecast call on contingency to cover increased provision of childcare to disadvantaged two year olds under the free entitlement, which is funded from the increased allocation within the Early Intervention Grant, is £194k, no change compared to Month 10.

7. The HS2 contingency is part of a joint fighting fund with 18 other authorities and it is expected that this contingency will be fully utilised.

8. In December 2011 the Council took over the operation of three golf courses, where these have been re-possessed from the previous golf operator that had incurred significant rent arrears. An interim operational budget has been established for the service that assumes that a small surplus of £20k before overheads and capital charges is delivered, representing a saving against the contingency held for leisure.

9. The current position against this operational budget is that there is a significant shortfall against the interim income targets. Due to the exceptionally wet weather during April to July playing conditions were not ideal, and pay and play and associated income is £322k below target, an adverse movement of £2k compared to Month 10. In addition, there is a shortfall against membership income of £35k. There is also a pressure on course management and maintenance budgets of £174k, reflecting short-term hire costs of mowing equipment and course renovation works, an adverse movement of £14k compared to Month 10. This is offset by the staffing costs so far being £103k under budget as the approved structure contains a number of vacant posts, an improvement of £6k compared to Month 10. In addition, Mack Trading successfully appealed against the business rates valuations for the courses producing an ongoing saving on the business rates liability of £41k. It is assumed that the current adverse variance of £387k is carried forward to the year end.

10. The £367k deficit on the in-house operation described above is the only call on the remaining unallocated leisure contingency of £100k, an adverse movement of £10k compared to Month 10.

11. Special Educational Needs (SEN) Transport is an area that has seen significant pressure in the last financial year. The pressure on this budget is now £818k, an adverse movement of £26k compared to Month 10, due to additional requirements for escort staff. The overall pressure mainly reflects the increased costs of delivering home to school transport for out-of- borough placements and children with more complex needs. There has been a net increase in contracted routes operated of 23 routes (10.7% increase) compared to April 2012. However, the cost of delivering the current route requirements increased by around 16% since the beginning of the autumn term. This reflects the increased need to provide transport to out- of-borough placements requiring greater distances travelled, as well as an increased number of children requiring individual transport due to more complex needs, that could not appropriately be provided on existing routes.

12. Current analysis shows that the fuel budget has a forecast pressure of £75k at the current bulk purchase price of £1.16 per litre, an improvement of £5k compared to Month 10.

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13. Across the group £8k has been spent so far on actions to prevent traveller incursions.

14. Planning appeals costs of £24k are forecast to be incurred on the appeal hearings for the Gutteridge Farm application, plus £4k of legal costs relating to other appeals.

15. The Council has taken a long-running trading standards case to court, for which legal costs in terms of Counsel’s fees and disbursements are £123k.

16. The Head of Legal Services has been granted approval to incur costs of up to £30k to pursue claims relating to the compulsory purchase of land used for the M25 spur road to Heathrow Terminal 5.

Corporate Property & Construction: £186k overspend (£50k improvement)

17. A zero based budgeting exercise has been performed on business rates budgets across the group, resulting in a £49k underspend, no change compared to Month 10.

18. There is a projected shortfall in the capitalisation of Corporate Construction staff of £80k due to the impact of three staff who have been on long-term sickness for a substantial part of the year and therefore were unable to work on chargeable projects in the capital programme. However, the overall staffing costs chargeable to capital projects are forecast to be £220k greater than budgeted, reflecting additional project management resources engaged to deliver Phase 2 of the Primary Schools Capital Programme, no change compared to Month 10.

19. The costs of meeting an interim wants of repair schedule served by the head landlord of Warnford Industrial Estate are forecast to give a pressure of £60k this financial year, after having successfully challenged part of the landlord’s original assessment. This is offset by the early delivery of a £60k saving from the review of discretionary budgets included in the 2013/14 budget.

20. The service is also managing the financial risk over the recovery of costs associated with the disposal of assets that are projected to generate capital receipts this financial year. This reflects the level of forecast capital receipts in the capital programme monitoring section of the report, and the most likely outcome is that there will be a shortfall on costs of £155k, an improvement of £50k compared to Month 10.

Education: £1,260k underspend (£50k improvement)

Schools: variance not applicable

21. The Schools Budget is ringfenced and funded from the Dedicated Schools Grant (DSG), and covers a range of services directly linked to schools. The majority of the DSG is delegated to schools (£200.1 million), with the remainder (£22.4 million) being retained by the Council. The rules applying to the DSG allow for any surplus and deficit balances to be carried forward into the next financial year, for both schools delegated budgets and the centrally retained DSG element (decisions on how this is used lie with the Schools Forum). It should be noted that the Schools Budget is completely separate to the General Fund and no interaction between these two funds is allowable.

22. The forecast movement on the DSG central reserve carried forward for 2012/13 is summarised in the following table:

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Current Forecast Forecast Change Schools Retained Budget Movements Budget Variance Variance from (£000s) Month 11 Month 10 Month 10 (£000s) (£000s) (£000s) Opening Balance 1 April 2012 - -226 -226 0

DSG Income -222,459 +495 +495 0 Delegated to Schools 200,057 -1,180 -1,180 0 Centrally Retained 22,402 +538 +538 0

In-Year Movement 0 -147 -147 0

Forecast Closing Balance 31 March 2013 - -373 -373 0

23. There is a forecast overall underspend of £147k against the DSG central reserve, no change compared to Month 10. Within this there is an overspend of £538k against the centrally retained budget due to a pressure on Special Educational Needs (SEN) spend at independent special schools of £1,046k, where there are increased numbers of children being placed from September 2012 and the release of contingency for Hedgewood special school of £282k. This is partly offset by projected underspends on SEN support (£186k), education out of school (£532k), increased recoupment income (£78k), less other overspends of £6k across a range of headings.

24. There is a projected shortfall of DSG income of £495k, where the actual funded pupil numbers differ from the projected pupil numbers used to set the budget primarily due to the exclusion of the primary and nursery pupil numbers at Rosedale College from the final DSG calculation. It has been confirmed that recoupment will not take place against the primary pupil numbers at Rosedale College, and this is now reflected within an underspend of £1,180k against schools delegated budgets, which also includes the impact of the closure of Guru Nanak primary school as a maintained school.

General Fund: £1,260k underspend (£50k improvement)

25. The Education service has identified measures to fully deliver the 2012/13 £800k saving target set on the basis that reduced responsibilities remain with the Council following the transfer of schools to Academy status, plus £250k towards the further savings required for 2013/14, no change compared to Month 10.

26. In addition, there are underspends arising from vacant posts in parts of the service, specifically the educational psychology and parent support services (£169k), the youth service (£175k), the early years team (£30k), the school improvement service (£90k), and school organisation (£15k), no change compared to Month 10. In addition to the impact of staff turnover, posts are being held vacant in some areas given the need to identify further savings for the 2013/14 budget from the education service and where services are being considered as part of cross-cutting BID projects such as the children’s pathway project.

27. A review of discretionary expenditure budgets across the service has identified underspends of £210k, an improvement of £50k compared to Month 10, the full year effects of which have been counted towards savings targets for 2013/14. In addition, there is a forecast underspend on schools redundancy costs of £108k. There is also additional buy-back of services from schools of £26k, no change compared to Month 10.

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28. There is a forecast underspend of £260k on Council-run Children’s Centres due to the service being yet to reach full operational capacity, resulting in reduced staffing and running costs, no change compared to Month 10. This excludes schools-based Children’s Centres where there is currently no forecast variance based on the most recent cost assessments.

29. There is a pressure on the Adult Education service, due to greater than budgeted provision of subsidised courses, leading to a forecast overspend on sessional tutors of £73k, no change compared to Month 10.

Housing: £292k overspend (no change)

Housing (General Fund): £292k overspend (no change)

30. There is a forecast overspend of £292k on Housing (General Fund) budgets, no change compared to Month 10. The housing budget includes an MTFF savings item from bringing the outlying HRA offices into the Civic Centre. For 2012/13 there is a target saving of £500k which is projected to be around £240k short, no change compared to Month 10. Managers are continuing to review areas where additional support is being provided to the HRA to reduce the shortfall. The overall shortfall was previously being covered within the Supporting People budget within Social Care & Housing.

31. As previously reported, an increase in the number of homelessness approaches to the Council as a result of welfare reform and the economic climate is now being seen. This additional workload is having an impact on bed and breakfast costs, where there is a pressure of £70k. This is partly offset by one-off energy credits for private sector leasing schemes of £18k, reducing the pressure on the Housing Needs budget overall to £52k. The increase in demand is likely to continue in 2013/14 especially due to the expected impact of welfare reforms. Mitigating the potential pressure, especially in bed and breakfast, will at least in part depend on the ability to procure temporary accommodation properties. A procurement review is currently taking place in order to develop an appropriate procurement plan.

Housing Revenue Account: £6,725k underspend (£41k improvement)

32. The Housing Revenue Account (HRA) is forecasting an underspend of £6,725k as shown in the table below, an improvement of £41k compared to Month 10. The service is delivering an MTFF saving of £229k, which has been banked. These savings reflect major changes in the delivery of the service consistent with the BID programme enabling the service to deliver to the same level of quality as before.

Variance Variance Change Current % Var (As at (As at from Budget Forecast of Month 11) Month 10) Month 10 Services (£000s) (£000s) budget (£000s) (£000s) (£000s) Housing Maintenance Exp +27,733 +23,743 -14% -3,990 -3,990 0 Housing Management Exp +34,326 +32,687 -5% -1,639 -1,639 0 Rent & Other Income Inc -63,791 -64,887 2% -1,096 -1,055 -41 In Year (Surplus) / Deficit Total -1,732 -8,457 -6,725 -6,684 -41

33. There is a forecast underspend on the housing maintenance budget of £3,990k, no change compared to Month 10. The underspend relates to slippage on several of the works to stock programmes, including the window replacement programme (£1 million), adaptations on Council properties (£850k), lift programme (£500k), energy related works (£370k), health and safety works (£350k), fire doors (£200k), neighbourhood improvements (£150k), electrical upgrades (£130k) and day to day repairs (£70k). These have arisen mainly as a result of a

Page 336 Cabinet – 25 April 2013

major procurement review within this area to ensure that contracts provide maximum value to the Council.

34. There is no movement in Month 11 on the management budget. The overall underspend reflect savings from closure of outlying HRA offices, reduced insurance costs, and reduced forecasts for various corporate charges following the updating of central support recharges, reflecting the HRA share of wider efficiencies and the continuing review of charges between the General Fund and the HRA.

35. The income budget is projecting an overall favourable variance of £1,096k, an improvement of £41k compared to Month 10. Within the context of an overall income budget of £63.8 million this overall variance amounts to around 1.7%.

ICT Highways & Business Services: £3k underspend (£59k improvement)

36. There is a forecast pressure of £150k on maintenance budgets for day to day repairs for both the Civic Centre and outstations around the Borough, reflecting a continuation of last year’s outturn position.

37. A restructure of the Facilities Management service is delivering a £50k saving this financial year, which has a full year effect feeding into the budgeted savings for 2013/14.

38. The significant risks around the outdoor advertising income target have meant that it has been flagged as ‘red’ in the savings tracker, with a forecast pressure against the overall target of £100k, no change compared to Month 10, as the remaining opportunities are unlikely to deliver additional income this financial year.

39. The fleet management service is managing several risk areas, and is in a transitional position as the vehicle replacement programme takes effect. A net overspend of £106k is now reported, an improvement of £5k compared to Month 10, as the service is actively managing down maintenance costs as older vehicles are replaced, producing an underspend of £159k. However in this interim period there are pressures on contract hire of £265k due to short-term arrangements being put in place while replacement vehicles are procured. The service is also closely monitoring insurance claims, where there is a greater risk around accidental damage under self-insurance arrangements.

40. There is an underspend on salaries budgets across the division of £80k, no change compared to Month 10, due to posts being held vacant pending further restructures, as part of the ongoing work to identify BID savings from streamlined processes at the interface with residents.

41. There is also an underspend of £40k on Ordnance Survey mapping charges which have been covered this financial year directly by the Government.

42. In the highways and street scene services, income from the London Common Permit Scheme is forecast to exceed the target set by £135k, no change compared to Month 9. This is based on current actual income and hence there is the potential for the income level to improve further. Due to the absence of sustained adverse winter weather and good stocks of salt there is also a forecast underspend on winter maintenance of £54k.

Planning Sport & Green Spaces: £105k underspend (no change)

43. The forecast position for Development Control income is an excess over the income target of £195k, no change compared to Month 10. The forecast for this year is dependent upon one- off Council-led applications for school expansions through the Primary Schools Capital

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Programme, and is reliant on several other key developments coming forward this financial year.

44. Pre-application advice income from developers shows a pressure of £35k, no change compared to Month 10, reflecting continuing weak demand for major applications other than for very large sites where the trend is towards funding this advice through planning performance agreements (gift funding). £176k of gift funding has been received so far this year, which is fully committed to the additional temporary staff engaged by the service to deliver these agreements.

45. The forecast pressure on building control is £100k, driven by the over-recovery of fee income compared to the costs of processing building control applications under the cost recovery model, which is ringfenced to the service.

46. There is an underspend of £45k on centrally held leisure budgets for consultancy and clothing that relates to the previous in-house operation of leisure centres and are not required. These are included in the budgeted savings for 2013/14 arising from the review of discretionary budgets.

Public Safety & Environment: £10k underspend (no change)

47. There is a projected shortfall of £150k on off-street parking income, no change compared to Month 10, which is attributable to Cedars and Grainges multi-storey car parks in Uxbridge town centre, reflecting the continuation of pressures reported last financial year.

48. The Parking Revenue Account is forecast to have an in-year overspend of £145k, due to pressures on income from Penalty Charges Notices, an improvement of £17k compared to Month 10, which can be contained within the existing reserve in the current year, however going forward this will be increasingly difficult to sustain.

49. There is a staffing underspend of £90k in Technical Administration and Business Support, no change compared to Month 10, due to the impact of vacant posts being held open. This service area has been the subject of BID review work and as a result the underspend is contributing towards savings targets for 2013/14.

50. Waste Services is currently reporting a £70k net underspend, no change compared to Month 10, however there are a number of risks that are actively being managed. There is reduced income from the New Years Green Lane Civic Amenity site whilst the refurbishment work takes place and the Council has still not settled the management fee with the West London Waste Authority for the Victoria Road site. The Trade Waste and Graffiti services are forecast to return underspends which will assist in offsetting these pressures and risks and produce the net underspend of £70k.

Transportation Planning Policy and Community Engagement: £50k underspend (no change)

51. The service is reporting a £50k favourable position due to the impact of vacant posts across the service, no change compared to Month 10. This includes the part-year effect of the restructure of the town centres and community engagement teams into a single team.

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Social Care and Health Services

Revenue: £125k adverse (£67k favourable) 1. The Social Care and Health forecast has been compiled following analysis of relevant activity trends and application of the MTFF £7,397k savings programme. In summary there is a favourable movement of £67k from the month 10 position.

2. The pressure in Disability services is primarily due to slippage in the supported housing build programme (£1,500k) which has resulted in clients not being able to move from Residential placements to supported living placements. This has been significantly offset to date by strong management controls across the whole service.

2012/13 Variances (+ adv/- fav) (As at Month 11) % Var Services of Variance Variance Change Current Forecast budget (As at (As at from Budget £'000 Month 11) Month 10) Month 10 £'000 £'000 £000 £000

Children & Families Exp +30,251 +29,900 -1% -351 -410 +59 Services Inc -3,381 -3,106 -8% +275 +316 -41 Total +26,870 +26,794 0% -76 -94 +18 Asylum Services Exp +7,947 +7,947 0% +0 +0 -0 Inc -6,715 -6,715 0% +0 +0 -0 Total +1,232 +1,232 0% +0 +0 -0 Older Peoples Services Exp +32,369 +33,982 5% +1,613 +1,626 -13 Inc -7,677 -9,102 19% -1,426 -1,356 -69 Total +24,692 +24,880 1% +188 +270 -82 Physical & Sensory Exp +8,325 +9,004 8% +679 +682 -4 Disability Services Inc -587 -812 38% -225 -266 +41 Total +7,738 +8,192 6% +454 +417 +37 Learning Disability Exp +27,077 +27,919 3% +842 +828 +14 Services Inc -4,036 -4,134 2% -98 -84 -14 Total +23,042 +23,785 3% +743 +744 -0 Mental Health Services Exp +5,773 +5,469 -5% -303 -228 -75 Inc -394 -418 6% -25 -56 +32 Total +5,379 +5,051 -6% -328 -284 -44 SCH&H Other Services Exp +8,957 +10,229 14% +1,273 +1,294 -22 Inc -1,332 -3,461 160% -2,129 -2,155 +26 Total +7,624 +6,768 -11% -856 -861 +4 Total Expenditure +120,698 +124,450 24% +3,752 +3,793 -41 Total Income -24,121 -27,748 217% -3,627 -3,600 -26 SCH&H Total +96,577 +96,702 -8% +125 +193 -67 3. The forecast assumes the full use of contingency available to the department as shown in the table immediately below and that the pressure on Asylum services continues to be funded from the Council’s general contingency.

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Gross Pressure Net Division of Service Month 11 Contingency Pressure Current Commitments: Asylum Funding Shortfall +1,516 +1,449 +67 Social Care Pressures (Children's) +25 +25 0 Social Care Pressures (Adults) +6,171 +6,171 0 Increase in Transitional Children due to Demographic Changes +2,742 +2,742 0 Potential shortfall in reablement, LD & PD savings targets +500 +500 0 Original Contingency Allocation +10,954 +10,887 +67 Approved Allocations: Social Care Pressures (Children's) -140 -140 Remaining Contingency Allocation +10,954 +10,887 MTFF Savings

4. The group is delivering a savings programme totalling £7,397k and to date has banked £6,125k (83%). There is a shortfall of £1,272k from the BID children's services business support review (£255k), review of Learning Disability Day Services (£311k), and Supported Housing (referred to below); these are included in the forecasts set out below. With these exceptions the remainder of the programme has been delivered representing major changes in service delivery for the group.

5. The capital programme has for a number of reasons slipped from its original timetable; the slippage in 2012/13 is estimated to be around £1.4m although it should be noted that the actual cost of community based support is still to be confirmed. A small contingency provision of £0.1m has been allowed for potential variance on this so the total slippage for monitoring purposes will be around £1.5m. The MTFF did allow for £0.5m contingency relating to this project and this has been allocated to Learning Disability where the pressure is greatest.

Children Services: £76k favourable (£18k adverse)

6. There has been no material movement from the M10 forecast on a gross budget for this service of £30.1m.

7. The service includes an MTFF saving target of £1,968k which is now fully banked; the £1,673k placements saving being the most significant. The primary cause of slippage relates to the implementation of the business support review (£255k). Robust in year management has successfully offset this by holding vacancies and maximising the use of in-house Fostering for new referrals.

Asylum: Nil Variance (no change)

8. The additional pressure (reported previously) relates to the value and number of applicants found to be ineligible by UKBA exceeding the 2011/12 trend. Assuming that the trend recorded in quarters 1 and 2 are repeated then the reduction in the overall UKBA grant income will be £67k greater than that provided for; the Q3 claim has been submitted to UKBA.

9. The department is in ongoing discussion with UKBA on specific LBH matters with regard to the funding shortfall. As a result representations have been made to the UKBA regarding the ongoing financial support LBH receive from the ‘Gateway’ grant. To date there has been no response to the departments letter.

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Older People Services: £188k adverse (£82k favourable)

10. The movement from the month 10 forecast is primarily due to a reduction in the forecast for community support services supporting people to live in their own homes.

11. There continues to be robust management scrutiny of residential and nursing placement requests and full application of the benefits of the TeleCareLine service and Reablement. These actions have been instrumental in enabling the total number of placements being provided to fall to 499 at the end of February compared with 682 just 2 years ago.

12. The gross budget for this service (£32,766k) includes an MTFF saving of £1,985k which has been banked. The gross budget for placements and community support services is £26,414k.

Physical Disabilities: £454k adverse (£37k adverse)

13. This adverse movement from the month 10 forecast is as a result of the increasing pressure on more intensive community based services to support people to live at home.

14. The gross budget for this service is £8.4m and includes an MTFF saving for this service of £517k; at the present time £442k has been banked with slippage of £75k.

15. The adverse forecast is due to delays in the supported accommodation build programme as set out above. The gross budget for placements and community support services is £7,128k. The forecast for the remainder of this service is currently on budget.

Learning Disability: £744k adverse (no change)

16. There has been no movement from the M10 forecast on a gross budget for this service of £27.3m. The MTFF saving of £962k has incurred £942k slippage for the reasons outlined under MTFF Savings above. The gross budget for placements and community support services is £24,696k. The forecast for the remainder of this service is currently on budget.

17. The adverse forecast is due to delays in the supported accommodation build programme as set out above and delays due to the Judicial Review challenge which have now been addressed. This forecast also assumes that £500k can be drawn down from the Contingency held for this purpose mitigating the pressure from £1,244k to £744k as reported in this forecast.

Mental Health: £328k favourable (£44k favourable)

18. The favourable movement from the M10 forecast reflects a further reduction in the placements forecast within a gross budget for the service of £5.8m. The favourable forecasts is a result of the successful partnership work with the Central & North West London Trust (CNWL) through the joint placements efficiency project which is on track to deliver its objectives.

19. The gross budget for this service is £5.8m which includes an MTFF saving for this service of £500k which has been banked. The gross budget for placements and community support services is £3,038k. The forecast for the remainder of this service is currently on budget.

SC&H Other Services: £856k favourable (£4k adverse)

20. There has been no material movement from the M10 forecast on a gross budget for this service of £9,116k. This includes an MTFF saving of £1,465k which has been banked to date with £50k at risk. The risk relates to a BID Major Transformation project.

Page 341 Cabinet – 25 April 2013

APPENDIX B – Treasury Management Report as at 28 February 2013

Outstanding Deposits - Average Rate of Return on Deposits: 0.67%

Actual Actual Bench-mark £m % % Up to 1 Month 86.1 77.50 60.00 1-2 Months 0.0 0.00 15.00 2-3 Months 6.0 5.40 10.00 3-6 Months 10.0 9.00 10.00 6-9 Months 0.0 0.00 5.00 9-12 Months 3.0 2.70 0.00 12-18 Months 0.0 0.00 0.00 Subtotal 105.1 94.60 100.00 Unpaid Maturities 6.0 5.40 0.00 Total 111.1 100.00 100.00

1. With the exception of the unpaid Icelandic investments, our deposits are held with UK institutions, which hold at a minimum, a Fitch or lowest equivalent of A- long-term credit rating.

2. Deposits are currently held with the following institutions; BlackRock MMF, Deutsche MMF, Fidelity MMF, Goldman Sachs MMF, Ignis MMF, PSDF MMF, Royal Bank of Scotland, HSBC, Lloyds TSB, Bank of Scotland, Barclays, Nationwide, Newcastle City Council and Kinston- upon-Hull City Council, and a Certificate of Deposit with Standard Chartered.

3. During February fixed-term deposits continued to mature in line with cashflow requirements. Any surplus funds were either placed in instant access accounts or fixed term deposits of up to three months in order to meet near term cash flow requirements. A year-long £3m deposit was placed with Kingston-upon-Hull City Council at the beginning of the month to maintain a steady rate of interest (higher than our MMFs) in a falling interest rate environment.

Outstanding Debt - Average Interest Rate on Debt: 3.00%

Actual Actual £m % General Fund PWLB 79.18 22.69 Long-Term Market 15.00 4.29 HRA PWLB 221.82 63.57 Long-Term Market 33.00 9.45 Total 349.00 100.00

4. There were no early debt repayment opportunities or rescheduling activities during the month.

Ongoing Strategy

5. In order to maintain liquidity for day-to day business operations, short-term balances will be placed in instant access accounts, as these are yielding a higher rate of interest than those offered on fixed term deposits of up to three months. When cash flow allows, long term deposits will be placed to help increase the average rate of return achieved.

Page 342 Cabinet – 25 April 2013

6. During February outstanding PWLB loans still carried large premiums and therefore made rescheduling of debt unfeasible. Early redemption opportunities will continue to be monitored; however, whilst global economic conditions remain, it is unlikely the market will move to an extent that will make rescheduling viable.

Page 343 Cabinet – 25 April 2013

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Page 344 Agenda Item 15

SCHOOL PLACES PLANNING UPDATE (2013-2022)

Cabinet Member (s) Councillor David Simmonds

Cabinet Portfolio(s) Education and Children’s Services

Officer Contact(s) Julien Kramer, Residents Services Dan Kennedy, Administration Directorate

Papers with report Appendix 1 – Primary School Places Demand

HEADLINE INFORMATION

Summary The local authority has a statutory responsibility to secure sufficient early years and school places for children resident in Hillingdon. The demand for early years and school places in Hillingdon is rising and is forecast to continue to grow. This is in line with national and London-wide predictions.

This report builds on the previous update to Cabinet in February which initially focused on primary school places by providing a further update about the demand for early years places, secondary school places and from children with special educational needs (SEN).

This overview now positions the local authority to see the pressure points in the supply of early years and school places to inform the development of proposals for the next ten years, which will support greater integration in schools places planning to make best use of the education resources in Hillingdon.

Contribution to our Effective early years and school places planning is a key element plans and strategies of the Council-led Children’s Pathway Programme to put ‘families first’ in Hillingdon.

Financial Cost There are no direct costs arising from the recommendations of this report. There are, however, significant potential resource implications arising from the delivery of the school places requirement.

Relevant Policy Education and Children’s Services Overview Committee

Ward(s) affected All wards in Hillingdon

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2. RECOMMENDATION

That the Cabinet:

1) Note the updated forecast demand for early years and school places;

2) Instruct officers to prepare a joined-up proposal to meet the increasing demand for early years, schools places and SEN place across all age groups and needs in consultation with the Leader of the Council, the Cabinet Member for Education and Children's Services and the Cabinet Member for Finance, Property and Business Services and;

3) Agree proposals are reported to a future meeting of the Cabinet for approval.

Reasons for recommendation

As part of the strategic education function of the local authority, the Council has a statutory responsibility to secure sufficient early years and school places to meet the needs of children resident in the Borough. From September 2013 this includes the provision of child care places for disadvantaged two year olds. The demand for primary school places in Hillingdon has been rising for the last five years and is forecast to continue to grow and will continue into secondary school education. This is in line with national and London-wide predictions for school places. Demand for school places from children with special educational needs is also increasing. Given the forecast rising demand for school places across the education system in Hillingdon there is therefore an opportunity to make best use of all education resources and partner resources available in Hillingdon by delivering a co-ordinated school places plan over the next ten years for children of all age groups, educational and special needs.

Alternative options considered / risk management

The ten year school places plan for children and young people positions the local authority to continue to successfully meet its statutory duty working with provider partners and those who have an interest in education to secure sufficient and high quality early years and school places for children resident in Hillingdon.

Policy Overview Committee comments

None at this stage.

3. INFORMATION

Supporting Information

Summary

3.1 An outline plan for Hillingdon’s early years child care and school places was agreed at February 2013 Cabinet to cover all age ranges and educational needs for children and young people. This joined-up approach ensures effective planning and commissioning of education services to make best use of existing resources to meet forecast needs in flexible and creative ways. This report provides an update to the report presented to Cabinet in February by providing additional information about the future demands for early

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years places, secondary school places and the growing need for special educational needs school places. Together with the forecast available about the demand for primary school places, the analysis in this report offers Cabinet for the first time an overview of the emerging future pressures on Hillingdon’s education system and will inform the potential options for meeting this need for future consideration.

3.2 The increasing demand for early years and school places in Hillingdon is attributable to a number of factors:

• A growing population in Hillingdon – particularly concentrated in the south/south-east of the Borough.

• An increase in premature babies survival rates with a commensurate increase in the number of children with severe and complex needs.

• Inward migration and reduced outward migration, including a growing number of children with complex needs moving into Hillingdon.

3.3 In summary, the future predictions for early years and schools places in Hillingdon shows:

• Early years – a need to secure approximately 750 additional child care places in Hillingdon for disadvantaged two year olds by September 2013 and at least an additional 800 places by September 2014 to reflect new responsibilities for local authorities from September 2013 onwards. Early years support is integral to the Children’s Pathway Programme in Hillingdon to put families first. Officers are actively working with local child care providers to secure sufficient high quality places in Hillingdon by September 2013 and beyond.

• Primary school places – as reported to Cabinet in February 2013 there is a need to secure an additional 3,150 primary school places over the next ten years over and above the existing successful schools expansion programme. The growth in pupil numbers is concentrated in the south/south-east of the Borough. The development of two new primary schools in the Borough will provide essential schools places. Officers are developing further proposals for meeting the need in the medium to longer-term. This could include ‘all-through schools’ and so options are being developed for consideration to dovetail with proposals to meet the demand for the increase in secondary school places.

• Secondary school places – predictions from the Greater London Authority indicate the number of secondary pupils in Hillingdon is set to increase by 25% (an extra 3,900 pupils) to more than 19,000 between September 2012 and 2021/22. The rate of increase is faster for year 7 pupils (the entry year into secondary schools) as the growth in primary pupils moves into secondary education. This is consistent with the increase in primary pupil numbers and similarly is concentrated in the south/south-east of the Borough. In the medium-term there are sufficient secondary school places. The pressure for secondary school places is expected to begin from the year 2016/17 onwards. Officers are developing proposals for consideration to meet the increasing need for secondary school places. This could include ‘all-through schools’ and so options are being developed to dovetail with proposals to meet the demand for the increase in primary school places.

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• Special Educational Needs (SEN) – the number of children with an assessed special education need has increased by 20% over the last 6 years (approximately an extra 250 children) and the needs of children are becoming more complex requiring higher levels of support in some cases. The increase in the number of children with a SEN in Hillingdon has required the use of school places outside Hillingdon or in independent special schools in recent years which brings with it the need for longer journeys travelling from home to/from school with increased transport costs. There is the option available to evolve a more local model of school provision, further details of which are set out in this report for consideration. This includes the option to increase the provision of places available at local mainstream schools through a special resource provision. This would enhance the integration of pupils with SEN in Hillingdon. Therefore, proposals to meet the future education needs of children with special educational needs are being developed alongside those for primary and secondary school places.

3.4 Bringing the analysis and forecasting together for the first-time in this way across all age and needs groups shows the collective pressure across the education system in Hillingdon over at least the next ten years and underpins the necessity for joined up early years and schools places planning. A strong, co-ordinated approach with the local authority positioned as the strategic lead ensures the best use of the education resources for the provision of high quality education facilities for residents. This includes the option to develop integrated, all-through schools places provision using the existing available education facilities in ways which will improve the education offer to local children and their families.

3.5 Options for meeting the growing demand for school places are being progressed and will be presented to the Leader of the Council and the Cabinet Members for consideration.

3.6 The remainder of this report provides further information about the forecast demand for early years and school places. Options to meet the education and training needs of young people post 16 years-old will be presented to Cabinet at a later date for consideration. This report is structured according to the following areas of need:

• Early years • Primary school places • Secondary school places • Special educational needs

A. Early Years

3.7 The local authority has a statutory responsibility to secure sufficient places for children in early years settings. In summary, this covers children aged three or four years old and from September 2013 children aged two years of age who are disadvantaged. Research shows that the first three years of a child’s life are when a child’s social, cognitive and developmental abilities develop most. The provision of good quality services in an early years setting therefore is a key strand of the Council’s Children’s Pathway Programme to support children and families to be self-sufficient and independent at an early stage. This can prevent families from needing higher levels of intervention from statutory services. Work is underway as part of the Council-led Children’s Pathway Programme to develop the re-design of early years support for families integral to putting ‘families first’ in the Borough.

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3.8 In September 2010 all three and four year olds became entitled to 15 hours a week of universal free early years education for 38 weeks a year; an increase from 12.5 hours a week. Take-up of these places is very good in Hillingdon with 96% per cent of three and four year olds accessing their free entitlement. This is slightly higher than the national average of 95% take-up of early education places.

3.9 From September 2013 the offer of early education extends to 20% of the most disadvantaged two year olds and then 40% of disadvantaged two year-olds from September 2014. The Department for Education (DfE) have estimated that in Hillingdon these percentages equate to 757 places for disadvantaged two years olds by September 2013 and at least an additional 800 places by September 2014. The DfE are expected to confirm with local authorities further information about the families with two year olds who should be encouraged to take-up a free child care place.

3.10 Achieving these placement targets for two year olds requires the development of local child care places of sufficient volume and quality and the stimulation of demand from parents who may not be aware of their entitlement or the benefits of accessing childcare. Officers are actively progressing plans to ensure a sufficient supply of early years placements for disadvantaged two year olds by September 2013 and that take-up is forthcoming from disadvantaged families. Actions to date include:

• Targeting existing providers to make sufficient child care places available for disadvantaged two year olds. Officers have been targeting the south and south east of the Borough as an area experiencing higher birth rates and therefore higher potential demand for child care places. • Working with existing providers to make best use of their existing buildings and to re- configure their day care timetable to maximise the number of places available. • Supporting new child care providers to enter the market-place. • Increasing the awareness of parents of the offer for two year olds. • Improving parents’ perception of the benefits of early years child care and the provision of child minder services in their area. • Flexible use of temporary accommodation as it becomes available in the capital build programme.

B. Primary School Places - Update

3.11 For completeness and to provide the full picture in school places planning, this section of the report summarises the projections for primary pupil places presented to Cabinet in February 2013. At a national level, the Department for Education is forecasting a sustained, increasing demand for primary school places (an 18% increase by 2021). In London, the need for primary school places is forecast to rise at a faster rate, with an 18% increase in primary school places expected between 2010 and 2015.

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3.12 As set out in the graph below, the number of primary pupils in a school place has been rising steadily since 2007 in Hillingdon. In the period Primary Age School Rolls 2004 - 2012 (source: school roll projection and 2007 to 2012, the number of annual Jan school census) primary pupils in Hillingdon 23,500 schools has increased by 10%, equating to 23,000 approximately 2,000 additional pupils. The 22,500 London Borough of 22,000 Hillingdon with the schools in Hillingdon and other 21,500

partners have worked 21,000 closely together to successfully meet the rising 20,500 need for primary places in 20,000 the last five years. This has 2004 2005 2006 2007 2008 2009 2010 2011 2012 largely been achieved through the expansion of existing schools to secure high quality education facilities for Hillingdon’s children.

3.13 Based on current projections using London-wide data prepared by the Greater London Authority and local housing data, the number of primary pupils requiring a school place in Hillingdon is forecast to continue to rise between 2013 and 2021/22. This is attributable to an increasing birth rate, inward migration and reduced outward migration from the Borough. The rising future demand for primary school places in Hillingdon is forecast to concentrate in localised areas, particularly in the south and south-east of the Borough. The table in appendix 1 presents those school places planning areas which are a priority for increasing the provision of primary school places over and above that already on track to be delivered through the existing school places programme or through the provision of new schools already expected. In summary, as set out at the February meeting of the Cabinet, Hillingdon is predicted to require 15 forms of entry for primary age pupils over and above the existing expansion programme for primary schools. This equates to approximately an additional 3,150 school places required in primary schools by 2021/22.

3.14 The Council is working with partners to successfully meet this rising need for school places in a number of ways which offers choice to local families and delivers high quality education provision as close as possible to the homes of children resident in the Borough to minimise the need for travel between home and school. These include:

• Continuing to deliver an ambitious £149m capital programme to expand existing primary schools to a high quality. • Working with partners to consider free schools of sufficient quality and in those areas of the greatest demand. • Leading the provision of new schools in those areas of the greatest demand for school places and/or where school expansion may not be feasible e.g. Lake Farm, RAF Uxbridge. • Recognising the need for additional places for pupils with SEN.

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C. Secondary School Places

3.15 At a national level the Department of Hillingdon - Secondary School Pupils Forecast to 2021/22 Education is predicting (All Year Groups Aged 12-16) an increase in the 20000 number of secondary 19000 pupils from 2015 onwards. In Hillingdon 18000 the number of pupils attending a secondary 17000

school has been rising 16000 gradually over recent Pupils of Number years and is predicted 15000 to continue to rise as 14000 primary school pupils 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 move up into (Start of School Year in September) secondary school age year groups.

3.16 As a follow up to the outline school places plan presented to Cabinet in February, officers have analysed the rising demand for secondary school places to ensure that the needs of secondary school age pupils are co-ordinated and joined up with forward planning for early years places, primary school places and the needs of children with a special education need. The graph shows the predicted rising number of secondary school age pupils in Hillingdon by 2021/22 - an overall 25% increase (+3,900 additional pupils) in Hillingdon secondary schools between September 2012 and September 2021. The predicted increase in secondary school places by 2021 in Hillingdon has come from independent modelling undertaken by the Greater London Authority (GLA School Roll Projections Annual Report – January 2013).

3.17 In line with many other London boroughs, there is in general the physical capacity within Hillingdon secondary schools to absorb the forecast increase in secondary school age pupils in the medium-term (the next 4 to 5 years). This is because there are under-used secondary school places at the present time. Modelling of demand for secondary school places predicts that the pressure for school places will move into secondary schools by September 2017 when additional secondary pupil places will be required.

3.18 Families with children of secondary school age tend to exercise greater mobility in securing their preference for a school place compared to families with primary school age children. Also secondary schools tend to accommodate a larger cohort of children compared to primary schools. For the purpose of planning secondary school places, two broad geographical areas are used grouping together adjacent wards. Whilst overall there is an estimated demand for 3,900 secondary school pupils expected in Hillingdon over the next ten years, the entry year (year 7) into the secondary school education system will witness the pressure first before other year groups and indicates a sustained growth in the numbers of secondary school age pupils. The following table summarises the forecast pressure on year 7 places only as an indication of the future demand for additional secondary school places in Hillingdon over the next ten years and beyond.

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Area No. of Predicted Estimated Comment (showing Wards) Secondary number of Secondary School Secondary School Pupils on School Capacity roll – year 7 Pupils Y7 (Places - (actual 2021/22 Year 7 – January (from GLA) Sept 2013) 2013) LBH Area 1 Cavendish, Eastcote and Potential need for up to 1836 East Ruislip, Harefield, an additional 6 forms of 1508 (22% 1680 Ickenham, Manor, entry over the next ten increase) Northwood, Northwood Hills, years South Ruislip, West Ruislip. LBH Area 2 Barnhill, Botwell, Brunel, Potential need for up to Charville, Heathrow Villages, 2245 an additional 10 forms of Hillingdon East, Pinkwell, 1585 (42% 1969 entry over the next ten West Drayton, Townfield, increase) years Uxbridge North, Uxbridge South, Yeading, Yiewsley 4081 Potential total need for TOTAL 3,093 (32% 3649 up to 16 forms of entry increase) over the next ten years

3.19 The analysis indicates a growing pressure for secondary school places particularly in the south and south-east of the Borough. This is consistent with the increase in Hillingdon’s population measured in the 2011 Census which shows the increase in the population is concentrated in the south/south-east of the Borough.

3.20 At this stage the forecasts for additional secondary school places are indicative as there are a number of factors which can affect the supply of available secondary school places e.g. secondary schools revising the number of places available by de-designating places for primary ‘free’ school places, certain curriculum subjects may require smaller class sizes and therefore may require additional classrooms etc…Officers are reviewing the future demand pressures for secondary school places and will present an appraisal of options for consideration by the Leader of the Council and Cabinet Members.

D. Special Education Needs

3.21 As part of the Children’s Pathway Programme in Hillingdon focused on putting ‘families first’, work has been undertaken to review the forecast demand of children with special educational needs in Hillingdon and to develop options for how best to effectively meet the need.

3.22 Children with additional needs require extra support to reach their full potential in school and to make a successful transition into adulthood, whether into employment, further or higher education or training. Some children will be subject to an assessment of their educational needs by the local authority and if their needs are complex will receive a statement of special educational needs (SEN) which sets out what their needs are and how they will be met. SEN means that a child either has a:

• significantly greater difficulty in learning than the majority of children of the same age,

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• disability that prevents or hinders them from making use of educational facilities normally provided for children of the same age in schools.

3.23 The key categories of need of children who have a SEN are: • Cognition and learning needs (e.g. moderate to severe learning disability), • Behaviour, emotional and social development needs, • Communication and interaction needs (e.g. autistic spectrum disorder), • Sensory and / or physical needs (e.g. visual impairment).

Demand for Special Educational Needs School Places

3.24 The latest available data shows there are an increasing number of children with a SEN in Hillingdon. In January 2013 there were 1449 children in Hillingdon with a SEN which had increased further to 1470 by the end of March – representing an overall increase of 20% over the last 6 years. The rate of increase in the number of children with a SEN has been growing at a faster rate than the increase in primary pupil numbers in Hillingdon.

Number of Children with a Statement of Educational Need - Hillingdon (actual - January each year)

1500 1450 1400 1350 1300 1250 1200 1150 2007 2008 2009 2010 2011 2012 2013

3.25 The demand for school places from children with a SEN continues throughout the year which in turn continues to place additional requirements on Hillingdon's education system. The continued demand comes from families who move to Hillingdon from other parts of the UK or from other countries. Over the last two years there has been a net increase of children moving to Hillingdon with a statement of special educational needs (an increase of 36 children from April 2011 to January 2013). In the period September 2012 to February 2013:

• 46 children with a statement of special educational needs have moved to Hillingdon from another part of the country, • In addition, 57 applications have been received for a place in a secondary school where the child has an additional need and previously lived in another country. Some children with complex needs moving to Hillingdon from another country have not previously enjoyed an education in a structured, formal setting and therefore finding a suitable school placement to meet their social and learning needs can be challenging.

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3.26 The needs of children who require educational support are not just growing in number in Hillingdon but also in complexity. In particular, the number of children subject to a statement of educational need with diagnoses of autistic spectrum disorders with cognitive abilities ranging from moderate to severe with speech, language and communication difficulties is increasing. One in four children (25%) with a SEN has a diagnosis of autistic spectrum disorder which has increased from 18% of all children with a statement in 2009.

3.27 In summary there is an increasing demand from children with a SEN in Hillingdon, which the following factors are contributing to: • A growing population in Hillingdon, • An increase in premature babies survival rates with a commensurate increase in the number of children with severe and complex needs, • A growing number of children with more complex needs moving into Hillingdon.

Meeting the Demand

3.28 There are a range of educational settings used to meet the needs of Hillingdon’s pupils with special educational needs. Given Hillingdon is experiencing a growing number of children with increasingly complex needs there is pressure on the existing education system to provide for pupils with a SEN. This is leading to placements having to be made in specialist, higher cost educational settings, including those outside the Borough.

3.29 Approximately two fifths of children with a SEN attend a mainstream school and a further half of all SEN attend a special, higher cost school to meet their needs (maintained special school or an independent special school). In general, the highest cost placements are in independent, out-of-borough special schools with the lower cost placements in mainstream schools and special resource provision in mainstream schools based in Hillingdon.

3.30 The pattern of existing education provision and the increasing demand for SEN school places means that some children in Hillingdon have to travel some distance from their home to school with some having to attend a school outside the Borough. Of those children with a SEN of primary school age almost 1 in 6 (16%) attend a school more than 2 miles from home. Overall, one in ten children with a SEN (12%) attend a school outside Hillingdon.

Emerging Options

3.31 With the number of children with a SEN expected to grow further in Hillingdon, there is an option to consider evolving a more localised model of education provision for children with special educational needs building on the good practice established to date. A more localised model will need to offer the following benefits:

• securing sufficient flexibility in education provision to meet rising demand, • reflecting the changing pattern of types of disability in the Borough, • responsive to the specific education and support needs of children and their families, • increasing choice for families by enabling greater support in mainstream schools, • delivering provision which is closer to pupils’ homes, • reducing the overall costs of education and transport for children with support needs.

3.32 The emerging options below for consideration focus on children of early years, primary and secondary school age with a special educational need. The needs of young people aged

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16 years or older are being taken forward as part of the children’s pathway programme in Hillingdon. This includes:

• To support more local provision for children with special educational needs through the development of a pattern of a special resource provision (SRP) on the site of mainstream schools in Hillingdon tailored to the individual needs of children and their families, • To consider for new schools in Hillingdon that the school has a special resource provision on site for children with special educational needs, • For early years/infant school age children develop a joined-up assessment approach to identify the support needs of children and their families at an early age, • Develop the future role of special schools in the Borough to offer out-reach support to mainstream schools and those with a SRP to meet the needs of children with complex needs.

3.33 Cabinet are asked to agree that officers consider these options and develop a proposal for meeting the growing needs of children with a special educational need and ensure that the proposal is joined up with and part of the proposal for primary school places and secondary school places. This proposal will be presented to the Leader of the Council and relevant Cabinet Members for consideration before any further action is taken. The proposal will be linked to and is a key part of the Children’s Pathway Programme in Hillingdon designed to put families first.

Financial Implications

The Council’s current approved Primary Schools Expansion programme is set at £149 million and will provide 27.5 additional permanent forms of entry and 28 temporary forms. This has been planned to provide the increased primary school places up to September 2015. The pressures described in the paper above are over and above that existing programme. The average cost of 1 permanent form of entry has ranged from £4.5 million to £5 million, which gives a potential increased resource requirement of £49.5 to £55 million if the Council was to provide this through the current strategy for further school expansion. However, the paper recommends that partnership working and engaging with potential new providers of Free Schools be actively explored. Financially, this is likely to be a less costly approach than to match school place growth with a pure Council driven programme, which may not be affordable in the long term. Free Schools are more likely to attract Government and private sector funding.

The current Primary Schools Expansion programme factors in £56.7 million of DFE grant and £15 million of S106 resources. The balance of £55.8 million is being resourced from a combination of borrowing and capital receipts from disposals of Council assets. Further increase in a Council-led build programme for further schools expansion would require a significant increase in borrowing with associated revenue cost implications. Therefore, a strategy that looks at partnership would potentially mitigate the further impact on Council resources.

The report also notes the potential impact on Post 16 year-old education and training and Special Education Needs, growth of which in both areas will have revenue implications for the Council.

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4. EFFECT ON RESIDENTS, SERVICE USERS & COMMUNITIES

What will be the effect of the recommendation?

The recommendations set out in this report will ensure the local authority and partners in Hillingdon deliver sufficient, high quality education provision for children resident in the Borough.

Consultation Carried Out or Required

Council officers have been consulted and involved in developing the outline School Places Plan and priorities to support and align fully to Hillingdon’s Children’s Pathway Programme. The development and implementation of the school places plan will involve partners and other stakeholders.

5. CORPORATE IMPLICATIONS

Corporate Finance

Corporate Finance has reviewed this report and notes that although there are no direct financial implications arising from the recommendations there are considerable resource implications for the Council’s capital programme as outlined within the Financial Implications section. Central Government has announced that Targeted Basic Needs capital funding will be made available to Local Authorities with capacity needs and Hillingdon has applied for this funding but awaits an announcement as to the level of funding to be granted. However, it is highly likely that the Council will have to apply its own resources to supplement grants and third party contributions to any additional expansion programme and a figure of over £50m is already factored into the MTFF alongside corresponding revenue financing provision.

Corporate Finance notes the subsequent implications for places at the secondary and post 16 stages alongside Special Education needs and although funding sources for these may be broader than that available for the majority of primary expansions, financing strategies will need to be developed through the MTFF process as the programme is further progressed.

Legal

Pursuant to section 14 of the Education Act 1996 the Council has a statutory duty to ensure that sufficient school places are available in its area for providing primary, secondary and special education. With regards to establishment of new schools it is worth noting that the Education and Inspections Act 2006, (as amended by the Education Act 2011), places a statutory duty to give precedence to academy/free school proposals, where a local authority identifies the need to establish a new school in their area. Under the Council’s Constitution Cabinet has the appropriate power to agree recommendations proposed at the outset of this report. Further, by virtue of Section 1 of the Localism Act 2011 which makes provision for ‘a general power of competence’ for local authorities in England. The ‘power’ gives local authorities the power to do anything an individual can do unless specifically prohibited by law. This includes the power to act in the interest of their communities.

6. BACKGROUND PAPERS

NIL.

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Appendix 1 – Primary School Places – Additional Requirements 2013-2022

Page 357

Note: The increased need for school places has been expressed in ‘forms of entry’ in the table below. A form of entry represents an additional seven year groups at a primary school. Each additional year group will provide places for up to 30 additional pupils. Therefore an additional form of entry at a primary school equates to an additional 210 pupil places in total across all seven year groups.

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Page 358 Agenda Item 16

LAKE FARM – APPROPRIATION OF OPEN SPACE TO PLANNING PURPOSES

Cabinet Member (s) Councillor Jonathan Bianco

Cabinet Portfolio(s) Finance, Property and Business Services

Officer Contact(s) Rajesh Alagh Borough Solicitor

Papers with report Appendix 1 attached

1. HEADLINE INFORMATION

Summary This report asks Cabinet to delegate authority to the Deputy Chief Executive and Corporate Director of Residents Services together with the Leader of the Council and the Cabinet Members for Finance, Property and Business Service and Planning, Transportation and Recycling to fully consider any objections made to a Public Notice and to then decide whether to appropriate part of Lake Farm from public open space to planning purposes.

Contribution to our Investment in primary schools to adequately address the impact of plans and strategies the population increase within the London Borough of Hillingdon relating to existing school places. This project also forms part of the Hillingdon Improvement Programme.

Financial Cost There are no direct costs or fees associated with appropriation of the land. The QC advice costs of £5,000 will be contained within Residents Service revenue budget.

Relevant Policy Residents and Environmental Services Policy Overview Overview Committee Committee

Ward(s) affected Botwell

2. RECOMMENDATION

That Cabinet delegate authority to the Deputy Chief Executive and Corporate Director of Residents Services, in consultation with the Leader of the Council, the Cabinet Member for Finance, Property and Business Services and the Cabinet Member for Planning, Transport and Recycling, to fully consider any objections which have been made in relation to a Public Notice published in the Gazette newspaper and to decide whether to appropriate the land edged black on the map attached at Appendix 1 from public open space to planning purposes.

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Reasons for recommendation

The land is required for the development of a new primary school but no final decision can be taken until the deadline for objections has expired and any objections made have been fully considered.

Alternative options considered / risk management

Not to proceed with the consideration of objections and the possibility of appropriating land at Lake Farm. This would prevent the construction of a primary school on the land.

Policy Overview Committee comments

None at this stage.

3. INFORMATION

Supporting Information

1. Lake Farm Country Park is located in the southern part of the London Borough of Hillingdon. It falls within Botwell Ward and is located towards the west of Hayes Town Centre. The areas to the north and east of the park are largely residential in character and the areas to the south and west predominantly comprise a mix of industrial and business areas and Green Belt land.

2. In its entirety, Lake Farm covers an area of approximately 24 hectares. The majority of the park comprises open meadowland/grassland and shrubs, interspersed by both formal and informal footpaths and bridleways. Two areas of formal grassland and trees, both with a children's playground, are situated in the north western and south western corners of the park respectively. A BMX track and a car park for visitors to the Country Park are located adjacent to the western boundary. Lake Farm is designated public open space and it is owned by the Council.

3. The Education Act 1996 provides that Local Authorities have a duty to educate children in their borough. The Hillingdon Primary Schools Capital Programme has been put into place by the Council to ensure that there are sufficient primary school classrooms and new primary schools built where this is required. The Council has identified part of Lake Farm as a suitable site to build a new primary school; it has undertaken a thorough criteria based assessment of alternative sites within the catchment area and has deemed that none of them are suitable.

4. The Council, in its capacity as the owner of Lake Farm, submitted an application for full planning permission to the Central and South Planning Committee at its 5 March 2013 meeting for the erection of a new three form of entry primary school which would occupy an irregularly shaped plot located at the eastern site of the Country Park which is identified on the map at Appendix 1. The school site itself will occupy an area of less than 3 hectares and it would be capable of accommodating up to 630 students plus a nursery for 45 children per session in two sessions and a SEN/SRP [Special Educational Needs] unit for approximately 12 pupils with Autism Spectrum Disorder. Provision would be made for hard and soft play space for the children, extensive landscaping works and the provision of associated car parking.

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5. The report considered by the Planning Committee highlighted that the application for planning permission, if granted, would represent inappropriate development within the Green Belt and result in the loss of a portion of public open space. Therefore, the Council was required to show very special circumstances. It did so by demonstrating an educational need and the lack of more appropriate alternative site provisions for the school, combined with the low impact design, high quality landscaping scheme and incorporation of high levels of sustainable build measures. On this basis, the application was recommended for approval, subject to referrals being made to the Mayor of London and the Secretary of State.

6. At the Committee meeting on 5 March, reference to a Section 106 Agreement, which is commonly known as the 'Trident Agreement', was made in the course of debating the application. It was submitted that there was a covenant in the Agreement, given by the Council, which prevented Lake Farm being used for any purpose other than public open space. The Members of the Committee were unable to verify this as they did not have access to the Agreement at the meeting.

The Planning Committee decision

7. In the circumstances, the Committee resolved that delegated powers be given to the Head of Planning, Sport and Green Spaces to grant planning permission subject to, inter alia, the following:

• That the application be referred to the Mayor under Article 3 of the Town and Country Planning [Mayor of London] Order 2000;

• That the application be referred to the Secretary of State as a departure from the provisions of the Development Plan, in accordance with the Town and Country Planning [Consultation] [England] Direction 2009;

• That legal advice be obtained as to whether the Trident Agreement gives rise to any additional issues which have not been taken into account;

• That should the Secretary of State not call in the application and subject to the Mayor of London not directing the Council under Article 5 of the Order to refuse the application or that he wishes to act as the determining authority, the application be deferred for determination by the Head of Planning, Sport and Green Spaces under delegated powers.

The Trident Agreement

8. There is an Agreement in existence dated 25 August 2000 which was entered into by Stockley Park Phase 3 Limited [the ''Owner''] Stockley Park Consortium Limited [the ''Applicant'' for planning permission] and the Council. Although the Agreement principally relates to Stockley Park, it also extends to Lake Farm.

9. There are two provisions in the Agreement which are of particular significance. The first is an obligation on the part of Stockley Park Phase 3 Limited, in its capacity as owner, which states:

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''Prior to occupation of more than 20,000 sqm of floor space on the Development Site [Phase 3 Stockley Park], the Owner shall pay to the Council the sum of £1m as a contribution towards the cost of laying out, landscaping and maintaining Lake Farm for use as public open space and/or leisure activities as shall be agreed between the Owner and the Council each acting reasonably.''

10. The second provision, which is an obligation on the part of the Council, is the one which was referred to during the debate at the Planning Committee meeting. It states:

''The Council shall ensure that Lake Farm is laid out and landscaped and maintained for use as public open space and/or leisure activities unless otherwise agreed by the Owner.''

11. Given that this is an old Agreement and the fact that the above clause is capable of being interpreted in more than one way, the Borough Solicitor commissioned a legal opinion from a QC who specialises in planning and property law.

The QC's opinion

12. The QC has advised that the interpretation of the above clause is ''not free from doubt unless or until pronounced upon by a Court of Law”. Therefore, the QC has further advised that the Council has two options open to it in terms of overcoming any difficulties created by its obligation to Stockley Park Phase 3 Limited. The first, and most obvious, is to secure a written agreement from this company to the effect that part of Lake Farm can be used for a purpose other than open space/leisure activities. However, there is no certainty as to whether and or when the company will agree to this; even if agreement is given, it is likely that Stockley Park Phase 3 Limited would seek a removal or a variation to its obligation to pay the Council £1m prior to its occupation of more than 20,000 sqm of floor space on the Development Site.

13. The second, and more certain option, is for the Council to appropriate the land on Lake Farm proposed for development as a primary school, so that it becomes held for planning purposes within the meaning of the Town and Country Planning Act 1990. This is a course of action which the Council would have to follow in any event before it could build a school on Lake Farm. If land is appropriated and becomes held for planning purposes, by virtue of section 237 of the 1990 Act, the land in question may be developed in accordance with planning permission notwithstanding that it involves ''a breach of restriction as to the user of land arising by virtue of contract''. In other words, section 237 should overcome the restriction in the section 106 Agreement.

The Council's powers of appropriation

14. If the Council wishes to appropriate land, it will need to be satisfied that the provisions of Section 122 of the Local Government Act 1972 are met and in particular that the land is no longer required for the purposes for which it was held immediately before appropriation. The Council will also need to be satisfied that the land should be appropriated such that it becomes held for planning purposes by applying the tests set out in section 226(1) and (1A) of the Town and Country Planning Act 1990.

15. The following matters therefore need to be considered and determined before land at Lake Farm can be appropriated:

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• Identification of the purpose for which the land is currently held; • Whether the land is no longer required for that purpose; • Whether the appropriation will facilitate the carrying out of development, redevelopment or improvement on or in relation to the land and whether this is likely to contribute to the achievement of the economic, social or environmental well-being of the area.

16. Cabinet can legitimately address each of the above matters as follows:

• The land is currently being held as public open space; • The land is no longer required for this purpose on the basis that it is only a small portion of Lake Farm and the remainder of Lake Farm will continue to be used as public open space; • Appropriation will facilitate the development of a primary school which will contribute to the achievement of the social well-being of the area.

17. Before any final decision can be made to appropriate land at Lake Farm, regard has to be had to Section 122 (2A) of the 1972 Act which provides:

“A Council may not appropriate land consisting of or forming part of an open space unless before appropriating the land, they cause notice of their intention to do so, specifying the land in question, to be advertised in two consecutive weeks in a newspaper circulating in the area in which the land is situated, and consider any objections to the proposed appropriation, which may be made to them.”

18. The Council has placed a Notice in the Gazette newspaper which was published on 10 th and 17 th April 2013 respectively. Any objectors have until 30 th April to lodge their objections. Cabinet is therefore being asked to delegate the decision to appropriate the land to the Deputy Chief Executive and Corporate Director of Residents Services, in consultation with the Leader of the Council, the Cabinet Member for Finance Property and Business Services and the Cabinet Member for Planning, Transport and Recycling, having fully considered any objections made.

The Town and Country Planning (Mayor of London) Order 2008

19. Under Article 4 of the 2008 Order, the Mayor is required to provide the Council with a statement setting out whether he considers that the application for planning permission complies with the London Plan and his reasons for taking that view. Unless notified otherwise by the Mayor, the Council must consult the Mayor again under Article 5 if it subsequently resolves to make a draft decision on the application, in order that the Mayor may decide whether to allow the draft decision to proceed unchanged or direct the Council under Article 6 of the Order to refuse the application.

20. The Council consulted the Mayor under Article 5, as directed by the Central and South Planning Committee and on 10 th April, he notified the Council that he has decided to allow the draft decision to proceed unchanged.

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The Secretary of State’s determination

21. At the time of writing this report, the Secretary of State has not made a determination. A verbal update of the position will be provided at the meeting.

Financial Implications

The Council already owns the land in question, as outlined above, the appropriation is a legal mechanism to allow the change in the potential use of land and there are no fees or direct costs associated with the appropriation. The appropriation avoids the potential risk of the alternative negotiation that would be required to achieve a written agreement with Stockley Park Phase 3 limited to agree a change in purpose for this part of the Lake Farm site and therefore leaves in place the obligation by the company to pay the Council £1millon at a point of occupation of more than 20,000 square meters of floor space of the development site.

The cost of the QC’s opinion of £5,000 will be charged to and contained within Residents Services revenue budget.

4. EFFECT ON RESIDENTS, SERVICE USERS & COMMUNITIES

What will be the effect of the recommendation?

The effect of the recommendation is to allow a final decision to be made as to whether part of the land at Lake Farm should be appropriated for planning purposes.

Consultation Carried Out or Required

Although this does not amount to consultation as such, there is a statutory right to object to the proposed appropriation of land at Lake Farm.

5. CORPORATE IMPLICATIONS

Corporate Finance

Corporate Finance has reviewed this report and confirms that such an appropriation will have no financial impact on the Council, nor will reclassification of this land alter the carrying value on the Council’s balance sheet.

Legal

All legal implications are contained in the body of the report.

Corporate Property and Construction

Corporate Property and Construction supports the recommendation made in this report.

6. BACKGROUND PAPERS

Central and South Planning Committee Report and Minutes dated 5 March 2013.

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