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A Report of the Economy and Culture Scrutiny Committee

FLAT HOLM OPERATIONS

November 2012

County Council of The City and County of CONTENTS

Chair’s Foreword 3 Terms of Reference 4 Key Findings 4 Recommendations 7 Background 9 Management 13 Visitor Information 18 Transportation 21 Water Supply 26 Marketing 27 Flat Holm Accommodation 29 Education 31 Wider Partnerships 32 Inquiry Methodology 33 Legal Implications 34 Financial Implications 35 Committee Membership 37 Terms of Reference 35

2 CHAIR’S FOREWORD

Flat Holm is an island with a wealth of history & environmental interest that is largely unrecognised by many of our citizens. A site of special scientific interest it has a lot to offer schools, colleges, universities and tourists, but it is not reaching its full potential.

In times of financial pressure there is a need to scrutinise non-statutory services to ensure value for money for the Council Tax payer. The scrutiny of the Flat Holm operations, a non statutory service, examined the key issues affecting the island, and considered the opportunities to enhance income generation whilst being conscious of the need to protect its environment balance.

Utilising witness statements, site visits and information from key officers we have investigated a range of issues Flat Holm faces including transportation, footfall, marketing, the educational offer, accommodation etc and have developed ten recommendations that I believe if implemented would place the island on a firmer footing during this period of financial pressure.

As a member of this Task and Finish Group, I am very grateful to Councillors Phil Hawkins, Joe Boyle, Mohammad Javed, Dilwar Ali and Chris Weaver for their commitment and input into our work. I would like to thank all the witnesses who willingly gave their time to present evidence to the group as well as the Council Officers who were able to willingly assist us. I would also like to put on record my respect and admiration for all those involved in the Flat Holm project, both officers and volunteers go above and beyond to protect and enhance the island, a treasure for Cardiff City Council.

Councillor Craig Williams (Scrutiny Committee Chairperson) 3 TERMS OF REFERENCE

To scrutinise the operations at Flat Holm Island and examine options to enhance revenue. By examining:

 Flat Holm budget  Visitor numbers and perceptions  The facilities available  The marketing activity undertaken  Exploring with officers the options available to enhance revenue.

Views were sought from the public and Flat Holm Society.

Members of the task and finish group were Councillors Craig Williams, Joe Boyle, Mohammad Javed, Dilwar Ali, Phil Hawkins and Christopher Weaver.

KEY FINDINGS

1. The island of Flat Holm is a site of Special Scientific Interest, is staffed by the Flat Holm Project and with a wealth of historic sites it could be described as a living museum. There is a delicate balance to be struck between the need to preserve the island’s assets and the need during times of budgetary constraints, to generate tourist related income.

2. Cardiff Harbour Authority Business Plan (2014) contains some detail relating to the development of Flat Holm. The island’s staff and volunteers have several ideas for improvement and a short term forward plan for the island exists with six priorities for improvement. Awareness levels of these plans appear to be limited.

3. A key issue in improving the tourist offer and footfall to the island is that of transportation. In 2012 45% of the trips planned for Flat Holm were cancelled mainly due to adverse weather conditions and the total number of trips available are also limited due to tidal issues exacerbated by a landing stage that is in need of modernisation and repair.

4 4. The majority of the trips to the island are provided by the Lewis Alexander that has a capacity of approximately 45 passangers. The boat is 25 years old and in need of significant maintenance in the near future. Commercial boat operators believe that demand exists for trips to Flat Holm and careful consideration of the Council fees is required to ensure that provision is viable. There is a debate as to the appropriateness of the vessels available to transport the public across the island with ‘ribs’ providing a fast service with low numbers of the public and purpose built, bow loading, island Class passenger vessels providing greater capacity up to 100 people.

5. Flat Holm boasts two helipads that are utilised for emergency purposes. Commercial helicopter operators are available to transport the public to and from the island and this potential method of transport has not been realised to date.

6. Flat Holm does not have its own fresh water supply. In order to meet water regulations during 2012 the water storage facilities were improved, disrupting the island’s supply and business. There are potential opportunities to gain a water supply via a borehole and this would require significant investment.

7. A range of marketing activity has been attempted to increase the number of visitors to the island, ranging from attracting hen and stag do’s to corporate events. Flat Holm’s strength is however considered by many to be sustainability and environmental.

8. The provision of overnight stays has the potential to increase the income of the island significantly. A range of basic accommodation is available on the island and a self catering option at the Fog Horn Cottage is currently under development utilising a limited budget and volunteers. Other potential accommodation options exist such, as ‘glamping’ and the light house accommodation.

9. The island’s provision of environmental/sustainability education is valued by several educational institutions ranging from primary to higher education. There appear to be opportunities to enhance Flat Holm’s offer further by becoming a recognised field study centre, embedding itself further in the environmental

5 related GCSE and A Level curriculum and linking with the Centre for Alternative Technology.

10.Flat Holm benefits from active volunteers coordinated through the Flat Holm Society and other charities. Public suggestions for improvement highlight the need to involve more partners in the management of the island. Suggestions included Centre for Alternative Technology, Somerset Council etc.

6 RECOMMENDATIONS

The Task and Finish group has developed recommendations from the key findings mentioned previously, which are based in turn on the body of evidence presented in the report.

The Task and Finish group would recommend the Council’s Cabinet to:

R1. Consult and identify the correct balance between protecting the natural environment and increasing the footfall and income of Flat Holm island.

R2. Develop a long term costed plan for Flat Holm island that identifies areas for investment and potential alternative funding sources such as lottery funding, European funding, educational funding, private finance, invest to save etc.

R3. Prioritise as a part of the existing forward plan the development of the landing stage.

R4. Investigate the viability of Lewis Alexander boat, evaluate and develop a range of suitable options to transport more visitors to Flat Holm whilst meeting operational needs. This should include the evaluating involvement of commercial boat operators.

R5. Develop a coherent branding and marketing approach for Flat Holm that builds on the island’s environmental and sustainability credentials. This could take the form of eco tourism or the educational offer.

R6. Increase the accommodation available for public overnight stays on Flat Holm, at the Farm House, Barracks and Drift Wood and formally negotiate with regarding the possibilities of using the accommodation. The Task Group also support the plans to develop ‘glamping’ on the island.

R7. Ensure that any long term plans are aligned to the availability of electricity and water supply. Investigate the feasibility of a bore hole to ensure the security of clean water supply for the island.

7 R8. Develop a range of visitor packages for Flat Holm that include the provision of private helicopter trips.

R9. Formally pursue Flat Holm as a residential field studies centre that provides high quality, academic field courses for British and overseas students in order to increase the demand from education providers. The centre should offer a comprehensive selection of fieldwork courses (e.g. geography, ecology, geology, environmental studies and outdoor education) for all ages and abilities.

R10. Actively pursue a more inclusive approach to the management of the island that engenders a regional approach, brings in new partners and new opportunities for growth. Such partners could include the Centre for Alternative Technology, higher education, private and voluntary sectors, and bordering Local Authorities.

8 Background

1. Flat Holm is a limestone island lying in the Channel approximately 6 km (4 miles) from Point in the Vale of , but in the City and County of Cardiff. It includes the most southerly point of .

2. The island has a long history of occupation, dating at least from Anglo-Saxon and Viking periods. Religious uses include visits by disciples of Saint in the 6th century, and in 1835 it was the site of the foundation of the Mission, which later became the Mission to Seafarers. A sanatorium for patients was built in 1896 as the isolation hospital for the port of Cardiff. transmitted the first wireless signals over open sea from Flat Holm to Lavernock.

3. It is now managed by 's Flat Holm Project Team and designated as a Local Nature Reserve, Site of Special Scientific Interest (SSSI) and a Special Protection Area The SSSI designation covers biological and earth science interest including the significant breeding colonies of Lesser Black-backed Gull ( Larus fuscus ), maritime cliff communities, rare plant assemblages including the Wild Leek ( Allium ampeloprasum ) and Flat Holm limestone. The island also supports Herring Gulls ( Larus argentatus ) and Great Black-backed Gulls ( Larus marinus ) and is home to Slow Worms (Anguis fragilis ) with larger than usual blue markings.

9 4. Flat Holm has a range of buildings including:

Flat Holm Farm House

5. Records show that monks from St Augustine's Abbey in Bristol established a dairy farm and grange on the island after Flat Holm was granted to them by Robert, Earl of Gloucester in 1150. The farmhouse has been renovated by the Flat Holm Project and is now used as accommodation for two Wardens and visitors staying on the island.

Lighthouse and Station

6. Flat Holm Trinity House Lighthouse is 30 m (98 ft) high and 50 m (160 ft) above mean high water. It has a 100 watt lamp that flashes white and red every ten seconds, with a range of up to 56 km. The construction of the tower finished in 1737 and it began operating on 25 March 1738. The lighthouse was renovated in 1929 to include accommodation for up to four keepers. This lasted until 1988, when the lighthouse became fully automated and the keepers were withdrawn. In 1997 the light was modernised and converted to

10 solar power. This Grade II listed building is now monitored and controlled by the Trinity House Operations Control Centre at , in Essex.

7. Built by Trinity House in 1906, the Foghorn Station along with the ’s Cottage are Grade II listed buildings. The siren was originally powered by a 15 hp (11 kW) engine, which gave two blasts in quick succession at two-minute intervals that could be clearly heard by people living on both coasts. Volunteers from the Flat Holm Society, with help from the Prince's Trust, restored the horn and engines in the 1990s. The Foghorn Station was officially reopened by the Welsh Secretary and the Welsh Assembly First Secretary in May 2000 when the foghorn was sounded for the first time since 1988.

Batteries and Barracks

8. Flat Holm was first fortified in the 1860s and comprises of a series of gun emplacements built to protect Bristol and Cardiff across the channel. There are four battery sites, which are all Scheduled Ancient Monuments, on the island:

 Castle Rock Battery: three guns in two Moncrieff pits and one open-backed pit with adjacent underground ammunition store.

 Farm House Battery: two guns in one full Moncrieff pit and one open-backed pit.

 Well Battery: one gun in an open-backed Moncrieff pit. The gun was removed by Army Apprentices in 1964.

 Lighthouse Battery: three guns in two full Moncrieff pits and one open- backed pit with adjacent underground ammunition store.

9. In 1869, stone barracks were built to sleep up to 50 men. The barracks for the battery were located near the southernmost battery emplacement. Other fortifications included a large tiled water catchment area, an underground storage tank, an administrative building and a secure store. A "ditch-and- bank" system served to protect the Lighthouse Battery from cross-island attack. The barracks were vacated in 1901 and the buildings have now been restored by the Flat Holm Project for educational and visitor use.

11 10.The WWII fortification of Flat Holm began in 1941 with two batteries under anti-aircraft command established by the end of 1942. These gun Batteries have since been recognised for their important to local history and have been designated Scheduled Ancient Monuments.

Radar Station

11.A World War II station was also placed in the centre of the island. The structures formed part of the Fixed Defences, and protected the Atlantic shipping convoys between Cardiff, Barry, and Flat Holm.

Flat Holm Cholera Hospital Ruins

12.In July 1883, the steamship Rishanglys left three seamen on the island who were believed to be suffering from cholera, one of whom subsequently died. In 1896 the Marquis of Bute, then-owner of Flat Holm, agreed to lease all the land that was not already in use by the military or the lighthouse to the Cardiff Corporation for £50 per year. The corporation then built a permanent sanatorium on the land for use by cholera patients. The Flat Holm sanatorium is unique in being the only Victorian isolation hospital sited on a British offshore island. The hospital finally closed in 1935 and has remained derelict since. Both the hospital main block and laundry block are Grade II listed buildings and are on the Buildings at Risk Register.

13.In May 1897 Kemp and Marconi successfully transmitted the first ever wireless messages to go over the sea, between Flat Holm and Lavernock Point witnessed amongst others by Professor Slaby, on behalf of the Kaiser. The morse slip, “Are you ready?” sent on 13 th May, signed by Signor Marconi and George Kemp.

14.The Task Group were informed that in recent years many of the buildings on the island have been renovated to add value to the visitor experience including the Farmhouse dormitories for outdoor education residential visits, and the Barracks. The latter now houses a small museum, gift shop and the

12 most southerly pub in Wales. In addition the Foghorn Cottage has been renovated in partnership with John Lewis. The self catering cottage will be furnished to a high standard to encourage new visitors to experience a longer stay on the island.

Management

15.In 1975, the County Council leased the island for the next 99 years. In 1982 the Flat Holm Project was established to conserve the island and provide access for visitors. In March 1995, the County Council agreed to obtain Flat Holm through a 50-year lease from the starting on 12 December 1995. Flat Holm is now designated as a Local Nature Reserve, as stipulated in that lease. It is managed by Cardiff Council through The Flat Project. The Council own the freehold for the island and the land between low and high water Holm Project. The marks includes foreshore and slipway is Leased from the Crown Estate for 50 years from 1/3/1995 at £380 p.a. The lease expires in 2045 and is easily renewable.

16.Cardiff Council took over the management of the island in 1997.

17. Members were informed that the Flat Holm Project has two main aims:

– Conservation of the important natural and cultural features – Development of the island as a public resource

18.Members were informed of the staffing levels for the Flat Holm Project. The team comprises of 5 full time staff (1 Manager, 1 Warden 1 Coxswain and two Assistant Wardens (Conservation and Education), casual staff and six full time Voluntary Trainee Assistant Wardens. Members noted that the Flat Holm Manager’s tasks are not solely dedicated to the project and that historically efficiencies had been gained via the employment of a Coxswain on a casual basis.

19.Flat Holm is described breifly within the business plans related to the Harbour Authority, and a forward plan exists for Flat Holm. Public comments relating to

13 the Council’s management of the island indicate that there is limited awareness of the forward plan. The following priorities for development are contained within the forward plan:  Improve tourism offer  Opening of the Lighthouse Cottage  Explore ‘glamping’ options  Improve the range of merchandise on sale in the shop  Increase food and drink offer  Replace landing structure.

20.Members were informed that the work of the Flat Holm Project is supported by the registered charity the Flat Holm Society that helps protect the wildlife and the historic environment of Flat Holm island. The formal aims of the Society are to secure and promote the conservation, development and improvement of Flat Holm and its features of general public amenity or historic, ecological or public interest, provided that the works of the Society relate to land over which public access is assured and are in accord with any statutes, legal conditions or bye-laws which apply.

21.The Society plays an important role in supporting the Project by fundraising and by supplying volunteer labour, both general and specialist. The following organisations and local businesses support Flat Holm Society.

 Environment Wales’ grant enabled the replacement of fencing in the island’s paddock areas.

 Barry Town Council contributed funds for the purchase and maintenance of the island’s tool stock.

22.The amount of money given to the Project is an average of £4k per annum, in the form of purchasing materials and equipment. The total volunteer labour amounts to many hundreds of man hours in maintenance and construction which if costed would be approximately £30k. This includes volunteer tour guides, and promotion of the island at shows, local organisations (by way of talks) and in the press. The charity are able to apply for grants that the Project does not have access to. In addition the Society have a website

14 http://flatholmsociety.org.uk/ that provides an additional channel for communication, information and marketing enhancing Flat Holm’s profile.

23.Flat Holm island has net base budget funding of approximately £168k from Cardiff Council and an income target £55k. Income is generated via public visits to the island, overnight stays and course fees from events such as painting and photography workshops. Whilst the Project has increased its income from £13k in 1997 to £67k in 2011 (a 415% increase) its income only accounts for approximately 25% of the budget, which has been identified by management as a risk factor for the future.

24.The table below highlights the financial summary for the island from 2009 to April 2012. Costs relating to energy have reduced due to the installation of sustainable technologies that are also showcased as a part of the visitor experience.

Flat Holm Island Financial Summary 2009/10 - 2011/12

2009-10 2010-11 2011-12 £ £ £ Income Grants 7,145 4,000 8,000 Sale of Food 1,317 1,390 6,950 Hostel Charges 5,933 8,158 7,030 Boating 30,129 25,184 31,530 Educational Income 0 5,562 7,312 Donations 99 569 499 Other Income 6,087 7,979 6,145 Total Income 50,710 52,843 67,465

Expenditure Staff Costs 171,420 138,021 122,995 Repairs & Maintenance 1,146 7,266 50,387 Energy Costs 243 505 0 Insurance 4,947 3,817 2,529 Boat Running Costs 14,853 8,589 6,080 Hire of Transport 3,223 3,410 2,129 Equipment & Materials 15,262 22,980 19,747 Professional Fees 639 326 4,679 IT Costs 5,714 1,670 1,110 Transfer to Flatholm Reserve 0 14,034 0 Other Costs (416) 3,716 1,854

Total Expenditure 217,031 204,333 211,511 Net Expenditure 166,320 151,490 144,046 Budget Allocation 168,290 151,490 157,400 Variance Against Budget (1,970) 0 (13,354)

15 25.Whilst examining the financial summary Members noted the one off costs and the larger expenditure relating to the staff costs, boat running costs, repairs and maintenance. It was highlighted to the task group that there had been considerable expenditure on facilities recently relating to fire safety (fire alarms and sprinklers), a cross island drainage system and essential maintenance of the water system.

26.Members were also informed of the improvements to energy efficiency that significantly reduced expenditure. The original power supply consisted of several diesel generators at different properties and unconnected to each other. In 2006, underground cables were installed to form a ‘mini-grid’ between the farmhouse, workshops and the fog horn keeper's cottage. This was powered with a (13.5 kW) inverter/charger system located at the farmhouse with the farmhouse diesel generator as back-up.

27. In 2007, the system was extended to include a battery bank charged by two photovoltaic solar arrays, and by a 6 kW wind turbine sited at a redundant telecommunications tower on the high point of the island. The island is now able to provide approximately 90% of its own energy requirements.

28.The income levels were also discussed (see the graph below) and Members noted the seasonal nature of the trends and that decline in performance in 2012-2013 was due to adverse weather conditions and water supply issues.

Flat Holm Income

£14,000.00

£12,000.00

£10,000.00

£8,000.00 s 2010 / 2011 £ e 2011 / 2012 m o

c 2012 / 2013 n I £6,000.00

£4,000.00

£2,000.00

£0.00 1 2 3 4 5 6 7 8 9 10 11 12 Months April to march

16 29.In discussing the make up of the income Members noted that a significant majority of the revenue was derived via day visits with food and non educational residency being the significantly lower (see graph below). The costs for a day adult traveller are £22 £11 for children and £60 family ticket, Landing fees are charged to visiting boats bringing passengers at a cost of £6pp..

30.It was pointed out to Members that in recent years a number of developments have been undertaken to improve the visitor experience and generate income on the island. These include the development of a larger gift shop in the Victorian Barracks and developing the range of gifts and books on offer, opening of the most southerly pub in Wales, and selling the guidebook to visitors during their welcome talk when they arrive on the island. In addition, plans were in place to sell a range of sandwiches, cakes and light snacks. However due to the essential 10 year maintenance on the water system reducing the availability of water (needed to comply with public protection and environmental health requirements) the introduction of this commercial improvement was delayed and would be introduced in the 2013 visitor season.

31.Public comments relating to catering and the gift shop’s offer highlight the demand for improved provision of snacks both on departure and on the island

17 and the need for an improved approach to sales (in particular the selling of the guidebook) as it was felt that opportunities were missed in increasing sales at departure. On visiting the island the Task and Finish Group observed the welcome briefing and noted that the Flat Holm Guides were highlighted by staff. Members also examined the Flat Holm Shop and some public responses highlighted the need for a wider range of products for sale.

32.In 2010, a decision was taken to introduce conservation farming onto the island as a means to generate income from the already present livestock needed to carry out essential grassland management. Breeding the flock of sheep and raising three Tamworth pigs enabled the meat from the animals to be sold to interested parties thereby generating an additional income for the island. However, issues with lead contamination resulted in the farming project to be non-profit making due to veterinary expenditure and other mitigation measures. Analysis has also taken place to determine the source of the contamination with the voluntary assistance of Cardiff University. .

Visitor Information

33.Given Flat Holm’s reliance on visitors Members of the Task and Finish group considered the visitor related statistics. The island receives on average 2000 visitors and tourists every year. Under the current marketing and transport arrangements this number appears to be relatively consistant, with bad weather and water supply issues resulting in a decline in visitors this financial year to date thus adversely affected the island’s income. The graph below highlights Flat Holm visitor statistics from 2002-2011 with 2006 being the most successful year.

18 34.Members examined the cyclical nature of the visitor numbers with the winter months with the lowest visitor numbers as illustrated in the graph below.

Flat Holm Visitor Numbers

600

500

400 s r o t i

s 2010 / 2011 i V

f 300 2011 / 2012 o r

e 2012 / 2013 b m u N 200

100

0 1 2 3 4 5 6 7 8 9 10 11 12 Months March to April

35.When examining Flat Holm usage by group Members noted that day visits formed the majority of the usage. In 2011-2012 educational and non residency formed less than 15% of the usage.

19 36.Members discussed how to increase the levels of visits, and issues relating to transport were raised. This will be discussed in later sections.

37.The task and finish group heard that over the past 30 years the Project team have worked to develop the nature conservation of the island, improve the grassland, monitor the wildlife as part of national and local recording schemes, and have renovated numerous buildings which are now for staff and public use including the farmhouse, Barracks and Driftwood accommodation block enhancing the public’s experience when visiting Flat Holm.

38. Visitor satisfaction data is obtained via a questionnaire collected before the visitor leaves. Questions include speed and quality of booking arrangements, welcome and safety, enjoyment, value for money and interest. The results in the graph below represent customer satisfaction in terms of combined “excellent” and “good” answers. Members were impressed with the high levels of satisfaction.

Customer Satisfaction

100 98 96 Percent 94 92 90 88 86 2 2 2 2 2 2 2 2 2 2 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 1 84 1 2 3 4 5 6 7 8 9 0 -2 -3 -4 -5 -6 -7 -8 -9 -1 -1 0 1

39.Members were also infomed that the island had gained VAQAS – Visitor Attraction Quality Assurance Scheme status. Visitor attractions such as Flat Holm achieve the VAQAS quality grading from Visit Wales. It is Visit Wales' quality assessment service for all types of visitor attractions.

40.Feedback from the expressions of interest exercise also indicated high levels of satisfaction with no negative comments on the island’s offer, the staff or volunteers.

20 41.The few comments relating to the land based management are highlighted below and relate to security, resources and strategic planning.

Flat Holm Transportation

42.Members were informed that the project team operates the Lewis Alexander , a purpose-built boat, specially designed with a reinforced hull, for the crossing to Flat Holm. The boat is able to carry up to 45 passengers and essential supplies to the island.

43.Booking arrangements are highlighted on the Flat Holm website, with the Harbour Authority (Flat Holm Project) administering the bookings. The Lewis Alexander departs from Barrage South and parking is provided as a part of

21 the booking fee. If cancellations occur Members of the public are contacted usually the day before travel but sometimes on the morning of travel.

44.Members who undertook the visit to the island found that the boat landed by simply driving up a ramp up the beach as the boat was purpose built to be able to land in this manner. The landing stage at Flat Holm is a timber landing structure that is vulnerable to the weather. It allows for three hours landing due to the tidal range. The landing stage has nine pillars remaining at present and requires investment to increase that number to 15 which is estimated to increase the opportunities to land by a further two and a half hours in some months. Some grant monies are available to fund some of this work.

45.Members examined the the occupancy on the Lewis Alexander and found that there were five months during the year that scheduled regular trips were not available due to the seasonal weather conditions. In addition Members noted that due to the seasonal nature of day trips the occupancy rates for the Lewis Alexander peaked within the summer months.

22 46.Members were informed that certain weather conditions made the landing unsafe. Cancellations were also made relating to undue rolling and pitching due to the weather. It was noted that trips were not possible if the south westerly winds reached Force 5 or if the north easterlies reached Force 4 as it affected the safety of the landing. The experienced Coxswain was responsible for assessing the safety risks and in making the decision to cancel. The Coxswain was also responsible for undertaking educational trips around Cardiff Bay.

47.Members examined the cancellation rates for the past two years and found a high rate of 45% in 2012 when compared with 2011, mainly due to the weather. It was noted that in the Flat Holm Project’s history the best performance was 100 trips in a season but this did not yield 4500 visits due to the lower level of occupancy rate.

Percentage of Boat Cancellations

40% 36% 35% 30%

e % Due to g 25% 22% a

t Weather

n 20% e

c % Other r 15% e 9% issues P 10% 6% 5% 2% 0% 0% 2012 2011 2010 Years

23 48.Members were informed that the Lewis Alexander (leased from the Council) is 25 years old and requires maintenance to the hull costing approximately £10,000. The engines require replacement that would require considerable investment of approximately £20,000.

49.In discussing the opportunities to increase day trips Members were informed that in 2010 proposals were developed to introduce commercial boat operators to provide transportation to the island. Proposals highlighted that about 100 day trips a year were possible, limited by the ’s tidal range and weather with a maximum of 100 day visitors. At the time concerns about the proposals were highlighted by Flat Holm Society relating to the balance between commercialisation and environmental protection.

50.In the beginning of the 2011 season a commercial operator located in Weston-Super-Mare transported visitors to Flat Holm from the English side of the Channel. This has opened up a potentially new market and whilst it has been slow to start he has been successful in bringing a number of trips during the 2011 and 2012 seasons contributing to the overall visitor numbers (214) and income generated whilst on the island. The boat operated by this supplier has the capacity to carry 100 members of the public and as it is a landing craft it does not require the use of Flat Holm’s landing structure landing directly on a shingle beach.

51.Public comments relating to the transportation are highlighted below and relate to the provision of ‘ribs’ 1 for staff, the appropriateness of Barrage South as the departure point and the need for the landing structure to be improved. Other public comments relating to the transportation were on the cost of the travel, requesting more provision for discounts.

1 A rigid-hulled inflatable boat, (RHIB) or rigid-inflatable boat (RIB 24 52.Information from commercial suppliers highlight that there is public demand to visit Flat Holm based on public enquiries. Companies report that they regularly receive enquires regarding the possibility of a landing trip out to Flatholm island and that the enquiries come all year round and from all different age groups and backgrounds wanting to visit the island for a variety of different reasons. One company highlighted that the demand could be as high as 5000 passengers per year. Concerns were raised regarding levy charges that an operator might have to pay a considerable levy to the Council to run a service. In addition, during 2012 season it appears that there has been limited encouragement of commercial suppliers landing at Flat Holm due to the issues with water supply.

53.Landing and cancellation issues have been highlighted by one supplier who stated:

‘We have done several trips with groups to the island and access/egress is again always an issue. Last year we abandoned several tours because although it was safe to land, we could not guarantee a safe egress. The existing jetty is not suitable for large vessels due to proximity of castle rock, the approach is via fast flowing water anything up to 10/12KTS.....get that wrong and you will be swept onto castle rock immediately with no time to correct. Coal beach has a good sweet point and the rock wall to the east could be made into a landing easily for displacement vessels to access the island at all states of tide’.

25 54.There are a number of options for water transport to the island ranging from fast small ribs to larger landing craft. The information received highlights the need for careful consideration of safety issues in the provision of water transportation to Flat Holm. For example there may be risks in grounding in waters of poor visibility, risks of engines being swamped from astern by swells and the waters around both islands are fast flowing in the spate and exhibit unusual characteristics, such as double reflected wave action at certain states of tide and wind.

55.Members noted that Flat Holm boasts two helipads and considered the posibility of the Project working to attract helicopter trips to the island as a part of a package. It was noted that the costs of such provision were high ranging from £480 for four passengers, £70 per person.

Water Supply

56.The task and finish group heard that Flat Holm has no natural water source on the island and as a result rainwater is collected from the roofs of the buildings. This is stored in the underground Victorian water tank and pumped through a UV filtration system.

57. The 2010 Private Water Supplies (Wales) Regulations have led to the need to improve the storage of water on the island. To make sure that water is used in the accommodation and for producing food is of the high quality needed to protect public health, the Government has set legal quality standards for all water used for drinking, washing and cooking or used in businesses which produce food or drink. These are the same standards set for mains water supplies.

58.The combination of the regulations and a 10 yearly maintenance regime have seen Flat Holm’s water systems improve with the tank being sealed and new UV filtration systems being installed during 2012 season. This has hampered efforts to improve the offer on Flat Holm due to there being little water on the Island and Members were informed of the considerable efforts undertaken to supply the island’s water needs by boat.

26 59.These efforts included a newly installed water pipeline and the possibility of boreholes. Members were informed that the transportation of drilling equipment to the island would require significant investment

Marketing

60.The task and finish group were informed that annual marketing plans have historically been developed to improve the island’s footfall and income. The island has a designated website www.flatholmisland.com with information on bookings etc. It was noted that a range of events and activities have been developed to increase income. These included:

 Overnight stays  Christmas breaks  Corporate and team building packages  Well established education programmes.

61.Whilst visiting Flat Holm Members noted that it did not hold a marriage license. Members noted that wedding facilities would be an added offer to the Island however issues with reliability of transportation would need to be considered to avoid late cancelations.

62. The following marketing activity is also carried out:

 Attendance at events e.g. Show, Vale of Glamorgan Show, Fete of the Earth, Wales Coast Path opening  Radio campaigns i.e. competitions  Promotion on the Cardiff Harbour Authority Onelan screens in Norwegian Church and Cardiff Bay Visitor Centre  Education editorial in specialist magazines e.g. Primary Times and Buzz  Events boards around Cardiff Bay  10k+ Leaflets printed annually  Dedicated website – flatholmisland.com  Radio campaigns i.e. competitions  Adverts in Independent Youth Hostel Association publication 27 63.More specifically members were informed that in order to promote the island, a dedicated Flat Holm leaflet was produced annually and 10,000-15,000 distributed across South Wales utilising specialist distribution companies to reach outlets including service stations, hotels and other attractions. Social media applications have been developed over the past 18 months to include both Facebook and Twitter pages which are regularly updated.

64.When speaking to visitors to the island Members found that awareness of Flat Holm had been raised via fairs and the internet.

65. The Flat Holm Project staff have also provided presentations and talks to local groups including WIs, local history societies, Probus groups, University of the Third Age etc. These have generated interest and bookings from local groups.

66.Press releases are regularly sent out via the Council’s Central Communication’s team, to the press highlighting information on interesting special events and the work of the island. Many of these press releases have generated interest including news stories, radio interviews, newspaper articles and more specialist TV coverage including Countryfile, The One Show and Weather Man Walking.

67. Accommodation on the island is publicised through the above means and also through the Independent Hostel Association. In addition, partnership working is important and Cardiff & Co and South Wales Attractions Partnership are utilised to promote Flat Holm through their combined marketing power of promotion for the South Wales region including website presence and booklet listings.

28 68. Public comments related to marketing are highlighted below:

Island Accommodation

69.Members were briefed and visited the accommodation available on the island to appraise themselves of the standard and potential for development. The accomodation of note included “Driftwood”, the Farm House bunkhouse style accomodation.

70.One empty but water tight location existed next to the Driftwood accommodation and Members viewed the works being undertaken largerly by volunteers on a limited budget, and with donations from John Lewis to upgrade the Fog Horn Cottage for self catering accomodation. Members also viewed the lighthouse accommodation and were of the view that there would be demand to stay in such a unique property as in other locations across the UK. Members were advised that Trinity House owned the lighthouse and formal negotiations and considerable investment would be required to develop the lighthouse accommodation.

71.‘Glamping’ options were discussed as a cheaper alternative to developing redundant buildings. The glamping or luxury camping industry is an expanding area in the UK, Europe and North America, with people keen for unique experiences in special locations.

29 Education Provision

72.Members were informed of the education provision Flat Holm has to offer. Provision is catered around the type of visit ( day trip, overnight stay, weekend, midweek or full week visit) and there are three residential education programmes suitable for Key Stages 2 - 4. Choose from:

 Island Explorers  Island Energisers  Island Ecologists.

73.Bespoke packages are also available. The island offers a range of individual activities covering KS2 and above, delivering programmes at GCSE and A Level covering biology, geography and environmental science. Day visits include a general tour of the island exploring its history and wildlife. The island welcomes university groups to carry out their own programme of studies in a range of areas e.g. biology, marine studies, geology, art.

74.The task group were informed that marketing to schools and other educational establishments took the form of an annual Teacher Placement Day held on the island for Cardiff and Vale Schools, in conjunction with Careers Wales. This practical day provided teachers with curriculum based activities and resources that can be used in the classroom. Teachers have opportunities to:

 Compare the ecology of a sheltered and exposed shore & identification of rocky shore species  Explore Flat Holm's geology, identify fossils and look at the coastal processes and geological changes  Investigate the effects of litter on the environment through a ‘litter timeline'  Calculate their global footprint and look at ways to reduce this at home  Learn about Flat Holm's Educational programmes and facilities.

75.In addition a ‘Teachers Pack’ is distributed to Cardiff schools and is also downloadable from the website. A considerable number of educational providers responded to the request for infromation and the figure below

30 represents the type of responses relating to the island’s offer and opportunities for development.

76.More informal educational/developmental opportunities are provided at the island via volunteering and Members were informed of the many volunteering opportunities that existed for example refurbishment, bird ringing, out door maintenance and environmental field work experience. The Voluntary Assistant Warden Scheme which takes up to 12 full time volunteers each year has provided many with the foundations to develop careers in conservation.

77.Members discussed the potential for enhancing Flat Holm’s offer further by becoming a recognised field study centre, embedding itself more fully in the environmental related GCSE and A Level curriculum, and linking with the Centre for Alternative Technology.

31 Wider Partnerships

78.During the inquiry Members were informed of the range of voluntary organisations that the Flat Holm project had worked with, e.g. The RSPB. Public suggestions for improvement indicated that there may be opportunities to involve other organisations in the management of the island. Suggestions included bordering Councils, environmental related charities and the educational establishment (universities and Techniquest). In discussing this Members were informed that there was limited demand from ornithologist groups.

32 INQUIRY METHODOLOGY

79.The Economy & Scrutiny Committee applies a project management approach to its inquiries including mechanisms to consistently prioritise topics suggested for scrutiny, scoping reports and project plans. The aim of these is to ensure there is a dialogue with the service areas involved in the scrutiny process with the ultimate aim of improving overall service delivery and enabling effective scrutiny.

80.During the inquiry the Committee heard evidence from the following witnesses:

 Natalie Taylor, Flat Holm Manager  Simon Howell, Operational Manager, Cardiff Harbour Authority  Ross Clifford, Education Warden  Sam Whitfield, Conservation Warden.

81.A press release was issued and ITV Wales covered the story in October 2012, interviewing Councillor Hawkins on Wales Tonight. The story was undertaken requested written evidence. Requests were also issued on the Flat Holm island website and the Council’s Twitter site.

Councillor P. Hawkins interviewed on Flat Holm

33 82.Written evidence was received from 45 members of the public and the following organisations:

 Flat Holm Society  Cardiff University  Countryside Council for Wales  Aqua Bus  Barry Radio Society  Flat Holm Society Members  Glyn Derw High School  Careers Wales  Lansdowne Primary School  National Trust Bristol Centre  Bay Island Voyages  MW Marine  Cardiff Sea Safaris.

83.A site visit was also undertaken by Councillors that examined the user experience, facilities and the accommodation.

Councillors D. Ali and M. Javed outside the Cholera Hospital ruin

LEGAL IMPLICATIONS

84.The Scrutiny Committee is empowered to enquire, consider, review and recommend but not to make policy decisions. As the recommendations in this report are to consider and review matters there are no direct legal implications. However, legal implications may arise if and when the matters under review are implemented with or without any modifications. Any report 34 with recommendations for decision that goes to Cabinet/Council will set out any legal implications arising from those recommendations. All decisions taken by or on behalf the Council must (a) be within the legal powers of the Council; (b) comply with any procedural requirement imposed by law; (c) be within the powers of the body or person exercising powers of behalf of the Council; (d) be undertaken in accordance with the procedural requirements imposed by the Council e.g. Scrutiny Procedure Rules; (e) be fully and properly informed; (f) be properly motivated; (g) be taken having regard to the Council's fiduciary duty to its taxpayers; and (h) be reasonable and proper in all the circumstances.

FINANCIAL IMPLICATIONS

85.There are no direct financial implications arising from this report. However, financial implications may arise if and when the matters under review are implemented with or without any modifications.

35 COMMITTEE MEMBERSHIP

Councillor Craig Williams (Chairperson)

Councillor Dilwar Ali Councillor Joe Boyle

Councillor Peter Bradbury Councillor Phil Hawkins Councillor Gareth Holden

Councillor Mohammad Javed Councillor Georgina Phillips Councillor Christopher Weaver

36 COMMITTEE TERMS OF REFERENCE

To scrutinise, measure and actively promote improvement in the Council’s performance in the provision of services and compliance with Council policies, aims and objectives in the area of economic regeneration.

The Committee is responsible for looking at the following areas: . Cardiff Business Partnership . Cardiff & Co Marketing Initiative . South East Wales Economic Forum . Economic Strategy & Employment . European Funding & Investment . SME Support . Cardiff Harbour Authority . Lifelong Learning . Leisure Centres . Sports Development . Parks & Green Spaces . Libraries, Arts & Culture . Civic Buildings . Events & Tourism . Strategic Projects . Innovation &Technology Centres . Local Training & Enterprise

To assess the impact of external organisations including the National Assembly for Wales, Assembly Sponsored Public Bodies and quasi-departmental non- governmental bodies on the effectiveness of Council service delivery.

To report to an appropriate Executive or Council meeting on its findings and to make recommendations on measures, which may enhance Council performance in this area.

37 For further Information please contact: Stephen Davies Principal Scrutiny Officer [email protected]

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