(Public Pack)Agenda Document for Cabinet, 23/09/2020 16:00

Town Hall, St. Helens, Merseyside, WA10 1HP

Telephone: 01744 673219 (Joanne Griffiths MBE)

Agenda CABINET

PUBLIC MEETINGS ARE WEBCAST (LIVE STREAMED)

Date: Wednesday, 23 September 2020 Time: 4.00 pm Venue: Virtual

Membership

Councillors: Baines (Chairman), Bell, Bond, Bowden, Burns, Charlton, Gomez- Aspron, Groucutt, McCauley and Quinn

Item Title Page

1. Apologies for Absence

2. Minutes of the meeting held on 15 July 2020 3

3. Declarations of Interest from Members

4. Issues Arising from Overview and Scrutiny

(a) Apprenticeships for Children We Look After Task Group Interim Report 9 (b) Council's Use of Paper and Plastics Task Group Report 35 (c) Spotlight Review of County Lines Issues in St Helens Scrutiny Task Group 67 Report 5. Performance Report - Quarter 1 - 2020/21 93

6. Peer Review/One Council Update 139

7. Replacement of the Council’s Human Resources and Payroll Systems 159

8. Test and Trace Model for St Helens Borough Council including the Cheshire 167 & Merseyside Hub

9. Proposals to Continue the PAUSE Programme in St Helens 175 Item Title Page

** 10. Local Plan 219

* 11. Highways Programme 2020/21 271

* 12. Town Deal Accelerated Fund and Liverpool City Region Town Centre Fund 281 Update

13. Ofsted Monitoring Report 291

* 14. Development of the Red Bank Educational Unit and Relocation of Penkford 305 Special School

15. Exclusion of the Public

Recommended that the public be excluded from the meeting during consideration of the following items for the reason stated:

Item Reason (under the Local Government Act 1972)

16 Information relating to the financial or business affairs of any particular person (including the authority holding the information) (Para 3 of Schedule 12A)

PRIVATE AGENDA

* 16. Development of the Red Bank Educational Unit and Relocation of Penkford 319 Special School (Appendix 1)

* Key Decision which is within the Public Notice of Key Decisions

** Key Decision which is not within the Public Notice of Key Decisions and will therefore be dealt with under the General Exception Provisions within the Constitution. CABINET 2

At a meeting of Cabinet held on 15 July 2020

(Present) Councillor Baines (Chairman) Councillors Bell, Bond, Bowden, Burns, Charlton, Groucutt, Murphy, McCauley and Quinn

------

123 APOLOGIES FOR ABSENCE

No apologies for absence were received.

124 DECLARATIONS OF INTEREST FROM MEMBERS

Item Title Member(s) Interest 11 Parkside Planning Inquiry Councillor Baines Declared a prejudicial interest in the item

125 MINUTES

* Resolved that the minutes of the meeting of the Cabinet held on 24 June 2020 be approved and signed.

126 PERFORMANCE REPORT OUTTURN 2019/20

A report was submitted which provided an analysis of performance for each of the Council’s Portfolios. The report was grouped by individual Portfolio with each Portfolio section containing the following:

i) Key Priorities; ii) A summary of progress in terms of delivery against key priorities; iii) A performance indicator tracking table showing performance against indicators in the year to date, direction of travel and comparative performance; and iv) A summary of progress against key performance indicators, what is going well, what is proving challenging and what is being done to improve performance. Future performance reports would be structured to reflect performance against Council priorities. The Performance Indicator and Target Setting report to Cabinet at its meeting held on 27 May 2020, alerted Cabinet to the fact that the Covid-19 pandemic significantly impeded the Council’s ability to set meaningful targets for 2020/21 and review its measures of performance.

Although the impact on outturn performance for 2019/20 of the Covid-19 pandemic was limited, the majority of indicators were now being impacted to varying degrees by the current situation. Work was now beginning to be undertaken to ensure that future performance management arrangements form a part of the Council’s reset and recovery activity.

3 2 CABINET

This work would involve a review of the draft Council Plan, which would incorporate reset and recovery activity within the associated action plan, as well as a revised performance framework with measures and targets reflecting the desired outcomes of the new plan. This revised performance framework would form the basis of future performance reporting to Cabinet over the course of 2020/21.

The Council remained committed to the regular monitoring and reporting of performance information to ensure the delivery of efficient, effective and value for money services that meet the needs and expectations of the customers and communities it serves.

* Resolved that:

(1) the current performance position be noted; and

(2) Cabinet to work with appropriate Executive Directors to further address any deficits in current performance.

127 INTRODUCTION OF A MUTUALLY AGREED RESIGNATION SCHEME (MARS)

A report was submitted which sought approval of a Mutually Agreed Resignation Scheme (MARS), in order that it can be used to over specific periods of time, to be determined by the Chief Executive, where the need to address identified budgetary issues arises.

The MARS has been developed to offer an additional tool that could be used to help the Council meet savings identified as part of its budgetary strategy.

Cabinet were informed that the Council had a range of policies and procedures that allow employees to exit the organisation, but many were linked to statutory schemes such as redundancy or Local Government Pension Regulations. The MARS would be an addition to these policies and would differ in that it was non contractual and voluntary for employees to apply. It also had no pension implications and was more flexible in use for the Council as and when it was required.

The Scheme was attached at Appendix 1 to the report.

* Resolved that the introduction of a Mutually Agreed Resignation Scheme (MARS) be approved.

128 BUSINESS CASE FOR MENTAL HEALTH SUPPORTED TENANCY PROVISION

A report was submitted which sought approval to progress the development of a Supported Tenancy Scheme for people requiring support with Mental Health needs within the borough.

Cabinet were informed that a working group between the Clinical Commissioning Group (CCG) and the Council had been brought together to look at Mental Health provision within the borough; in particular in relation to improving the throughput of mental health service users from secure provision to community settings.

This had been an issue for St Helens in that service users get ‘stuck’ in high cost secure provision due to the lack of adequate capacity within the borough for alternative, more

4 CABINET 2

appropriate, care settings in the community. There was also a health system pressure identified from this category of service users presenting at A&E. The proposed development would offer a mix of short-term tenancies and a crisis provision. * Resolved that:

(1) the development of a Supported Tenancy Scheme be entered into for people who need support with Mental Health issues within the borough with St Helens CCG and Torus; and

(2) £30k of capital investment in the Mental Health Supported Tenancy Scheme be committed with Torus and St Helens CCG.

129 NEW EDUCATIONAL PREMISES FOR ASHURST PRIMARY SCHOOL

A report was submitted which informed Cabinet of the increased estimated cost in respect of the construction of new educational premises at Ashurst Primary School.

At its meeting held on 18 September 2019, Cabinet approved that new educational premises should be constructed on the existing site of Ashurst Primary School. The construction of a new school was proposed in order to address suitability issues (including undersized classrooms), a smaller than recommended hall, a lack of circulation routes, and the condition of the original pre-cast concrete roof panels that were allowing significant water ingress.

Kier North West Ltd had been appointed through the Scape Group framework to develop the scheme. The initial estimated cost of the scheme was £6.022m. Following additional site surveys, cost reviews and design changes, the estimated scheme cost had increased to £7.177m (an overall increase of £1.155m). Additional provision had been made for potential costs associated with COVID-19 (e.g. changes to construction practices to maintain social distancing), and the risk of additional works being required which cannot be anticipated or finalised at this stage (e.g. asbestos, ground conditions due to historical mine workings etc).

The updated costs in respect of the scheme were set out in the report, along with the original estimated cost that was presented to Cabinet on 18 September 2019.

The Cabinet was informed that the decision was a Key Decision and details had been published in accordance with the provisions within the Constitution.

* Resolved that:

(1) the allocation of £1.155m of currently uncommitted funding within the Children’s Services capital programme in respect of the increased estimated costs associated with the construction of a new school on the Ashurst Primary School site be approved; and

(2) a planning application be submitted in respect of the proposed construction of the new school premises. The process will include a public consultation.

5 2 CABINET

130 SUPPORTED LODGINGS

A report was submitted which sought approval to expand the Council’s existing supported lodgings arrangements for children who were leaving care. This would enable more placements to be provided. In addition, the provision would be tiered so that support was available for young people with different levels of need.

It was proposed that the existing contract for the provision of supported lodgings was amended to reflect the expanded service specification. It was also proposed that the contract management and monitoring arrangements transfer from the Place Services Department, where those functions were currently undertaken, to Children’s Services. This would enable Children’s Social Care to directly oversee and monitor the performance of the provider and ensure the provision meets the needs of care leavers.

The Cabinet was informed that the decision was a Key Decision and details had been published in accordance with the provisions within the Constitution.

* Resolved that:

(1) the expansion of the existing supported lodgings provision for young people leaving care be approved; and

(2) the existing contract for the provision of supported lodgings be revised and expanded to reflect the new arrangements.

131 EXCLUSION OF THE PUBLIC

* Resolved that the public be excluded from the meeting during consideration of the following item for the reason stated:

Minute Reason (under the Local Government Act 1972)

132 Information relating to the financial or business affairs of any particular person (including the authority holding the information) (Para 3 of Schedule 12A)

Councillor Baines here left the meeting.

The following Minute was a Key Decision but notice had not been given in the Public Notice of Key Decisions. The Cabinet was able to make a decision in relation to the item as the provisions relating to the General Exceptions in the Council’s Constitution had been met.

132 PARKSIDE PLANNING INQUIRY

A report was submitted which provided details of the details of the ‘Call in’ by the Secretary of State of Housing and Local Communities relating to the former Parkside Colliery site, applications relating to Parkside Link Road (PLR) and the Phase 1 development of the Parkside site. A ‘call in’ meant that the decision on both applications would be taken by the Secretary of State following a Public Inquiry.

6 CABINET 2

* Resolved that: (1) the payment of all costs that are reasonably incurred by the Council in its capacity as Local Planning Authority in connection with the Parkside Call in Inquiry and the promotion of the Parkside Link Road application be authorised;

(2) the payment of all costs that are reasonably incurred by the Council in its capacity as Applicant in connection with the Parkside Call in Inquiry and the promotion of the Parkside Link Road application be authorised;

(3) the contribution of the sum set out in the report be authorised in order to contribute towards the costs incurred by the JV defending the planning application for Phase 1 development of the Parkside site at a planning inquiry; and

(4) the creation of a reserve of £100K be authorised for use in meeting any costs overrun associated with an extended planning inquiry.

Note: The Chief Executive and Executive Director, Place Services declared a personal interest in respect of Item 11, and in accordance with the Code of Conduct for Employees left the meeting.

-oOo-

7 This page is intentionally left blank 4a CABINET

23rd September 2020

Report Title: Apprenticeships for Children We Look After Task and Finish Group Interim Report

Cabinet Portfolio Developing Young People

Cabinet Member Councillor Sue Murphy

Exempt Report No

Reason for Exemption N/A

Key Decision No

Public Notice issued N/A

Wards Affected All

Cath Fogarty Executive Director of Corporate Services Report of [email protected] 01744 676885

James Morley Scrutiny Manager Contact Officer [email protected] 01744 676277

9 4a

Ensure children and young people have a positive start in life X

Borough Promote good health, independence and care across our communities priorities Please mark X Create safe and strong communities for our residents for any priority supported by Support a strong, diverse and well-connected local economy this report

Create a green, thriving and vibrant place to be proud of

Be a modern, efficient and effective Council

1. Summary

This reports on the Apprenticeships for Children We Look After Task and Finish Group’s report to Cabinet.

2. Recommendations for Decision

Cabinet is recommended to:

i) Receive the Apprenticeships for Children We Look After Task and Finish Group Interim Report for consideration; ii) Provide a response to the recommendations in the Interim Report to be presented to the Children and Young People Services Scrutiny Committee at its meeting on 7th December 2020.

3. Background /Reasons for the recommendations

3.1 The Children and Young People Services Overview and Scrutiny Panel commissioned a task and finish group to review apprenticeships for children looked after by St Helens Council as part of its work programme for 2019/20. The Task and Finish Group carried out research and held a meeting with officers to develop its conclusions and recommendations as set out in the report. The Task and Finish Group’s report was approved for submission to Cabinet by the Overview and Scrutiny Commission at its meeting on 20th July 2020.

3.2 Since the report was approved the Council’s Scrutiny Committee Structure has been amended, with responsibility for issues within the former Children and Young People Services Overview and Scrutiny Panel’s remit now within the remit of the Children and Young People Services Scrutiny Committee. As such, Cabinet’s response will go to the Children and Young People Services Scrutiny Committee.

3.3 The Council’s Constitution provides rules regarding the submission of reports by Overview and Scrutiny to Cabinet and the provision of a response to reports by Cabinet; as set out in Sections 8 and 9 of the Overview and Scrutiny Procedure Rules contained in Part 4 of the Constitution. In summary, the Constitution requires Overview and Scrutiny to submit reports to Cabinet, with a

10 4a response from a member of the Cabinet, nominated by the Leader, and officers to be provided within one month of receiving the report.

3.4 The report to the Cabinet meeting on 23rd September 2020 acts as the submission of the report to Cabinet. The response will be considered at the Children and Young People Services Scrutiny Committee meeting on 7th December 2020 where the nominated Cabinet Member and Officers will be requested to present the response.

4 Implications

4.1 Legal Implications - The recommendations for Cabinet to consider this report and provide a response adheres to the rules within the Constitution and comply with legislation relating to overview and scrutiny as outlined above.

4.2 Community Impact Assessment (CIA) Implications

4.2.1 Social Value - It is noted that the recommendations within the Task Group Report relate to creating and promoting employment opportunities for young people who are looked after by the Council or are care leavers.

4.2.2 Sustainability and Environment - It is unlikely that the implementation by Cabinet of any of the recommendations within the Task Group Report will result in impacts on sustainability or the environment.

4.2.3 Health and Wellbeing - As employment and career prospects can be seen as a key determinant of health (particularly mental health) then the recommendations within the Task Group Report relate specifically to supporting and promoting the health and wellbeing of children looked after by the Council and care leavers.

4.3 Customers and Resident - Implications on the customer/resident have not been taken into consideration for the purposes of submitting the Task Group Report to Cabinet for consideration. Children the Council looks after or care leavers who are residents may be affected by changes to service provision should any of the recommendations be accepted and implemented.

4.4 Asset and Property - It is not expected that the implementation of any of the recommendations within the Task Group Report would have an impact on the Council’s asset base or its occupation.

4.5 Staffing and Human Resource - Some of the recommendations within the Task Group Report would have workforce implications if accepted. Consultation with Senior HR Officers will need to take place if the relevant Task Group recommendations are accepted and implemented by Cabinet.

4.6 Risks - No risks have been identified within the Task Group Report. Consideration of risks should be carried out as part of Cabinet’s consideration of the recommendations within the Task Group Report to inform the decision to accept/support the recommendations or not.

11 4a 4.7 Finance - Some of the recommendations within the Task Group Report will have financial implications if they are accepted and implemented by Cabinet. These implications will need to be considered by Cabinet when deciding whether to accept/support the recommendations or not.

4.8 Policy Framework Implications - The Task Group Report includes some recommendations related to new or existing policies and strategies. If the recommendations are accepted/supported then Cabinet and Officers will be required to develop new policies/strategies or update existing ones.

5 Background papers

Overview and Scrutiny Commission Agenda and Minutes of meeting held on 20th July 2020

6 Appendices Apprenticeships for Children We Look After Task and Finish Group Interim Report

12 4a

Children and Young Peoples Services Overview and Scrutiny Panel

Apprenticeships for Children We Look After – Interim Report

March 2020

Task Group

Councillors – Trisha Long (Chair) Derek Long Linda Mussell Lisa Preston

13 1 4a

Table of Contents Page

Chair’s Foreword……………………………………………3

Introduction and Terms of Reference…………………….4

Method of Investigation…………………………………….4

Background………………………………………………….4

Findings………………………………………………………7

Conclusions………………………………………………….15

Recommendations………………………………………….17

14 2 4a

Chair’s Foreword and Acknowledgements

Apprenticeships are a key part of the offer for local children. The Children and Young People Services Scrutiny Panel therefore decided to focus on looking at ways of improving access to these crucial opportunities, especially for the children we look after as a Council.

Like many other authorities, St Helens has seen its number of looked after children rise considerably. Over 500 of our children and young people are under the care of the Council. Councillors have a duty as corporate parents to do everything in our power to ensure that children we look after are both safe and have the opportunity to reach their potential.

This includes looking at ways of supporting care leavers into either education, employment or training opportunities as they transition into adulthood. The Task Group welcomes the fact that different Council departments are working together to ensure care leavers are supported in this regard. We were encouraged to see the progress being made through the Ambassadors Programme and the good links being made with local businesses.

After children have left our care, it is vital that the Council, employers and other agencies work together even more effectively to ensure opportunities for our young people to have the best possible chance of success.

However, more still has to be done. A vital next step will be the production and implementation of a strategy that provides consistent support for care leavers to move into education, employment and training. The Council will also need to take into account the Government’s recently announced post-pandemic funding for young people.

This interim report is therefore a first step. There is much more ground to cover and we anticipate that the CYPS Scrutiny Panel will continue to cover this topic in 2020/21.

On behalf of my colleagues, Councillors Derek Long, Linda Mussell and Lisa Preston, I would like to thank officers from across the Council who contributed to this report. Their support and dedication to children we look after and our care-leavers should always be recognised and commended.

Councillor Trisha Long Chair of the Scrutiny Task Group

15 3 4a

1. Introduction and Terms of Reference

1.1. During the process of agreeing the Children and Young Peoples Services (CYPS) Scrutiny Panel Work Programme for 2019/20, Panel Members agreed to review previous scrutiny work on apprenticeships generally and consider in more detail how the Council could support children we look after to gain, maintain and complete apprenticeships.

1.2. The aims and objectives of the review were to:

 Review previous scrutiny work on apprenticeships;

 Consider the Council’s current offer for children we look after and the support offered to them;

 Consider the support provided by schools and colleges; and

 Investigate how employers within the borough can offer support for children we look after.

2. Method of Investigation

2.1. The Task Group commenced its review in February 2020. To develop this report, the task group met with various Council officers and considered the previous scrutiny work on apprenticeships; the support offered to children we look after by the Council, schools and college at present; and how employers within the borough could also support children we look after into employability.

3. Background

Apprenticeships

3.1. Apprenticeships are full-time, paid jobs which incorporate on and off the job training. There are over 200 different types of apprenticeship currently available in England, through existing apprenticeship frameworks available in 13 broad sector subjects. A successful apprentice will receive a nationally recognised qualification on completion of their contract.

3.2. For many years, St Helens Council has been supportive of apprenticeship (and graduate) positions within the authority. The current business administrator apprenticeship is a 12-month learning contract for 16-19-year olds. Apprentices are subject to standard HR procedures – such as the 37-hour working week – and are paid the national apprentice wage of £3.90 per hour. However, due to the Apprenticeship Levy that was introduced in 2017, the length of some learning contracts has been extended to 18 months.

3.3. Although apprentices can be recruited throughout the year, opportunities will only arise if there is a suitable role available that will develop a young person, and when a

16 4 4a

department/section has the budget available, given that there is no designated budget in each department for apprenticeships. Including salary, on-costs and other associated costs, an apprenticeship costs around £9,000 per year.

Children We Look After

3.4. The term ‘looked after’ has a specific, legal meaning, based on the Children Act 1989. Under this Act, a child (anyone under the age of 18) is looked after by a local authority if he or she falls into one of the following:  Is provided with accommodation, for a continuous period of more than 24 hours (Children Act 1989, Section 20 and 21);  Is subject to a Care Order (Children At 1989, Part IV);  Is subject to a Placement Order.

3.5. Over recent years, the rate of children we look after per 10,000 under-18 population in St Helens has risen significantly. The rate given below is for the number of children we look after at the end of the financial year and is reported to the Department for Education in the Spring by all local authorities:

Year Rate of Children We Look After per 10,000 under-18 population 2014/15 113.0 2015/16 112.6 2016/17 117.3 2017/18 120.6 2018/19 126.7

3.6. At the end of February 2020, a total of 511 children and young people were in the care of St Helens Council. This equated to a rate of 138.9 children per 10,000 of the under 18 population within the borough. This is substantially higher than the most recently published national average of 65 children per 10,000 population. The number of children we look after rate data is reported to Cabinet on a quarterly basis as the performance indicator CYP-02.

3.7. In the 2019/20 Quarter 2 Performance Report presented to Cabinet in November 2019, in the ‘Performance in Focus’ section of the Protecting Young People portfolio, it was reported that: “In St Helens the rate of children becoming looked after is impacted by a legacy of poorer practice and planning and we know services have either not been in place or have not effectively responded to escalating concerns.”

Care Leavers

3.8. When a child we look after is 15 years and nine months old, they begin to become a Care Leaver, and the local authority (as the Corporate Parent) starts to help them plan the pathway to their future. They do this by completing a Pathway Plan. There are two parts to the Pathway Plan; Part 1 is about what the child needs (leaving care assessment of need), and part 2 is about goals and plans.

17 5 4a

3.9. The Care Leavers Act states that there are different categories of Care Leavers, each entitled to receive specific support. An overview of the support available is provided on the Council’s Care Leavers website https://www.sthelens.gov.uk/careleavers/support-for-you/what-is-my-care-leaver- status/ .

3.10. Many young people who have been looked after by the Local Authority can experience a compressed transition from childhood to adulthood. Nationally, young people who are looked after often have poorer outcomes than those who haven't experienced the care system. They are more likely to experience disruptions throughout their lives which have an impact upon parts of their life such as academic progress. Care Leavers may have barriers that they have to overcome, including setting up their first home, potential exposure to substances, risks around becoming homeless and falling into debt on top of mental health difficulties linked to their childhood trauma. Some Care Leavers may also lack parental/adult guidance to encourage aspirations and successful progression.

Gov.uk Guidance

3.11. The latest Government published Apprenticeships funding in England document sets out the policy from April 2019 onwards. Within the document, support is outlined for care leavers and those who have a Local Authority Education, Health and Care Plan (EHCP). The document recognises that those who have previously been in care may need extra support and that this can represent to an extra cost to employers.

3.12. Employers who train an apprentice who is aged 19-24 and has previously been in care (or who has an EHCP) will receive £1,000 to help with these additional costs in the same way as the payment for 16-18-year olds.

3.13. Employers with fewer than 50 people working for them are able to train at no cost those aged 19-24 who have previously been in care or who have a Local Authority EHCP. These employers are not required to contribute the 5% co-investment; instead, the government will pay 100% of the training costs for these individuals.

3.14. N.B. this document was produced under the previous Conservative government. The current administration may amend the funding post-April 2020.

4. Findings

4.1. On 7th February 2020 the Task Group invited officers from various Council services to a meeting to discuss how they currently supported children we look after to access apprenticeships and the successes and challenges they face in achieving positive outcomes. Officers who attended the meeting were:

 Dominic Tumelty – Head of Service for Permeance, Care Leavers and CWD  Carly Quinn – Futures Team Manager  Paul Ross (on behalf of Sarah Platt) – St Helens Virtual School  Julie O’Neill – Workbased Learning Coordinator

18 6 4a

 Jenny Pritchard – Principal Organisational Development and Workforce Officer  Cathryn White – Place Delivery Officer

4.2. Officers who were unable to attend the meeting but contributed to this report include Helen Sharratt (CYP Consultations and Review Officer) and Monica Powell (Education, Employment and Training Coordinator).

4.3. During the meeting, officers provided an overview of their role with regards to both children we look after and apprenticeships, with Members asking questions.

2016 Scrutiny Review of Apprenticeships

4.4. In 2016, a Task Group of the Environment, Regeneration, Housing, Culture and Leisure (ERHCL) Scrutiny Panel produced a report on Apprenticeships. This was presented to Cabinet in October 2016. The report set out seven recommendations which were accepted by Cabinet, with actions attached to each. As a part of this Task Group, a review was undertaken to consider how each of the seven recommendations had progressed. A summary is provided below:

4.5. Recommendation 1 - concerned the Council fully preparing for the implications of the Apprenticeship reform to be introduced from May 2017, including the Levy. A report was submitted to Cabinet in March 2017 which set out the Council’s preparedness. The then Head of HR subsequently attended a meeting of the ERHCL Scrutiny Panel in April 2018 to provide a further update on the number of apprenticeship starts and the impact of the Levy.

4.6. Recommendation 2 - requested that an Apprenticeships strategy was compiled and implemented. However, it is understood that no formal strategy was ever formally approved.

4.7. Recommendation 3 - was to ensure that apprenticeships were within the remit of the then developing St Helens Economy Board. Although the Future Generations programme, operated under the St Helens Ambassador Programme which reports to the Economy Board, is currently providing work experience opportunities for care leavers, the Economy Board has not taken an active role in considering apprenticeships since its inception, focusing instead on strategic issues for the local economy. Other bodies, such as St Helens Chamber, has taken a more active role in relation to apprenticeships.

4.8. Recommendation 4 - covered developing a Supported Employment Pathway for young people with SEND. As of January 2018, in an update to the action plan, improved pathways were in place and were being further developed.

4.9. Recommendation 5 - looked at a review of existing careers education/information, advice and guidance resources. This review was completed in April 2017 and was taken to the appropriate forums.

4.10. Recommendation 6 - requested that the Council collaborate with training providers to ensure the apprenticeship offer meets the needs of the local economy. This was

19 7 4a

completed in 2017, with training providers at the time offering apprenticeships in response to employer and student demand.

4.11. Recommendation 7 - aimed to promote apprenticeships with existing and new employers. Apprenticeships continue to be promoted through the Invest St Helens Ambassadors Programme and the subsequent Future Generations programme, all of which promote apprenticeships to the private sector.

Identification of and Support for Care Leavers

4.12. Members were informed that as of February 2020, there were two care leavers who were employed by the Council as apprentices. There are no care leavers on apprenticeships outside the Council.

4.13. The Council employs an Education, Employment and Training (EET) Coordinator, who as a part of her role assesses whether education, employment or training suggestions put forward by key workers are suitable for care leavers. Currently, the EET Coordinator was tracking young people at 16, but the Group was informed that there were plans to work more with the virtual school to include 15-year olds. It was suggested that this would allow for a better understanding of the areas young people wanted to work in and would enable a more strategic approach.

4.14. The Task Group was informed that the Care Leavers Team have an employability programme that focuses on care leavers’ progression to ensure that their education, employment and training (EET) journey was sustainable and meaningful. Children we look after commence learning employability skills within school, and young people aged 16-25 have their plan personalised by the EET Coordinator. An employability programme had been developed as the first progression step for young people not in education, employment or training (NEET) who require intensive support to move onto their next EET stage.

4.15. The pathway then includes a further employability programme for those young people who are not ready to progress onto formal training; those who are ready to commence further training will progress onto a traineeship. The final progression for this programme would include employment or further training, which includes apprenticeships. The EET Coordinator has developed networks with the Invest St Helens Ambassador Programme who will be offering traineeship work placements for our young people.

4.16. The Task Group was informed that there had been a recognition that some children leaving care do not have basic Maths and English qualifications and were not able to access these qualifications post-19 due to funding. There had been a collaboration with St Helens Adult Learning who will be offering Maths and English qualifications as part of the employability programme.

4.17. The Task Group was informed that starting an apprenticeship could often be a difficult period of transition for all young people, given that they move from a school/college environment into a workplace where they were subject to the standard

20 8 4a

HR procedures. This period of transition can often be exacerbated for care leavers due to their personal circumstances often being more complicated than other young people.

4.18. To support care leavers through this transition period, the Council’s Workbased Learning Coordinator worked closely with the Leaving Care Team to identify care leavers who were looking for an apprenticeship to ensure that they were supported throughout the interview process. Care leavers were supported to continue and complete their apprenticeship, with the Workbased Learning Coordinator focussing on ‘in-work’ support, and the Care Leavers concentrating on external factors (such as place of residence). This support was provided throughout the period of the care leavers employment with the Council.

Potential Barriers & Appropriateness of Apprenticeships

4.19. One barrier faced by all young people, but affects care leavers especially, was the national apprentice wage of £3.90 per hour (compared to £4.25 for under 18’s; £6.15 for 18-20; and £7.70 for 21-24-year olds). The Task Group was informed that, occasionally, those care leavers who were 18-19-years old would opt for short-term, minimum wage jobs which paid more as opposed to apprenticeships. This was further complicated by the increasing roll-out of Universal Credit, as the amount of benefit received depended on the number of hours worked in a given period. The Department for Work and Pensions (DWP) have a responsibility to implement a Care Leavers protocol, which is currently being developed and will consider the current barriers young people face relating to Universal Credit and their education, employment and training (EET) aspirations.

4.20. In was suggested that Intermediate (Level 2) Apprenticeships were sometimes not appropriate for some care leavers for various reasons. These included care leavers choosing to remain in education post 16, or they were not yet work ready. Previously, the Council ran a Children We Look After’s Employment Programme, which received £100,000 of funding to allow 5 care leavers to undertake a 12-week period of employment in the Council in which they would work for 16-hours per week. This allowed staff to work around any issues the individual was facing and build them up to a full 12-month apprenticeship if it was decided this was the most appropriate next step. However, this funding had ceased sometime during 2017.

Care Leavers Board

4.21. The Care Leavers Board is attended by various agencies who have corporate parenting responsibilities for care leavers. The Board has looked at a range of documents and strategies to formalise their approach to care leavers. The ‘Stay Put’ policy adopted by the Council was given as an example of the authority implementing a policy that gives young people who are in a stable, supportive foster placement the opportunity to pursue education, training and employment, without the disruption of having to move to independence during this critical period of their lives.

4.22. The Task Group agreed that a strategy should be produced that covered how care leavers could be supported to engage with education, employment and training

21 9 4a

opportunities once they leave secondary school education, with statistics provided where possible that recorded destinations for care leavers.

4.23. The Task Group was informed that care leavers in St Helens meet as a group on a monthly basis to engage in various projects to co-produce the service they receive. They have engaged in different topics linked to the Care Leavers Local Offer, and their views have been captured with regards to employment, education and training (EET).

4.24. Every local authority has a statutory responsibility to publish their local offer to care leavers. This outlines the support/offer to care leavers. This offer in St Helens is available on https://www.sthelens.gov.uk/careleavers/ and in paper form available through the Care Leavers Team. The Task Group noted that it was important that the language used on all Council webpages which provide information to care leavers be reviewed to ensure that it was user-friendly and that it fully covered the range of support available (i.e. apprenticeships and other employability options available to them).

4.25. The Children and Young People's Consultation and Review Officer suggested that it was important to ensure that Council apprentices, included those who were care leavers, had the opportunity to give their views before/during/after their time in the Council, so that the authority could learn from and build upon their experience. With their permission, care leavers words could confidentially be used to promote the next recruitment phase in promotional material.

Reporting and Future Planning

4.26. The Task Group discussed the rising numbers of children we look after and how it was important that the Council fully understood the reasons for the rise in demand, and the implications on the support the Council provides to care leavers with their next steps.

4.27. As an example, it was suggested that, based on the current cohort of 15-year olds, the Council would be supporting a higher number of young people into adulthood than in previous years based on the usual rate with which young people remained in services. It was agreed that it was important that targeted support for individuals most likely to remain looked after be a priority. The Task Group was informed that the post of Education, Employment and Training Coordinator only had temporary funding; this was a concern to the Task Group given the post’s importance.

4.28. The Task Group was informed that as a part of statistical reporting arrangements to Cabinet, the Council had a target set for the percentage of former care leavers aged 19-21 years old in employment, education or training (EET) (Tier 2 performance indicator CYP-28a), as well as a target for care leavers in settled accommodation (Tier 2 performance indicator CYP-27a). The Task Group commented that further statistical information on destinations and outcomes for Care Leavers would provide Members with a greater oversight of this area.

22 10 4a

The Virtual School

4.29. When a young person becomes looked after, they become a pupil of the Virtual School. The aim of the Virtual School is to ensure that children we look after had the opportunity to fulfil their educational potential. Although not a 'physical' school with buildings and classrooms, the Virtual School brings together information about all children who are looked after by the Council - as if they were in a single school. It allows the Virtual School Headteacher and the local authority to closely track each child's progress and ensure the Council can identify the specific support a child may need at an early stage, so the virtual school can then work with individual schools to implement any actions.

4.30. The Group was informed that school staff (e.g. teachers) often have well-established relationships with looked after children and can provide a level of stability in their lives. This stability can often be disrupted when care leavers leave secondary school and it can be hard for care leavers to establish new relationships including Council Officers who support them.

4.31. It was suggested that there could often be a lack of understanding from both secondary school children and teachers/staff in relation to the apprenticeship and traineeship routes that were available. The Task Group discussed whether there was an assessment tool that could be used with children we look after to ensure that all next step options have been discussed with the young person, that they have understood all their options, and have identified what they see as their best next steps. Officers proposed that this assessment tool could be included within a looked after child’s Personal Education Plan (PEP). The PEP included three meetings with a young person per year, with the Headteacher of the Virtual School having oversight of this process.

4.32. It was stated that not all children we look after attended the Virtual School as some children we look after were educated in alternative education establishments (such as the KS3 Pupil Referral Unit (PRU) base). It was agreed that consideration needed to be given as to how best to engage children we look after who are in these alternative education settings in career planning.

4.33. The Group was informed that following meetings between the Virtual School Headteacher, secondary schools, and the University of Liverpool, a pilot programme of academic mentoring commenced at the start of February. Two schools had so far engaged with the project, with 18 children we look after receiving support. Mentoring support involved undergraduates from the University going into schools to provide one-to-one support within core subjects. The mentors focus on developing confidence within the subject and enhancing the skills and knowledge the young person learns within the classroom. Each mentor works with each child for one hour per week.

St Helens Ambassadors Programme

4.34. The Task Group was informed about the Ambassadors Programme which formed an important part of the ‘Invest St Helens’ brand. According to the Invest St Helens

23 11 4a

website, the Ambassadors scheme “brings together the knowledge, networks and determination of businesses, organisations and individuals to help the borough to compete by attracting investment, business and visitors to create a more successful economy for the benefit of everyone”.

4.35. Over 130 businesses, schools, and organisations have signed up as Ambassadors since the programme’s launch in 2017. Whilst a large majority of schools were members of the Ambassadors Programme, there is still a minority who were not engaging. The Task Group agreed that Councillors who were governors at schools not engaging with the Ambassadors programme should encourage their schools to sign up.

4.36. The Task Group was informed about the Future Generations Programme. This was an innovative and unique offer developed to utilise the Invest St Helens platform, in particular Ambassadors, to improve the lives of young people. The Programme had developed a series of objectives in respect of work with young people:

 To raise aspiration and ambition for young people  To link schools and businesses together  To link young people to the future economy  To create a positive perception of St Helens

4.37. Ambassadors were extremely supportive of the Future Generation Programme and many had pledged their support to use their role as an Ambassador to improve outcomes for young people in St Helens. The Invest Team aimed to work with Ambassadors to encourage the commitment to support young people leaving care, in hope that the support given will help support Care Leavers to make a positive transition to independence by providing practical support with the following:

 Traineeship Programme – together with Council Social Work Teams  Careers advice – from local business leaders  Work experience opportunities – with Ambassadors  Interview Preparation – with recruitment consultants  Increased access to local offer – accessing facilities in their local area such as bowling, cinema, Saints games, and sports facilities.

4.38. The programme was reported to have been a success to date and had delivered many positive outcomes. Ambassadors and Economy Board Members had pledged their support, enabling officers to deliver several projects including:

 12-week confidence building programme for all ages (aimed at LAC & Care Leavers)  ‘Believe & Achieve’ careers event delivered to Year 11 Children we look after  ‘Rewrite the Stars’ Celebration event delivered for LAC/Care Leavers in St Helens  Commissioned Education Consultants to rewrite the Curriculum in St Helens to bridge the gaps identified with local place-based knowledge and heritage information

24 12 4a

 Commissioned publication of ‘The Canary Sings’ project with Primary School Ambassadors  Design and development of a Traineeship Programme for Care Leavers

4.39. The Task Group was informed that links had been established between the Ambassadors Programme and the Education, Employment and Training Coordinator to explore how local employers could offer work experience opportunities for children we look after. Although an apprenticeship or job offer was the ideal scenario, it was recognised that there was a higher chance of ensuring cooperation and buy-in from businesses if work experience opportunities were offered initially, with apprenticeship opportunities to be explored moving forward as relationships developed further.

4.40. The Task Group was assured that for any apprenticeships offered by external employers in the borough, employers were held to account by training providers who accredit the apprenticeship. If the apprentice was not being given tasks to complete that met the criteria of the qualification, then this would be highlighted in the apprentice’s progress reports and escalated appropriately.

4.41. It was agreed by the Task Group that it would be beneficial to hear an external employers’ perspective of the Ambassadors Programme and their perceptions of how more opportunities for children we look after could be provided, and what the potential barriers are from a local businesses point of view / standpoint.

Other Local Authorities

4.42. The topic of support for children we look after with regards to apprenticeships has been considered by numerous other local authority scrutiny functions. A short summary is provided below. Common threads in the summaries below are that councils firstly offer opportunities to Looked After Children to help them with readiness for employment skills and secondly with opportunities to progress into an internship, work experience, a traineeship or an apprenticeship within the Council.

Dorset County Council

4.43. Dorset County Council’s Safeguarding Overview and Scrutiny Committee reviewed apprenticeships in respect of children we look after and care leavers in 2017 following an Ofsted inspection report. The report recommended that the County Council develop a full range of opportunities for work experience, traineeships and apprenticeships for care leavers to increase the number in employment, education or training.

4.44. Following a pilot project that offered four 16-year old children we look after work experience, the scheme was expanded to 16 Year 11 Virtual School pupils who were approached by the County Council with an offer of work experience. Year 10 pupils were also approached with an offer of work familiarisation in preparation for their Year 11 work experience.

25 13 4a

4.45. The County Council also identified 16-21-year olds who were previously children we look after and not in employment, education or training (NEET) to assess those who would benefit from work experience or a traineeship.

Wirral Council

4.46. Wirral Council’s Families and Wellbeing Policy & Performance Committee undertook a review into the Outcomes for Children we look after in August 2013. Despite the years that have past, the recommendations still hold weight in 2020.

4.47. The importance of building self-confidence in Children we look after was heard repeatedly throughout the Scrutiny Review in Wirral. Members were informed that, for some children in care, there was a need to improve self-esteem and confidence levels, for example, to help with interview skills. This could be a significant problem at the age of transition (16–17 years old) when the young person was moving to semi- independence; a period which could be particularly difficult when there was no parental input. One way of achieving increased confidence levels was to identify and promote opportunities for internships and work experience for children we look after and care leavers within the Council.

4.48. Further recommendations set out within the 2013 report included increasing the capacity of the Employment Team with a peer mentor and apprentice.

Nottinghamshire County Council

4.49. Although the review by Nottinghamshire County Council’s Health And Wellbeing Standing Committee, From Care to Independence, was published 10 years ago, it’s recommendations still are relevant today. The report recommended that children we look after and care leavers should have access to a range of employability opportunities including:

 Work inspiration and taster events;  Priority for work experience opportunities;  Priority for any places on future Council apprenticeship schemes;  A guaranteed interview for any job for which they have the appropriate qualification.

4.50. In addition, the report recommended that contractors for County Council services be encouraged to offer employability opportunities to children we look after. It was also recommended that a system to monitor the key outcomes for care leavers at the point of case closure be implemented and used to inform future policies for children we look after.

5. Conclusions

5.1. There are several issues that the Task Group would have liked to address further. However, there was insufficient time remaining in the municipal year to continue its work. As such the Task Group recommends that its work be continued by a further task group. The Task Group believes this work is critical to our care leavers and

26 14 4a

looked after children and councillors’ roles as corporate parents. This section details the Task Group’s conclusions in relation to work it has carried out and where it feels further work is required.

5.2. Given the increasing number of children becoming looked after in recent years, the Task Group believes that securing good outcomes for care leavers is more important than ever. Although it is right that the Council works to reduce the numbers of children becoming looked after, tracking young care leavers and their destinations/outcomes should remain a priority for the authority. Further statistical information on destinations/outcomes would provide Members with a greater oversight of this area and clarification on the effectiveness of the Council’s work.

5.3. The Task Group believed it was important that the knowledge and processes employed by Officers and recounted to them in the Task Group meeting, were documented so that the policies and procedures could be clearly understood and passed on to others. This should be covered in a strategy that covers how children we look after can be supported both in school and when they become care leavers to fully access education, employment and training opportunities.

5.4. The Task Group was encouraged to hear that both the Council and members of the Ambassadors Programme were working cooperatively to support care leavers into employment by providing work experience and apprenticeship opportunities.

5.5. The Task Group was pleased that many schools in the Borough were signed up to the Ambassadors Programme. However, the Group noted that it would wish for all schools to be engaged and hoped that Councillors who were governors at schools that were not a part of the St Helens Ambassadors Programme would encourage their schools to sign up to it.

5.6. The Task Group recognises that for some care leavers, an apprenticeship may not always be the most appropriate step following leaving secondary education, and that work experience opportunities and traineeships may be required. The Task Group was reassured to hear that work was being done by officers, through the Future Generations programme, to pursue opportunities to increase the number of work experience opportunities for care leavers and children we look after.

5.7. The Task Group was pleased to hear from officers about the experience some young people and employers had had engaging with our services. However, the Task Group would welcome the opportunity to meet with both care leavers and members of the Ambassadors programme to understand from their perspectives what any current barriers were and what further support could be provided that would make a difference.

5.8. The Task Group was reassured that the Virtual School was tracking the progress of children we look after, and that schools had well-established relationships with their pupils. However, the Task Group would welcome further consideration as to how the Council can support those children we look after including those in alternative education establishments to ensure that they are fully supported to understand the options available to them post-16 and their choices.

27 15 4a

5.9. The Task Group was pleased to be told that the plans were in development for the Education, Employment and Training Coordinator to work more with the Virtual School to engage 15-year olds who are looked after. A better understanding of the areas young people would want to work in will help to facilitate a more strategic approach to apprenticeships and post-16 employment generally. The Task Group believed it would be beneficial for an assessment tool to be implemented in a young person’s Personal Education Plan, to establish whether they understand the all progression routes, including supported internships, traineeships and apprenticeships, which route is best for them, and what their choice is.

5.10. The Task Group agreed that the Education, Employment and Training Co-ordinator post was essential to ensuring that the children we look after and care leavers are given the right advice, guidance and support to progress into education, employment and training. Members would therefore recommend that this post was made permanent.

5.11. The Task Group was concerned to hear that some young people were more encouraged to look for short term financial gain through employment, rather than long-term security through apprenticeships due to the disparity in wages between the national minimum wage and the apprenticeship wage. The Task Group would welcome further reassurance that care leavers undertaking apprenticeships who were eligible for Universal Credit, were not losing money due to the way the benefit is paid. The Task Group wished to speak with local representatives from DWP for clarification on this issue.

5.12. Although it was good to see that there was a dedicated children we look after and care leavers website, the Task Group believed that it was important that the language used on Council webpages be reviewed to ensure that the target audience of care leavers were not discouraged and able to fully understand the range of support available to them at the Council, in the borough and further afield.

6. Recommendations

The Task and Finish Group recommends:

6.1. That further and clear statistical information on destinations and outcomes for care leavers be collected and monitored to ensure a better understanding of the effectiveness of Council interventions.

6.2. The production of a strategy to show the processes employed by Officers, and recounted by them in the Task Group meeting, which ensure that the children we look after and care leavers are fully supported to access education, employment and training opportunities.

6.3. That this strategy is informed by feedback from children we look after and care leavers on what works well, what the barriers are to their successful progression and what improvements could be made.

28 16 4a

6.4. That a review be undertaken regarding further traineeships, apprenticeships and work experience opportunities that Council services could offer to care leavers and looked after children.

6.5. That the pages on the Council’s website relating to care leavers be reviewed to ensure the language used is engaging and accessible to the target audience.

6.6. That an assessment tool is developed to ensure that the children we look after and care leavers understand the full range of progression routes available to them and records their chosen destination, and that it is included in Personal Education Plans.

6.7. That the post of Education, Employment and Training Co-ordinator is made permanent.

6.8. That the Cabinet encourages all Councillors who are governors at schools not signed up to the Ambassadors Programme to speak to their schools about doing so.

6.9. That the CYPS Panel commissions a new task group to enable members to continue this review including:

A – a meeting with care leavers to understand the types of opportunities they are looking for in employment, training and education; what they feel the barriers to their progression are; and what help is effective and what improvements could be made.

B - a meeting with members of the Ambassador Programme to discuss the barriers to the provision of work experience and apprenticeship opportunities to care leavers and looked after children.

C. a review to establish the extent to which the children we look after participate in extra-curricular activities, often invaluable in the development of wider skills to support positive progression.

D a meeting with local representatives from DWP for clarification on the implications of Universal Credit on the wages and benefits received by care leavers.

E - scrutiny of the supported internship programme.

7. Sources

St Helens Council Cabinet report - 2019/20 Quarter 2 Performance Report

http://moderngov.sthelens.gov.uk/documents/s93363/Q2%20Performance%20Monit oring%20Report.pdf

St Helens Council Environment, Regeneration, Housing, Culture and Leisure Scrutiny Panel – Apprenticeships Review July 2016

29 17 4a

http://moderngov.sthelens.gov.uk/documents/s58743/Apprenticeship%20Report%20t o%20Cabinet.pdf

St Helens Council Care Leavers Webpage

https://www.sthelens.gov.uk/careleavers/

St Helens Council Care Leavers Group Webpage

https://www.sthelens.gov.uk/careleavers/listening-to-you/children-in-care-council- care-leavers-group/

Gov.uk website - Apprenticeship Funding in England April 2019

https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachm ent_data/file/788312/Apprenticeship_funding_in_England_from_April_2019.pdf

St Helens Council Performance Indicator Database

http://applications01.sth.net/PerformanceIndicators/Indicators/AllIndicators

St Helens Virtual School webpage

https://www.sthelens.gov.uk/schools-education/virtual-school-for-looked-after- children/

Invest St Helens Ambassadors Programme website

https://www.investsthelens.co.uk/ambassadors/

Dorset County Council Safeguarding Overview and Scrutiny Committee - Apprenticeships in respect of Looked After Children and Care Leavers

http://moderngov.dorsetcouncil.gov.uk/Data/279/201701191000/Agenda/Apprentice %20report%20190117,%20item%207..pdf

Wirral Council Families and Wellbeing Policy & Performance Committee – Outcomes for Children we look after

https://democracy.wirral.gov.uk/documents/s50031324/Appendix%202.pdf

Nottinghamshire County Council Health And Wellbeing Standing Committee – From Care to Independence

https://www.nottinghamshire.gov.uk/DMS/Document.ashx?czJKcaeAi5tUFL1DTL2U E4zNRBcoShgo=%2BHj%2FSit8d0ZKlXbklJvVFmYdMB9mWkHI1GtwV7J6RO0uCX BGZiD2uw%3D%3D&mCTIbCubSFfXsDGW9IXnlg%3D%3D=hFflUdN3100%3D&kC x1AnS9%2FpWZQ40DXFvdEw%3D%3D=hFflUdN3100%3D&uJovDxwdjMPoYv%2

30 18 4a

BAJvYtyA%3D%3D=ctNJFf55vVA%3D&FgPlIEJYlotS%2BYGoBi5olA%3D%3D=NH dURQburHA%3D&d9Qjj0ag1Pd993jsyOJqFvmyB7X0CSQK=ctNJFf55vVA%3D&WG ewmoAfeNR9xqBux0r1Q8Za60lavYmz=ctNJFf55vVA%3D&WGewmoAfeNQ16B2M HuCpMRKZMwaG1PaO=ctNJFf55vVA%3D

31 19 4a

Apprenticeships for Children We Looked After

Rec Recommendation Responsible Agreed Action and Date of Implementation No Officer 1 That further and clear statistical information on destinations and outcomes for care leavers be collected and monitored to ensure a better understanding of the effectiveness of Council interventions. 2 That a strategy is produced to show the processes, employed by Officers, which ensure that the children we look after and care leavers are fully supported to access education, employment and training opportunities.

32 3 That this strategy is informed by feedback from children we look after and care leavers on what works well, what the barriers are to their successful progression and what improvements could be made. 4 That a review be undertaken regarding further traineeships, apprenticeships and work experience opportunities that Council services could offer to care leavers and looked after children. 5 That the pages on the Council’s website relating to looked after children and care leavers be reviewed to ensure the language used is engaging and accessible to the target audience. 6 That an assessment tool is developed as part of Personal Education Plans, to ensure that the

20 Apprenticeships for Children We Looked After

children we look after and care leavers understand the full range of progression routes available to them and identifies their chosen destination. 7 That the post of Education, Employment and Training Co-ordinator is made permanent. 8 That the Cabinet encourages all Councillors who are governors at schools not signed up to the Ambassadors Programme to speak to their schools about doing so. 9 That the CYPS Panel commissions a new task group to enable members to continue this review including: 33 A - meeting with care leavers to understand the types of opportunities they are looking for in employment, training and education, what support is effective and how it could be improved. B - a meeting with members of the Ambassador Programme to discuss the barriers to provision of work experience and apprenticeship opportunities

to care leavers and looked after children.

C - a review to establish the extent to which the children we look after participate in extra-curricular

activities, often invaluable in the development of

wider skills to support positive progression. D - a meeting with local representatives from DWP for clarification on the implications of Universal 4a 21 4a

Apprenticeships for Children We Looked After

Credit on the wages and benefits received by care leavers. E - scrutiny of the supported internship programme. 34

22 4b CABINET

23rd September 2020

Report Title: Council’s Use of Paper and Plastics Task and Finish Group Report

Cabinet Portfolio Environmental Services

Cabinet Member Councillor Andy Bowden

Exempt Report No

Reason for Exemption N/A

Key Decision No

Public Notice issued N/A

Wards Affected All

Cath Fogarty Executive Director of Corporate Services Report of [email protected] 01744 676885

James Morley Scrutiny Manager Contact Officer [email protected] 01744 676277

35 4b

Ensure children and young people have a positive start in life

Create a green, thriving and vibrant place to be proud of X

Be a modern, efficient and effective Council

1. Summary

This report presents the Council’s Use of Paper and Plastics Task and Finish Group’s report to Cabinet.

2. Recommendations for Decision

Cabinet is recommended to:

i) Receive the Council’s Use of Paper and Plastics Task and Finish Group Report for consideration; ii) Provide a response to the recommendations in the Task and Finish Group Report to be presented to the Place Services Scrutiny Committee at its meeting on 24th November 2020.

3. Background /Reasons for the recommendations

3.1 The Environment, Regeneration, Housing Culture and Leisure Overview and Scrutiny Panel commissioned a task and finish group to review the Council’s use of paper and plastics as part of its work programme for 2019/20. The Task and Finish Group carried out research and held several meetings with officers to develop its conclusions and recommendations as set out in the report. The Task and Finish Group’s report was approved for submission to Cabinet by the Overview and Scrutiny Commission at its meeting on 20th July 2020.

3.2 Since the report was approved the Council’s Scrutiny Committee Structure has been amended, with responsibility for issues within the former Environment, Regeneration, Housing Culture and Leisure Overview and Scrutiny Panel’s remit now within the remit of the Place Services Scrutiny Committee. As such, Cabinet’s response will go to the Place Services Scrutiny Committee.

36 4b 3.4 This report to the Cabinet meeting on 23rd September 2020 acts as the submission of the report to Cabinet. The response of Cabinet will be presented to the Place Services Scrutiny Committee meeting on 24th November 2020 where the nominated Cabinet Member and Officers will be requested to present the response.

4 Implications

4.2 Community Impact Assessment (CIA) Implications

4.2.1 Social Value - It is noted that some recommendations within the report relate to the Council’s use of (and therefore purchasing of) particular supplies and equipment which may have implications for local spending and procurement.

4.2.2 Sustainability and Environment - The impact on sustainability and the environment is dependent on which of the recommendations with the Task Group Report are accepted/supported by Cabinet.

4.2.3 Health and Wellbeing - It is unlikely that the recommendations within the Task Group Report, if accepted/supported by Cabinet, will have an impact on public health and wellbeing.

4.2.4 Equality and Human Rights – Equality and Human Rights implications will have to be considered if Cabinet chooses to accept and implement any of the recommendations within the Task Group Report. It is acknowledged within the Task Group Report that some of its recommendations, or the suggestions with the body of the report, could not be applied equally to all employees/customers of the Council given potential additional needs (such as use of certain technology or paper copies of documents for those with visual impairment needs or other disability).

4.3 Customers and Resident - Implications on the customer/resident have not been taken into consideration for the purposes of submitting the Task Group Report to Cabinet for consideration. Some of the recommendations in the Task Group Report may lead to changes in the way services are provided to customers/residents. These implications would need to be taken into consideration when Cabinet decides whether to accept/support any of the recommendations or not.

4.4 Asset and Property - The Task Group Report does not make direct proposals in relation to the Council’s asset base or its occupation however some of the recommendations relating to ways of working within the Council may have implications for occupancy. However, these recommendations relate to strategies (such as agile working) that the Council is already developing/employing where consideration is being/has been given to the implications for the Council’s asset base and occupancy already.

37 4b 4.6 Risks - No risks have been identified within the Task Group Report. Consideration of risks should be carried out as part of Cabinet’s consideration of the recommendations within the Task Group Report to inform the decision to accept/support the recommendations or not.

4.7 Finance - Some of the recommendations within the Task Group Report will have financial implications if they are accepted and implemented by Cabinet. These implications will need to be considered by Cabinet when deciding whether to accept/support the recommendations or not.

4.8 Policy Framework Implications - The Task Group Report includes some recommendations related to new or existing policies and strategies. If the recommendations are accepted/supported, then Cabinet and Officers will be required to develop new policies/strategies or update existing ones.

5 Background papers

Overview and Scrutiny Commission Agenda and Minutes of meeting held on 20th July 2020

6 Appendices

Council’s Use of Paper and Plastics Task and Finish Group Report

38 4b

Environment, Regeneration, Housing, Culture and Leisure Overview and Scrutiny Panel

A Review of the Council’s Use of Paper and Plastics

February 2020 (Updated July 2020)

Task Group

Councillor(s) Mancyia Uddin – Chair Robyn Hattersley Linda Mussell Bisi Osundeko Charlie Preston

39 1 4b

Table of Contents

Chair’s Foreword and Acknowledgements...... 3

Recommendations ...... 4

Introduction and Terms of Reference...... 6

Methodology...... 6

Background ...... 6

Local ...... 6

National...... 7

Global - Plastics...... 8

Global – Paper...... 9

Global – Industry Standards ...... 10

Findings – Online Research...... 10

Other Local Authorities ...... 10

Tips to reduce paper and plastics use...... 11

Findings - Meetings with Officers ...... 14

IT Services...... 14

Procurement ...... 16

Councillors and Council/Committee Meetings...... 16

Schools...... 18

Schools Catering ...... 19

Depot Services ...... 19

Recycling ...... 20

Conclusions...... 20

Sources ...... 23

40 2 4b

Chair’s Foreword and Acknowledgements

Councillor Mancyia Uddin Chair of the Scrutiny Task Group

As humans, we play an essential role in protecting the health and well-being of our planet. Overtime, our relationship with the earth has become distant and detached. For centuries, humans have been driven by financial capital, overexploitation and overconsumption. The result of this has had an excruciating impact on our earth and climate, devastating many communities across the world. Human actions are responsible for the climate crisis and it is our collective human actions can go a long way in repairing the damage. While the Council alone cannot solve the global climate crisis, we can and should use the influence we have as a Council to encourage our staff, partners and communities to be more conscious of the environment and be mindful in the choices they make.

Whilst the onset of coronavirus has had devastating impacts, it has enlightened us to new and flexible ways of working that I hope we can continue as we emerge from this pandemic. We have been given the opportunity to review and transform the way we work tackling both the climate crisis and the health crisis.

Conducting this review has been enlightening and allowed the task group to explore the many ways in which the Council use paper and plastic (P&P). It was encouraging to see throughout the process the number of ways in which the council is already making positive strides towards reducing our P&P use and this report aims to push us further towards that goal. The findings from our research allowed us to come up with recommendations that go far beyond simply reducing our P&P use; enabling the Council to further explore and act on different aspects of the climate crisis.

The climate crisis is important to our council and the passion for this was evident throughout this review process. I would like to thank everyone who participated in the task group for sharing with us their valuable knowledge and experience. I hope this report goes some way in reaching our shared vision for an environmentally friendly future.

41 3 4b

Recommendations

The Task and Finish Group recommends:

A. That the use of disposable paper or plastic cups for Council meetings (e.g. Cabinet, Scrutiny and Regulatory Committees) be phased out and that reusable cups be provided.

B. That Councillors be requested to bring their own reusable cups/bottles to meetings held at the Town Hall and that provisions for storage of these cups/bottles be made in the Members’ Room.

C. That all agendas, presentations and documents provided during Council meetings and training courses should be provided electronically in advance of the meeting/training session. Paper copies should only be provided to Councillors and Officers if specifically requested or if required due to additional needs.

D. That as of the May 2021 local elections, councillors’ induction packs be provided digitally and not in paper format unless specifically required due to a councillor’s individual needs.

E. That the Council no longer produce paper diaries containing dates of Council and Committee meetings and that Officers and Councillors be encouraged to use their digital calendars.

F. That the role of a 'green advocate' be developed and officers from each directorate be encouraged to become an advocate and actively engage in initiatives to reduce the Council’s paper and plastics use.

G. That a Climate Action working group be established to lead on developing and implementing initiatives to reduce the Council’s paper and plastics use. The working group should include councillor representation and engage with green advocates.

H. That the Council appoints an accountable officer overseeing and leading on climate change issues. This role should include responsibility for administering the Climate Action working group; recruiting and liaising with green advocates and promoting environmentally friendly practices within the Council and its partners.

I. That all Councillors and Senior Officers undergo training on the climate emergency by March 2021, with Cabinet Members receiving the training as a priority.

J. That following a baseline review of paper use for the 2019/20 municipal year, the Council should review its systems and processes to reduce total annual paper use to 70% by 31st March 2021 and to 50% by 31st March 2022. These targets apply to the Council as a whole, not individual teams (i.e. some may be able to reduce paper use by more than 50%, others may already be relatively paper light).

K. That all services receive regular reports regarding their printer usage to enable them to monitor their paper use to assist teams in achieving the

42 4 4b

targets they are set for paper reduction.

L. That the Council creates a paper light policy to encourage staff to decrease their paper usage. This should include guidelines such as: how best to utilise digital technology instead of paper; not printing out emails; the types of paper available via stationary supplies; being conscious of the type of paper used for different purposes; how services should monitor paper use.

M. That the Council creates a plastic light policy to encourage staff to decrease their plastics usage. This should include guidelines such as: discourage the use of single use plastics in stationary (i.e. reduce laminating, use of plastic wallets) and discourage the use of single use plastics at meetings or events.

N. That the Council review its fleet of multifunctional devices (MFDs). The aim of the review should be to reduce the number of devices provided across the Council’s estate, ensuring the devices are appropriately located. This will ensure more efficient use of devices and reduce the Council’s consumption of plastic contained within devices.

O. That the Council’s Communications Strategy incorporates a section on promoting the Council’s green initiatives, highlighting the positive impacts on the borough and wider environment.

43 5 4b

Introduction and Terms of Reference

1.1 During the process of agreeing the Environment, Regeneration, Housing, Culture and Leisure Scrutiny Panel’s Work Programme for 2019/20 the Panel Members agreed to investigate the Council’s use of paper and plastics, establish what is currently being undertaken to reduce their use and what can be done to further enhance this.

1.2 The aims and objectives of the review were to:  To ensure the Council minimises its paper and plastics use  To ensure Council contractors are encouraged to minimise their environmental impact through the work carried out on behalf of the Council  To influence to Council’s partners to reduce their paper and plastics use  To establish a policy on eco-friendliness vs cost effectiveness in relation to decision making  To maximise the use of technology to reduce the environmental impact of the Council’s activities Methodology

2.1 The Task Group commenced its review in September 2019. To develop this report, the Task Group met with various officers from within the Council, considered online research into how paper and plastic use can be reduced and looked at similar reviews undertaken by scrutiny groups from other local authorities. Background

Local

3.1 At the full Council meeting on 10th July 2019 Council approved a Notice of Motion moved by Councillor Uddin and seconded by Councillor Lynn Clarke (Portfolio Holder for Environmental Services) regarding “Tackling the Climate Change Emergency”.

3.2 Among other points, the notice of motion requested that the Council make a commitment to:  Aiming to be zero-carbon by 2040.  Taking action towards increasing recycling and reducing landfill waste.  Achieve 100% clean energy across the Council’s full range of functions by 2040.  Ensure that all decisions, budgets, and approaches to planning decisions are balanced and in line with achieving the zero-carbon target.  Request that scrutiny panels consider the impact of climate change and the environment when reviewing council policies.  Ensure that all reports in preparation for the 2020/21 budget cycle and investment strategy will take into account the actions the council will take to address this emergency;

3.3 The notice of motion also referred to the Liverpool City Region’s ‘Year of the Environment’ in 2019. The mission statement for the Year of the Environment stated that “2019 will be a year of green action across Liverpool City Region

44 6 4b

where people from all backgrounds will have the opportunity to be involved in projects that improved the natural world. Our aim is to leave a better environment for the next generation to inherit and make our area one of the best places in the country to live, work and flourish”.

3.4 During the Year of the Environment there were a number of initiatives that St Helens Council had been involved with including 146 public and school group events such as:  Christmas tree recycling, wildflower sowing, tree planting, plant and mammal surveys, and litter picks  Taylor Park World Environmental Day 05/05/19 - 400 visitors  Cemetery Open Day 11/05/19 - nearly 400 visitors  Willow Park Craft & Nature Day 27/05/19 - 1000 visitors  Newton Town Show 03/08/19 - 5000 visitors  Victoria Park Fun & Craft Day 20/08/19 - 3500 visitors  Love Your Street – creating cleaner and safer streets and bringing the community together

3.5 Across the City Region over 125 partners contributed to organising over 500 varied events which engaged with more than 28,500 people from lots of different communities. Events such as: healthy walks and cycling; clean-ups of parks, green spaces and beaches; and wildlife observation and conservation have relied on the commitment of countless volunteers. Listening events, conferences, debates, competitions and academic publications were also been part of the wide range of activities taking place.

National

3.6 Nationally, in January 2018 the Government published A Green Future: Our 25 Year Plan to Improve the Environment. Within this publication, the Government had set out actions that it would take to “… help the natural world regain and retain good health.” Goals of the 25-year environment plan included using resources from nature more sustainably and efficiently, and minimising waste. Chapter 4: Increasing resource efficiency and reducing pollution and waste set out policies intended to achieve the aims of the plan. The Government wanted to “make sure that resources are used more efficiently and kept in use for longer to minimise waste and reduce its environmental impacts by promoting reuse, remanufacturing and recycling, and work towards eliminating all avoidable waste by 2050 and all avoidable plastic waste by end of 2042.

3.7 In December 2018 the Government also published a Resources and Waste Strategy. The Strategy sought to achieve some of the aims of the 25-year plan by making the country a world leader in using resources more efficiently (keeping resources in use for as long as possible) and reducing the amount of waste we create as a society (reducing packaging on products and tackling food waste). Specific measures within the strategy related to paper and plastics use included:  stimulate demand for recycled plastic by introducing a tax on plastic packaging with less than 30% recycled plastic;  ban plastic products where there is a clear case for it and alternatives exist;  support developing nations to tackle pollution and reduce plastic waste.

45 7 4b

3.8 HM Treasury has also previously made efforts to impact on single use plastics through its Single Use Plastics Budget in 2018 suggesting the use of the tax system or changes in relation to the production, use and disposal of single use plastics (SUP) could create the right incentives to encourage sustainable behaviours and drive technological progress. Broadly, the proposals were to:  Use tax to shift demand towards recycled plastic inputs,  Use tax to encourage items to be designed in a way that is easier to recycle,  Taxes and charges on specific plastic items that are commonly used on- the-go and littered, in order to encourage a reduction in production and use, and  Using tax to ensure that the right incentives are in place to encourage greater recycling of waste that is currently incinerated. The Budget also suggested that the Government would invest in research and development of alternatives to plastics in products, packaging and greener processes.

3.9 During the Task Group’s review, the 2019 General Election took place, resulting in a new Government. It is unclear at the time of writing whether the new Government will retain the 25 Year Plan of its predecessor or make a new plan.

Global - Plastics

3.10 Research published on Science Advances website estimates that 8.3 billion tonnes of plastic have been produced since the 1950s with half of this being produced in the last 13 years. 75% (6.3bn tonnes) of plastic has ended up as waste (69% landfill, 12% incinerated and 9% recycled). 25% of plastics produced are still in use today with most of the longest-use products found in construction and machinery (e.g. aeroplane parts and flame retardants). However, the majority of plastics produced are for short term/single use (e.g. packaging). 1 million bottles of water are purchased around the world every minute with only 50% of these going on to be recycled. 8 million tonnes of plastic end up in the oceans every year which can kill marine life.

3.11 In December 2015, countries from around the work reached a landmark agreement to combat climate change and to accelerate and intensify the actions and investments needed for a sustainable low carbon future. This is often referred to as the Paris Climate Agreement. Subsequent commitments have been signed by a number of governments and organisations to reduce their use of single-use materials.

3.12 For example, in October 2018, the New Plastics Economy Global Commitment - led by the Ellen MacArthur Foundation, in collaboration with UN Environment - was signed by many of the world's largest packaging producers, brands, retailers and recyclers, as well as governments and NGOs.

3.13 Targets in the commitment include to:  Eliminate problematic or unnecessary plastic packaging and move from single use to reuse packaging models  Innovate to ensure 100% of plastic packaging can be easily and safely reused, recycled, or composted by 2025

46 8 4b

 Circulate the plastic produced, by significantly increasing the amounts of plastics reused or recycled and made into new packaging or products.

Global – Paper

3.14 Worldwide consumption of paper has risen by 400% in the past 40 years, with 35% of harvested trees being used for paper manufacture. It has been estimated that by 2020 paper mills will produce about 400,000,000 tons of paper and paperboard per year. Deforestation has become a major problem, both in developing and developed areas. As well as deforestation, the production process for paper and wastepaper can have a detrimental impact on the environment.

3.15 The pulp and paper industry uses more water to produce a ton of product than any other industry (a sheet of A4 paper requires 10 litres of water). The paper industry is the 5th largest consumer of energy in the world using up 4% of the world’s energy. By-products from paper production go on to pollute the rivers and lakes used by the mills as well as the air and land. The bleaching process to make paper white can also lead to harmful chemicals being released into the environment.

3.16 Roughly, 26% of solid waste (i.e. landfill or incineration) is discarded paper and paperboard. When paper rots, it emits methane, a greenhouse gas and when it is burned or composted, carbon dioxide is released.

3.17 Governments and organisations have put in place different measures to address the environmental impact of the paper industry. They include; Sustainable forest management; Pulp bleaching using non-elemental chlorine process; Increased recycling of paper waste material.

3.18 Research suggests that recycling of paper causes 35% less water pollution and 74% less air pollution than making virgin paper and decreases the number of trees that need to be cut down. However, recycling wood pulp paper degrades the wood fibres each time they are recycled; after four or five times the fibres become too short and weak to be useful in making paper. If the world stopped all virgin paper production, it was quite quickly run out of paper as all recycled paper degraded.

3.19 Most recycled paper is priced higher than freshly made paper. The production process for recycled paper is costlier and more time consuming than the well- developed processes that create paper with the use of trees. Due to the degraded fibres in recycled paper, the final product is also less sturdy and of generally lower quality than virgin paper. There are some products made using a combination of recycled and virgin paper (the percentage of recycled paper is usually advertised on the packaging) and others that are 100% recycled.

3.20 There are also negative impacts of the paper recycling process. De-inking of papers during recycling is a source of chemical emissions with the waste slurry produced by deinking potentially going to landfill. Recycled pulp can also be bleached with the same chemicals used to bleach virgin pulp, but hydrogen peroxide and sodium hydrosulfite are still the most common bleaching agents.

47 9 4b

Global – Industry Standards

3.21 As mentioned, more and more governments and organisations have been making commitments to reducing the environmental impact of economies and industries. The introduction and take up of standards and certifications on environmentally responsible practices has grown in recent years as more and more organisations look to demonstrate their commitment to the environment with increasing numbers of consumer giving consideration to the environmental impact of their purchases.

3.22 ISO 14001 is one of the most well recognised and internationally accepted standards that sets out how organisations can go about putting in place an effective Environmental Management System (EMS). By acquiring the ISO 14001 certification, organisations are demonstrating that they are complying with environmental laws and regulations, understand and manage the environmental impacts of their operations and are committed to continually improving their environmental impact.

3.23 In relation to sustainable paper production, the Forest Stewardship Council (FSC) was established to promote responsible management of the world’s forests. This international non-profit organisation aims to provide an independent international accreditation for timber and other forestry products. Products carrying the FSC label are independently certified to assure consumers that the wood used is coming from sustainable, well-managed forests. There are currently a limited number of FSC certified forests limiting the supply of sustainable wood however the number of forests is growing. Such forests are inspected and certified against strict standards based on FSC’s 10 Principles of Forest Stewardship. In order to be given FSC certification a forest must be managed in an environmentally appropriate, socially beneficial and economically viable manner. Findings – Online Research

Other Local Authorities

4.1 During its research, the Task Group found two scrutiny task group reports related to single use plastics from other local authorities which had both been published in 2019.

4.2 In January 2019, Lancashire County Council’s Internal Scrutiny Committee published a task group review on ‘Reducing Single Use Plastics in Lancashire’. This review was instigated by a notice of motion to full council requesting that Lancashire (as a whole) take a lead on reducing plastics use to reduce the negative impact on the environment. The review concluded that communication and education about recycling and reducing plastic waste is key and that it’s important that partners, not just the council, are involved to make a real difference in the county.

4.3 The task group made 14 recommendations, split into short, medium and long- term timescales. Recommendations included a campaign to promote the reduction of Single Use Plastics (SUP) used by the County Council’s

48 10 4b

workforce which the task group also wanted the Council’s partners, schools and district and borough councils to adopt and support the campaign. The report also recommended that the Council work with its suppliers to look at alternative materials to plastic in products (and their packaging) provided to the Council and to review a strategy for waste collection that ensured fewer reusable plastic items went to landfill.

4.4 In March 2019, City of Bradford Metropolitan District Council’s Regeneration and Environment Overview and Scrutiny Committee also published a report for a task group review into Single Use Plastics. This review was also instigated by a notice of motion to full Council in relation to SUP and how Bradford Council could reduce its use of SUP and encourage key partners and local organisations to do the same. The review concluded that while some good work was being done in pockets of the Council more work was needed to implement plastics reduction across the Council whilst recognising that in some cases there are no practical alternatives at this time. They also recognised the importance of working in partnership with other organisations, not just to remove plastics but, to educate the public about their personal plastics use.

4.5 Recommendations from this review included: the development or a single use plastics policy to help become a plastic free council by 2024; the appointment of SUP Champions (one Member, one Officer); favouring suppliers who are eliminating SUP during procurement process; work with Yorkshire Purchasing Organisation (YPO) to develop more recyclable and biodegradable material in packaging; and working with partners and schools to educate the public.

Tips to reduce paper and plastics use

4.6 There are many websites, blogs and forums online that provide information and tips about ways individuals and organisations can reduce their paper and plastics use in their daily lives and working practices respectively. A list of those used to research this review is provided in the Sources section of this report. Many web pages or content on them were provided by consultancy firms specialising in providing services to organisations to help them reduce their materials waste.

4.7 The suggested benefits for an organisation in undertaking such changes to working practices include costs savings; enhanced reputation among customers (residents), clients and potential shareholders (for private sector) in relation to commitment to the environment; more efficient working practices; and more engaged and motivated employees. More and more businesses and organisations are becoming more aware of the impact that plastic is having on the planet and are endeavouring to do their part to reduce/minimise the amount of plastic they use.

4.8 There appeared to be more content available in relation to plastics reduction than paper, most likely because plastics are seen as a greater risk to the environment as it doesn’t decompose like paper and may not be as easy to recycle in most cases.

4.9 Several of the pages discussing the reduction of plastics pollution referred to three Rs namely, Reduce, Reuse and Recycle or some variation (some also

49 11 4b

included Remove, Replace and/or Refuse). Broadly, these words refer to the following:  Reduce – suggests reducing the amount of plastic you use in general terms either by making different choices about the things you buy/use.  Reuse – this may refer to reusing the SUP if possible or could be applied to any plastic product that could be reused if sold/bought second hand, disposed of differently or repurposed (upcycling) when you’re finished using it for its original purpose.  Recycle – when a plastic is recyclable, and you no longer need it make sure it is recycled properly and not dumped as litter or put with residual waste that goes to landfill or incineration.  Replace – Sometimes used interchangeably with Reuse, suggests replacing SUP with a product or process that avoids the SUP (for example, reusable/non plastic shopping bags, using a refillable water bottle rather than continually buying bottled water). In the case of paper reduction this would apply to taking a reusable cup to the coffee shop/café instead of using paper cups when taking out or using scrap paper to write notes.  Remove – similar to Reduce but may be specific to a particular product using SUP, it may not be possible to completely remove some SUP because there are no alternatives  Refuse – suggests refusing to take a SUP when offered one as part of a product or service (e.g. a plastic straw with your drink, a plastic lid for your takeaway beverage cup). Examples of refusing paper may include not accepting paper copies of reports, leaflets or napkins.

4.10 On-line information specific to ways of reducing plastics use in the workplace suggested a variety of different initiatives or approaches to the issue. Most suggestions involved encouraging employees to change their behaviours/habits in relation to SUP and other waste. A common example is encouraging staff to use refillable water bottles and providing filtered water taps (water dispensers plugged into water mains are preferable to portable ones which require water from the big plastic dispensers delivered by the supplier) rather than buying bottled water from the shop (water bottles are among the most common form of plastic polluting the environment).

4.11 Other suggestions include removing plastic and paper cups from meeting rooms and kitchens/canteens and encouraging staff to have their own reusable cups for hot drinks. Some also suggested using loose leaf tea or plastic free tea bags, rather than most other brands of tea bags which do contain plastics, and having milk delivered by the milkman in glass bottles which can be returned and reused rather than using milk from plastic bottles.

4.12 In relation to food/eating habits, providing reusable cutlery and plates/dishes and removing plastic spoons, knives and forks or paper plates from kitchens and canteens helps to reduce waste. Also, encouraging staff to bring food from home in reusable containers rather than buying ‘grab and go’ food in plastic and paper packaging helps to reduce waste. To encourage staff to bring food employers need to ensure there are facilities to prepare or reheat food. Alternatively, some web pages suggested providing meals on site so that you can control the waste that is produced. Avoiding ‘grab and go’ food may also be better for employees health if they are preparing, or being provided with, healthier meals.

50 12 4b

4.13 In relation to the activities of the organisation, carrying out a waste audit on a regular basis is suggested as a good way of understanding the waste produced by the organisation so that measures can be put in place to reduce this waste. Most web sites suggest working with the organisations suppliers to reduce the plastics in their products or the packaging used to deliver supplies. This may be something that can be done with a supplier during a contract or may be something that would need to wait until the organisation is looking to renew a contract or find a new supplier with a better record on minimising plastics use.

4.14 Repairing, reusing or extending the life span of older equipment containing plastic components rather than replacing them with new plastic equipment can help to reduce plastics use.

4.15 In relation to reducing paper use, it was suggested by some web pages that paper waste is one of the most persistent and most preventable operational costs in the modern office. In the age of cloud storage and mobile first communication there are more ways to transmit information without using paper in the process. It may not be possible to create a completely paper free office however there are a number of steps an organisation can take to reduce paper use.

4.16 Implementing and enforcing rules on printing is one of the most common ways to manage paper use. Implementing duplex printing (print on both side of paper) should reduce waste by ensuring the minimum amount of paper is used to print a document. Using wider margins and smaller font for draft or non-public/official documents will also reduce paper use. For example, this document is 28 pages long using standard margins for a Task and Finish Group report, however wider margins would have reduced the report to 25 pages. Discouraging unnecessary printing will likely lead to the biggest reduction in paper use. Providing two screens can help staff carrying out data entry/moving or other processing tasks, removing the need to print the data they are processing first. Encouraging employees not to print emails and storing documents electronically rather than as hard copies will save paper and reduce the need for storage space which can lead to more efficient use of floor space in offices.

4.17 Other analysis suggests that a lot of organisation use more paper than is necessary due to their existing systems and processes. One source suggested that a culture of wastefulness exists in many businesses (organisations) as employees get caught up in the whirlwind of the everyday operations and it can therefore be difficult to change. To create a strategy for changing paper use the organisation first has to understand the flow of paper- based processes; how and where paper enters the organisation, where it moves in between departments and where it clogs up/slows down the flow of processes. Managers and the staff carrying out these processes are best placed to understand why paper is being used and how it could be removed.

4.18 When looking to reduce paper use it is important to set measurements and benchmarks to understand your starting point and how the organisation, or departments within the organisation, are moving towards measurable targets. The goal of removing paper from processes may not simply be to reduce costs and the impact on the environment. It may also be to improve systems making it easier for staff to manage their work loads and remove mundane tasks. If employees understand how initiatives positively impact upon their

51 13 4b

work, they are more likely to buy into the change and take an active role in achieving the goals set.

4.19 As well as removing or reducing waste within the organisation, some sources suggest that organisations should play a role in keeping the local environment free from litter and pollution by organising and encouraging staff to take part in litter picks or other clean-up projects e.g. in local parks, rivers or beaches.

4.20 Employees may be best placed to suggest ways that they could reduce waste through paper and plastics use in their roles. Several web pages identified the importance of getting buy in from staff to the aims of the organisation in relation to waste reduction and supporting the environment by explaining how changes will be beneficial to them as well as the organisation and the environment. Others also emphasise the importance of senior leaders showing commitment and driving initiatives to see long term change in the culture and practices of the organisation. Findings - Meetings with Officers

5.1 During the review the task group met with Council Officers from the following areas:  IT  Democratic Services  School Services (Catering, Cleaning, Caretaking)  Procurement  Recycling and Waste Collection

5.2 The task group discussed how each of these areas can and is currently working towards reducing paper and plastics use, and waste generally, within their service and across the Council.

IT Services

5.3 In September 2019, Cabinet approved investment in a device refresh involving 1,600 (two thirds of the Council’s IT Estate) new devices replacing old devices which have reach the end of their life cycle. The device refresh will see all desktop PCs replaced by Windows Surface Pro tablets and laptops (except were not appropriate i.e. due to additional needs of staff or specific hardware or software needed for particular tasks e.g. graphic design). The task group was informed that the planned IT infrastructure refresh was due to be completed by May 2020. Providing officers with mobile technology like a tablet or laptop rather than a desktop computer would enable officers to work anywhere and access their electronic files and folders remotely (e.g. in a meeting or on site) removing the need to print paper copies of documents to work away from their desk.

5.4 New technology was also going to enable traditional desktop telephones to be removed as officers could receive calls through their tablet or laptop. Implementation of the new telephony began in January 2020 and was scheduled to be completed by May 2020. Not providing officers with new desktop phones was cheaper to the Council and as most components in a phone were plastic it would also reduce future plastics use. Video conferencing and streaming capabilities also meant that officers would be able to hold meetings online rather than traveling long distances which is also

52 14 4b

better for the environment by avoiding carbon created by road, rail and air travel and avoids travel costs.

5.5 The Assistant Director of Information Technology is the ONE Digital Lead within the Council’s ONE Council Modernisation Programme (announced at Cabinet in July 2019) and explained some of the other initiatives which were ongoing or due to commence. Office 365 is being introduced which includes a function called “Teams”. Teams enables collaboration between officers (and external partners who also use Teams) through video calls, message boards and file sharing; this could help to reduce paper use by enabling digital meetings and sharing of documents, removing the need to print. WiFi was also being reviewed within Council buildings and being made available to the public as well as officers. The Council has adopted a “Cloud First” strategy with the purpose of moving systems and digital storage to the cloud or hosted off premises, reducing the need for onsite servers. This will reduce the Council’s energy use by reducing and ultimately removing the need for Data Centres within Council Buildings. St Helens Council was reported to be at an advanced stage of deployment of its mobile technology platform within the Liverpool City Region.

5.6 Corporate policies have been developed for managing agile working however, no specific policy had been produced in relation to managing paper use and printing. The Task Group was provided with a summary report on the use of paper through the Council’s Multi-Functional Devices (MFDs) (i.e. combined printer, scanner and photocopier). Officers are required to log into the MFDs to access their printing or to scan and copy documents. This enabled the MFD system to track the total number of print jobs for individuals, teams and departments based on the number of simplex and duplex jobs (i.e. single or double sided), colour print or greyscale, and number of pages to enable the tracking of cost (calculated based on cost of ink and a proportion of the maintenance fee charged by Hewlett Packard (HP) for the MFD contract) and paper use (cost of paper not included).

5.7 Reports could be produced to illustrate which MFDs were most frequently used and which teams used them the most. Usage data was used to recharge the cost of MFD provision to each service via the Council’s Financial Information System (FIS). The total cost for the year from April 2019 to February 2020 of MFD use was £140,000 (not including paper costs).

5.8 The fleet of MFDs was due to be refreshed as the Council was coming to the end of its current contract with HP and the MFD usage data would be valuable in decision making. It was expected that the Council would be able to significantly reduce its fleet of MFDs as the need for printing/ copying documents was reduced by new technology. Renewing the fleet was also an opportunity to understand where best to locate devices based on current usage levels.

5.9 Although the MFD usage reports were used to recharge services the costs of the MFDs and would be used during the refresh the reports were not currently being used in any way to manage or monitor paper use. There was an opportunity to provide reports to directorates, departments and teams that showed their paper use for a given period of time. These reports could be used to see changes in paper use over time and for managers to work with officers in their teams to manage their paper use.

53 15 4b

5.10 Since this report was written, the impact of the COVID-19 Pandemic has encouraged the Council to accelerate the modernisation of its IT services. The developments include:  Soft phone roll-out being completed - except for Contact Centre and Contact Cares (which need additional work);  Device Refresh Phase I completed and Phase II commenced;  Microsoft Teams along with other elements of Office 365 - including Outlook Webmail, Teams Live and SharePoint – now operational and further exploration of the available tools is underway;  A Wi-Fi model developed for two of the large Town Centre buildings (Town Hall and Wesley House) and considering Atlas House implementation.

Procurement

5.11 The group was advised that the Council had been using recycled products for at least 12 years and had been increasing their use each year. In relation to stationary, 74% of stationary products procured are environmentally friendly (such as refillable pens made from recycled plastics). The use of paper within Council services was varied. The Procurement Service provided a variety of paper options including virgin paper and recycled paper. There were circumstances where the use of virgin paper was necessary due to the need for a high-quality finish on documents. However, in most circumstances it was not necessary and recycled paper, though may be lower quality, would suffice.

5.12 It was pointed out that recycled paper and eco-friendly paper were more expensive than virgin paper. As previously mentioned, the Council did not currently have a policy or protocol for services to follow regarding the choice and use of paper therefore the Procurement Service couldn’t advise services on which to choose.

5.13 Away from the office, the Council has reduced its paper use by removing paper towel dispensers from toilets, replacing them with hand dryers (toilet paper is obviously still provided). Paper towels are still provided in office kitchens for food preparation and cleaning, although some services have chosen to use tea towels provided by members of staff. Currently, all of the toilet paper and paper towel products procured by the Council are FSC certified.

5.14 Regarding the Council’s service providers and suppliers, some of the Council’s contracts come with sustainability and eco-friendly clauses. These clauses are an important part of how bids are scored with additional weighting given to environmental factors as well as cost and effectiveness so that more of the Council’s contractors operate in an environmentally responsible way. As more of the Council’s current contracts expire, more clauses regarding sustainability and eco-friendly practices could be added to new contracts to increase the influence the Council has on its supply chain.

Councillors and Council/Committee Meetings

5.15 Historically, Democratic Services has been a heavy user of paper and printing having to provide paper agendas for Council, Cabinet and Committee meetings for councillors and officers. As well as agendas, councillors receive a reports, briefing notes and training/induction documents. However, since the

54 16 4b

introduction of Mod.gov and tablet devises for councillors and senior officers, Democratic Services has reduced its photocopying/printing budget by £40,000.

5.16 The task group were advised that the Council is required to keep one hard copy of all meeting agendas for public record and keeps one copy of minutes for the archive. Chairs of meetings usually have a hard copy of the agenda to help them manage the meetings. Councillors’ pigeon-holes receive much less paper than they used to; anyone wanting to provide councillors with information are encouraged by the Democratic Service Team to send it to them electronically. Democratic Services no longer provide officers with hard copies of papers and all of the senior officers who regularly attend meetings have tablet devices however some may still choose to print documents themselves.

5.17 Councillors have had a mixed response to the introduction of tablet devices to replace paper agendas however more councillors have adjusted to using the tablet and understand the benefits of it. Training is always available to councillors to help them learn how to use their tablet devices. Feedback from members is that there can be issues with using a tablet device that don’t occur with paper documents. For instance, some members have had issues accessing their device by forgetting their password, not being able to get good internet connectivity or tablets switch off when the battery runs out during long meetings.

5.18 During their induction, new members are currently provided with paper documents in a large lever arch file; this approach could be replaced by providing electronic documents as long as new members were provided with tablet devices as soon as their elected. Providing induction documentation electronically would help to set new members up to embrace a culture of being paper light from the start of their term. The Council also produced paper diaries that contained the dates for all council meetings in the municipal year. However, these diaries could quickly become out of date as meetings were moved or start times changed and could cause confusion for Councillors.

5.19 One issue raised was the use of paper or plastic cups at meetings. The group was informed that plastic cups had been replaced by paper ones in the Members’ Room and that the catering supplier uses paper cups (some plastic cups were still available however, these were just remaining stock from previous orders). Members of the group wanted to go further and remove all disposable cups from meeting rooms to avoid their use. It was suggested that councillors should be encouraged to bring their own reusable bottles to meetings for cold drinks. It was noted that many Councillors (including members of the task group) were already in the habit of bringing their own reusable bottles of water to meetings, however all needed to be encouraged to do so.

5.20 Regarding the provision of hot drinks at meetings, it was also suggested that Members should be provided with, or encouraged to bring, their own cups for hot drinks. It was noted that there are already hot drink making and cleaning facilities within the Members’ Room which would enable Councillors to reuse cups. It was suggested that hooks could be provided for Councillors to hang their cups on similar to a scheme seen by one of the task group members in another organisation looking to remove plastics. These hooks could be hung

55 17 4b

on members’ lockers to ensure each had their own that would be easy to find.

5.21 As well as Councillors, the task group believed Officers should be encouraged to bring their own containers for drinks to meetings. The group noted that this wouldn’t be as easy for those officers not located at the Town Hall and also noted the issue of providing cups for guests/visitors to meetings and how these would be stored, cleaned etc. Besides the main meeting/committee rooms, most teams had their own meeting spaces and they had cups and glasses for use during meetings. However, for meetings in the main committee rooms and Council Chamber at the Town Hall, there was not currently a process or equipment to provide any cups at meetings.

5.22 There is a kitchen within the Town Hall which was previously operated by an internal catering service which provided food and drinks for meetings and events. In 2010/11 the catering service ceased as part of savings following the Comprehensive Spending Review and catering has since been provided by external suppliers. The facilities could still be used to store and clean cups for meetings however cups would still need to be transported to and from meeting rooms and cleaned by someone. The Executive Development Chef stated that as part of the catering contract crockery could be provided when catering is ordered for a meeting however this may incur additional charges.

5.23 The group also discussed the provision of food for members at evening meetings. Members of the task group noted that the food had previously been provided with lots of plastic packaging and that often more food than necessary was provided leading to a significant amount of waste. It was questioned whether the provision of food was necessary and, if so, whether the use of plastic packaging could be reduced.

5.24 The group was advised that food was provided as some members often had no opportunity to eat prior to an evening meeting because of work commitments and some evening meetings lasted until late at night. Also, food for meetings or training was usually ordered based on the number of people scheduled to attend meetings however, often, not all people would attend therefore more food would be provided than was actually needed. In terms of the packaging for food, the group were advised that discussions had taken place with the suppliers to replace plastic packaging with paper/card packaging. When a buffet was provided the plastic trays used could be returned to the supplier for reuse.

Schools

5.25 Schools are an important partner of the Council and the task group believes that working with them to help them to reduce their paper and plastics use will make a big difference to the environment and educate young people about the importance of climate change and avoiding waste. The task group learned about some schools that were taking their own initiatives to reduce paper and plastics use. The Task Group was informed that Rainhill High was becoming an “eco-school”. One initiative the secondary academy had was to supply all pupils with reusable bottles and install water fountains around the school to reduce plastics use in drinks (this had the additional benefit of encouraging pupils to drink water rather than sugary soft drinks).

56 18 4b

5.26 From an IT perspective, in August 2019 the Council reintroduced an in-house school IT support service. One of the benefits of this has been the ability to reuse some of the Council’s old devises (which are being replaced by new Surface tablets and laptops) in the schools including providing computers in places like the kitchens for the Catering Service’s digitisation. This will enhance the technology available within schools as well as extend the life cycle of the devices rather than discarding them.

5.27 In addition to providing recycled IT equipment to schools as part of the IT support service, officers were working on a print policy for schools to manage their printer and paper use and discourage any unnecessary printing. The Council could also work with schools on reducing paper use by governing bodies by encourage digital agendas and technology use.

5.28 Schools have historically communicated with parents through paper (e.g. letter sent to the home address or passed on to pupils to take home). However, technology enables schools to communicate electronically with parents and more and more schools in the Borough are introducing platforms (e.g. websites or apps) that parents can log into to get the information they need from the school or to provide payments for lunches and field trips.

Schools Catering

5.29 The Council currently provides Catering Services to 62 schools (including primary, secondary and special schools) in the Borough. The Executive Development Chef Informed the group that there were various issues with the prospect of being able to remove single use plastics from the service. Within secondary schools, the majority don’t have a large enough canteen to accommodate seating for all pupils at once. This leads the need to provide “grab and go” food that pupils can take to eat elsewhere which requires disposable containers and utensils. Wooden cutlery is an alternative option to plastic which has been requested by some of the schools however it is four times more expensive than plastic and has its own impact on the environment. Also, feedback from pupils has been that they don’t like the texture of the wooden utensils when eating. The service found that where metal cutlery has been used for grab and go it is often not returned which becomes costly when it is having to be continually replaced.

5.30 In relation to primary schools, these were seen as easier places to avoid paper and plastics in catering as they did have space for all pupils to eat so metal cutlery and plates could be provided. The council is working with suppliers to remove plastic bottles and having paper instead of plastic where possible in packaging. Across the catering service generally they were trying to become more digital in terms of record keeping and documentation to reduce paper use.

5.31 The group discussed the example of a school in Halton which had digitised the pupils’ food ordering process through a web-based system used to order meals the day before. Using this system enabled the catering service to only make meals in the quantities needed based on pupils’ choices and encouraged pupils to engage electronically and involve their parents in their food choices. The group was advised that a similar initiative was an aspiration within the Council’s school catering service. It was suggested that with the

57 19 4b

capability of the new technology being introduced to the Council such a process would be possible in the near future.

Depot Services

5.32 As well as the catering service, services based at Hardshaw Brook Depot (i.e. schools caretaking and cleaning, security, transport, waste collection, ground maintenance) were working collectively to consider ways of digitising the way the operate with the development or commissioning of apps. These apps will be designed to support efficiencies within the ways services work but should also help to reduce paper use. In cab technologies for refuse collection, grounds maintenance and highways should help to reduce paper use and avoid unnecessary travel back and forth to the depot. As with office based staff, there will need to be a culture change in relation to paper use to achieve the benefits of the new technology.

Recycling

5.33 There is a recognition by the task group that all paper and plastics use cannot be eliminated because there are circumstances where paper and plastic is necessary or there are no alternatives at this time. Where paper and plastic is unavoidable, the task group is keen to ensure that it can be and is recycled. Within Council Offices, there are recycling and residual waste bins within communal areas such as kitchens as well as waste-paper bins in various offices. Staff are not permitted to have bins at their desk (or if they do, they must empty them into the relevant communal bins). The bins are clearly marked to ensure people know what they should and shouldn’t put into each bin.

5.34 The group was advised that efforts in relation to the recycling service have been focussed on the customer side (i.e. residents) and encouraging people to recycle more. She suggested that as well as encouraging people to recycle there should be a focus on encouraging people to reduce their waste overall by reusing things or avoiding purchases or habits that produce a lot of waste. Initiatives to increase residents’ awareness of waste reduction have been running in libraries and shopping centres in the borough.

5.35 During Christmas people produce a lot more waste so the service was working to encourage people to think more about waste reduction and reuse (or upcycling) and recycling more. Currently, the refuse collection service produces stickers and paper calendars informing people of collection dates for recycling, waste and garden waste for the year. If this could be digitised it would help to reduce paper use however consideration always needs to be given to those residents who can’t access online material as easily as most of the population. Conclusions

6.1 There is a lot more information about, and attention given to, reducing plastics use than paper use given that plastic takes hundreds of years to degrade and has had such a significant impact on our environment, particularly our oceans which has received a lot of media coverage. However, this Task Group also believes that reducing paper use should be a priority as this can contribute to deforestation and pollution which has an impact on the climate, wildlife and

58 20 4b

water supply.

6.2 Similar to the scrutiny reviews by Lancashire County Council and Bradford Council which focused solely of plastics use, this task group has been focused on how St Helens Council can reduce its use of SUP and encourage its partners in the borough to do the same. The task group made similar findings to the other reviews in that there are already many ways in which we are reducing our use of SUP and changing behaviours.

6.3 The Task Group is pleased that 74% of the stationary products the Council purchases are considered to be environmentally friendly and hopes that this trend continues. While environmentally friendlier options sometimes come at additional cost, the Task Group would like to see more weight given to the environmental impact of a decision and less emphasis on choosing the cheapest option. With regards to procurement generally, the Task Group believes the Council should prioritise those suppliers and providers of services who can demonstrate their commitment to reducing their environmental impact through certifications such as ISO14001.

6.4 The Task Group is very aware that we cannot completely eliminate plastics use from the Council’s business. In relation to some equipment and supplies, there are currently few viable alternatives to plastics (e.g. IT equipment and furniture) however the Task Group is pleased that initiatives such as reusing old IT equipment in schools is extending the life of the plastics that we do have as well as providing other benefits (such as increasing the availability of IT equipment in schools).

6.5 The task group is keen to remove disposable cups from meeting rooms within Council buildings and reduce the plastic packaging used by catering providers. The task group notes that some councillors and officers already carry a reusable water bottle with them for meetings and they should encourage their colleagues to do the same. The Council should provide facilities to enable Councillors to also bring reusable cups for hot drinks at meetings. This should be straight forward as there are currently cleaning facilities available in the Members Room at the Town Hall. With regards to cups for visitors and guests, the task group would like to see officers contribute by helping to supply and clean reusable cups for the meetings that they host. The removal of disposable drink containers should be done on a phased basis with people/services given plenty of notice to prepare to put alternatives in place.

6.6 Similarly, the Task Group understands that paper cannot be completely removed from the Council’s processes and amenities. Where the use of paper is required, the type of paper the Council chooses to use can also have an impact on the environment. There appear to be arguments for and against recycled or virgin paper. Using recycled paper reduces the need to cut down more trees but it is of lower quality and can only be recycled a small number of times; trees have to be cut down to maintain the availability of paper. There are however growing efforts to ensure paper is produced in a sustainable way and, where the Council is purchasing virgin paper, the Task Group believes it should only be from sources certified (e.g. by the FSC) as sustainable.

6.7 There are many circumstances were replacing paper with a tablet or other electronic device may not be viable due to the specific requirements of the service or an individual’s additional needs. Any policies around paper use

59 21 4b

must be implemented with full consideration of equality impacts. However, these circumstances should be the exception to the rule and the Task Group believes that with the opportunities provided by new IT equipment the Council should be looking to considerably reduce its paper consumption.

6.8 It is recognised that the introduction of the new technology and ways of working, such as agile working enabled by mobile devices, will be a significant culture shift for many officers that may take time to embed. However, the Council has an excellent opportunity for services to rethink their practices to reduce the amount of paper the Council is using. Services should redesign their systems and processes to replace paper with digital information management and services should also be encouraged to conduct meetings remotely and digitally to reduce the need for paper and travel. It will be important that appropriate training is available to ensure officers are maximising the potential of the new devices.

6.9 The Council has the ability to monitor printing by each department however has so far not used this data to inform any strategies to reduce paper use. The Task Group wishes to see policies implemented that will provide guidance on the types of paper to use and where and when it is appropriate to use paper or digital. Policies should also ensure services are set targets for reducing their paper use and that these are monitored and reported on regularly. Targets should be incremental, allowing time for services to make necessary changes and reduce paper use consistently and continuously. As well as helping to reduce the Council’s impact on the environment, a reduction in use of paper should also lead to savings on stationary budgets. The use of plastic wallets, card files and folders should be reduced along with paper use as well as the need for space to storage documents.

6.10 As senior figures within the Council and visible within the public, Councillors should lead by example by changing their habits to reduce their paper and plastics use as well as actively encouraging officers, partners they work with and the public to do the same. On 10th July 2019, Councillors supported a notice of motion to “Tackle the Climate Change Emergency” and all should ensure they make their contributions to achieving the commitments made within the motion. The Task Group encourages all councillors to be conscious of their paper and plastic use so as not to create unnecessary waste.

6.11 The Task Group is pleased that Democratic Services has noticed a reduction in paper received by Councillors. However, the use of paper agendas for Council and Committee meetings and the provision of paper induction packs and documents at training sessions is a concern for the task group; considering all councillors have a tablet device that can be used to view documents electronically. The Task Group also believes that the Council no longer needs to provide paper diaries containing the dates for committee meetings as these can become out of date quickly due to meeting dates changing and all Officers and Councillors should utilise their digital calendars.

6.12 The Task Group understands some of the unreliability issues that can occur and agrees that at times it is difficult to read content on a tablet device because the screens are relatively small. Despite the potential limitations, the task group believes that councillors should not be given paper copies of reports or agendas at meetings as a default. Democratic Services, Training and IT need to support Councillors in their use of the technology and discourage the use of paper copies were possible. The use of paper should

60 22 4b

be in exceptional circumstances and requests for paper copies of documents should be made as a last resort.

6.13 The Task Group recognises the importance of buy in from senior management to achieving significant and sustained change to the culture and ways of working within an organisation. To encourage councillors and officers to adapt their habits and to lead the culture shift within the Council, the Task Group believes that a Climate Action working group should be established to champion environmental initiatives and promote the benefits of making changes. This working group should be led by a designated Climate Change Officer accountable for overseeing and leading on climate change issues generally and supported by councillors and officers who are particularly committed to the purpose of the group. The Council should develop the role of a ‘Green Advocate’ and encourage officers from all directorates to become advocates to lead on initiatives in their services and encourage their colleagues to change their habits and make a contribution to reducing their paper and plastics use, not just in the office, but in their personal lives as well.

6.14 To promote the Council’s commitment to addressing environmental issues and highlight the positive work taking place, the Council should incorporate a ‘Green’ focus into its Communications Strategy. Regular messaging about the initiatives being championed by the Climate Action working group and Green Advocates will support them in encouraging buy in and demonstrate to the public and the Council’s partners/stakeholders its commitment to the environment. Sources

Minutes of Full Council Meeting 10th July 2019 – http://moderngov.sthelens.gov.uk/documents/g5852/Printed%20minutes%2010th- Jul-2019%2018.15%20Council.pdf?T=1

LCR Year of the Environment 2019 – http://yoe2019lcr.org.uk/

A Green Future: Our 25 Year Plan to Improve the Environment – https://www.gov.uk/government/publications/25-year-environment-plan

Government Resources and Waste Strategy or England – https://www.gov.uk/government/publications/resources-and-waste-strategy-for- england

HM Treasury – Tackling the plastic problem – https://www.gov.uk/government/consultations/tackling-the-plastic-problem

Science Advances Magazine – Production, use, and fate of all plastics ever made https://advances.sciencemag.org/content/3/7/e1700782

WorldAtlas.com - What Is The Environmental Impact Of Paper? https://www.worldatlas.com/articles/what-is-the-environmental-impact-of-paper.html theWorldCounts.com – A Useful but Wasteful Product… https://www.theworldcounts.com/stories/Environmental_Impact_of_Paper_Production

Wikipedia – Environmental impact of paper

61 23 4b

https://ipfs.io/ipfs/QmXoypizjW3WknFiJnKLwHCnL72vedxjQkDDP1mXWo6uco/wiki/ Environmental_impact_of_paper.html

Lancashire County Council’s Reducing Single Use Plastics in Lancashire Report – http://council.lancashire.gov.uk/mgConvert2PDF.aspx?ID=144764

City of Bradford Metropolitan District Council’s Single Use Plastics Report – https://www.bradford.gov.uk/media/5331/2019-mar-single-use-plastics.pdf

Ways to reduce plastic use

https://www.earthday.org/campaigns/plastics/plastics-campaign/

https://www.onyalife.com/reasons-and-ways-to-reduce-single-use-plastic-in-the- workplace/

https://www.lessplastic.org.uk/9-ways-to-reduce-plastic-in-your-workplace/

https://www.lessplastic.org.uk/planning-to-reduce-plastic-waste-in-your-business-in- 2020/

https://www.lessplastic.org.uk/9-ways-to-reduce-plastic-in-your-school/

https://www.mynewlab.com/blog/how-to-reduce-use-of-plastic-in-workplace/

https://www.whereworkplaceworks.com/2019/08/08/plastic-in-the-office-how-to- replace-remove-reduce-and-reuse/

Ways to reduce paper use

https://blog.imagenetconsulting.com/7-ways-to-reduce-paper-usage-in-the-workplace

https://nektardata.com/6-tips-for-reducing-paper-consumption-in-the-workplace/

https://www.thebalancesmb.com/office-waste-reduction-tips-and-ideas-2877884

62 24 Council’s Use of Paper and Plastics

Rec Recommendation Responsible Officer Agreed Action and Date of Implementation No A That the use of disposable paper or plastic cups for Council meetings (e.g. Cabinet, Scrutiny and Regulatory Committees) be phased out and that reusable cups be provided. B That Councillors be requested to bring their own reusable cups/bottles to meetings held at the Town Hall and that provisions for storage of these cups/bottles be made in the Members’ Room. C That all agendas, presentations and documents provided during Council

63 meetings and training courses should be provided electronically in advance of the meeting/training session. Paper copies should only be provided to Councillors and Officers if specifically requested or if required due to additional needs. D That as of the May 2020 local elections, councillors’ induction packs be provided

digitally and not in paper format unless

specifically required due to a councillor’s individual needs.

E That the Council no longer produce paper

diaries containing dates of Council and Committee meetings and that Officers and Councillors be encouraged to use their digital calendars. 4b

25 4b

Council’s Use of Paper and Plastics

F That the role of a 'green advocate' be developed and officers from each directorate be encouraged to become an advocate and actively engage in initiatives to reduce the Council’s paper and plastics use. G That a Climate Action working group be established to lead on developing and implementing initiatives to reduce the Council’s paper and plastics use. The working group should include councillor representation and engage with green advocates. H That the Council appoints an accountable officer overseeing and leading on climate change issues. This role should include 64 responsibility for administering the Climate Action working group; recruiting and liaising with green advocates and promoting environmentally friendly practices within the Council and its partners. I That all Councillors and Senior Officers undergo training on the climate emergency by March 2021, with Cabinet Members receiving the training as a priority. J That following a baseline review of paper use for the 2019/20 municipal year, the Council should review its systems and processes to reduce total annual paper use to 70% by 31st March 2021 and to 50% by 31st March 2022. These targets apply to the Council as a whole, not individual teams (i.e. some may be able to reduce paper use by

26 Council’s Use of Paper and Plastics

more than 50%, others may already be relatively paper light). K That all services receive regular reports regarding their printer usage to enable them to monitor their paper use to assist teams in achieving the targets they are set for paper reduction. L That the Council creates a paper light policy to encourage staff to decrease their paper usage. This should include guidelines such as: how best to utilise digital technology instead of paper; not printing out emails; the types of paper available via stationary supplies; being conscious of the type of

65 paper used for different purposes; how services should monitor paper use. M That the Council creates a plastic light policy to encourage staff to decrease their plastics usage. This should include guidelines such as: discourage the use of single use plastics in stationary (i.e. reduce laminating, use of plastic wallets) and discourage the use of single use plastics at meetings or events. N That the Council review its fleet of multifunctional devices (MFDs). The aim of the review should be to reduce the number

of devices provided across the Council’s

estate, ensuring the devices are

appropriately located. This will ensure more

efficient use of devices and reduce the Council’s consumption of plastic contained within devices. 4b

27 4b

Council’s Use of Paper and Plastics

O That the Council’s Communications Strategy incorporates a section on promoting the Council’s green initiatives, highlighting the positive impacts on the borough and wider environment. 66

28 4c CABINET

23 September 2020

Report Title: Spotlight Review of County Lines Issues Within St Helens Task and Finish Group Report

Cabinet Portfolio Community Safety

Cabinet Member Councillor Jeanie Bell

Exempt Report No

Reason for Exemption N/A

Key Decision No

Public Notice issued N/A

Wards Affected All

Cath Fogarty Executive Director of Corporate Services Report of [email protected] 01744 676885

James Morley Scrutiny Manager Contact Officer [email protected] 01744 676277

67 4c

Ensure children and young people have a positive start in life

Borough Promote good health, independence and care across our communities priorities Please mark X Create safe and strong communities for our residents X for any priority supported by Support a strong, diverse and well-connected local economy this report

Create a green, thriving and vibrant place to be proud of

Be a modern, efficient and effective Council

1. Summary

This report presents the Spotlight Review of County Lines Issues in St Helens Task and Finish Group’s report to Cabinet.

2. Recommendations for Decision

Cabinet is recommended to:

i) Receive the Spotlight Review of County Lines Issues in St Helens Task and Finish Group Report for consideration; ii) Provide a response to the recommendations in the Task and Finish Group Report to be presented to the Place Services Scrutiny Committee at its meeting on 24th November 2020.

3. Background /Reasons for the recommendations

3.1 The Safer Communities Overview and Scrutiny Panel commissioned a task and finish group to review the County Lines issues within St Helens as part of its work programme for 2019/20. The Task and Finish Group carried out research and held meetings with officers to develop its conclusions and recommendations as set out in the report. The Task and Finish Group’s report was approved for submission to Cabinet by the Overview and Scrutiny Commission at its meeting on 20th July 2020.

3.2 Since the report was approved the Council’s Scrutiny Committee Structure has been amended, with responsibility for issues within the former Safer Communities Overview and Scrutiny Panel’s remit now within the remit of the Place Services Scrutiny Committee. As such, Cabinet’s response will go to the Place Services Scrutiny Committee.

3.4 This report to the Cabinet meeting on 23rd September 2020 acts as the submission of the report to Cabinet. The response of Cabinet will be presented to the Place Services Scrutiny 68 4c Committee meeting on 24th November 2020 where the nominated Cabinet Member and Officers will be requested to present the response.

4 Implications

4.2 Community Impact Assessment (CIA) Implications

4.2.1 Social Value - The impact of any of the recommendations within the Task Group Report on employing local people, spending in the local economy or local procurement would depend on how the recommendations are implemented, if accepted/supported by Cabinet.

4.2.3 Health and Wellbeing - Reducing levels of Child Criminal Exploitation through County Lines related crime and disorder would have a positive impact on the health and wellbeing of the victims, their families and any others negatively affected by such crimes.

4.3 Customers and Resident - Implications on the customer/resident have not been taken into consideration for the purposes of submitting the Task Group Report to Cabinet for consideration. As mentioned above, reducing child criminal exploitation related to county lines would have a positive impact for those residents who have been victims previously or could have been victims in the future.

4.4 Asset and Property - It is not expected that the implementation of any of the recommendations within the Task Group Report would have an impact on the Council’s asset base or its occupation.

4.5 Staffing and Human Resource - Some of the recommendations within the Task Group Report could have workforce implications if accepted. Consultation with Senior HR Officers will need to take place if the relevant Task Group recommendations are accepted and implemented by Cabinet.

4.8 Policy Framework Implications - The Task Group Report includes some recommendations related to new or existing policies and strategies. If the recommendations are

69 4c accepted/supported then Cabinet and Officers will be required to develop new policies/strategies or update existing ones.

5 Background papers

Overview and Scrutiny Commission Agenda and Minutes of meeting held on 20th July 2020

6 Appendices

Spotlight Review of County Lines Issues in St Helens Task and Finish Group Report

70 4c

Safer Communities and Children & Young People Services Overview & Scrutiny Panels

Spotlight Review of County Lines Issues within St Helens

February 2020

Task Group

Councillor(s) Michelle Sweeney – Chair Carol Ann Gill Trisha Long Linda Mussell Charlie Preston Lisa Preston Teresa Sims

71 1 4c

Table of Contents

Chairman’s Foreword and Acknowledgements...... 3

Introduction and Terms of Reference...... 4

Background ...... 5

What is County Lines?...... 5 What is Child Criminal Exploitation?...... 5 BBC Report in August 2019...... 5 Government Serious Violence Strategy...... 6 Home Office County Lines Pilot Project...... 7 Crimestoppers and other Charities...... 9 Local Context...... 10

Findings...... 11

Who Is Vulnerable to Criminal Exploitation?...... 11 How Criminals Operate?...... 11 How are Services Reacting? ...... 11 What are Education Settings doing? ...... 11 Interventions in the Community ...... 12 Other Opportunities ...... 12 Risks of Unregistered and Unregulated Private Children’s Care Homes ...... 12

Conclusions...... 13

Recommendations ...... 15

Sources ...... 16

72 2 4c

Chair’s Foreword and Acknowledgements

Councillor Michelle Sweeney: Chair of the County Lines Task Group

County lines is a serious criminal issue across the whole country. It is not unique to any single area or demographic. It is not an issue that can be tackled by any individual council, police force or partner-agency and requires a multi-agency/multi- disciplinary approach to share skills, knowledge, experience and best practice to tackle what is becoming an issue across the country, not just St Helens.

The Home Office Serious Violence Strategy acknowledges that dealing with increases in knife crime, County lines and homicide depends on partnerships across a number of agencies and sectors including education, health, social services, housing, youth services and victim services as well as the work of law enforcement and criminal justice.

County lines and related crime and violence involves the exploitation of vulnerable people by the real criminals who take advantage vulnerabilities so they can stay under the radar of the police and other agencies. Whilst these criminals also target vulnerable adults (e.g. through cuckooing), the main focus of this Task Group has been on the exploitation of children because, as corporate parents, it is a Councillor’s duty to protect our children from any harm and help them to have the opportunity to live a safe and happy life.

Child criminal exploitation is a growing issue but still something very few members of the public will be aware of or would ever consider as an issue that could happen to a child or young person they know. The Government’s Serious Violence Strategy calls for a national campaign of awareness raising communication activity about the threats of county lines to young people and how to avoid becoming involved and exploited by gangs. It is really important that St Helens Council plays its part in raising the awareness of residents.

Whilst we’ve been reassured through the process of the review that Council Officers and Partners are doing all they can to improve the way we tackle county lines and protect young people, more needs to be done to reduce the risk of exploitation. Although this issue has been thrown into the spotlight with national media it needs to remain a priority in the long term and not fade into the background once the media attention has died down.

As Chair of the Safer Communities Overview and Scrutiny Panel and Chair of the County Lines Task Group, I would like to thank all Councillors who participated and contributed to the review for their ongoing-commitment to this piece of work, and all officers and partner agencies who have contributed through the provision of information and attendance at meetings.

73 3 4c

Introduction and Terms of Reference

1.1 The Safer Communities Overview and Scrutiny Panel added this issue to its work programme following a report by the BBC in August 2019 which highlighted County Lines issues in St Helens involving children in care being exploited by criminal gangs to deal drugs in North Wales. The BBC’s report had raised many concerns in the public so the Panel conducted the review to gain assurances that responsible agencies were doing everything they could to protect/safeguard vulnerable young people in St Helens from exploitation by criminal gangs involved in county lines offences.

1.2 As the main focus of this review was on protecting vulnerable young people from criminal exploitation it was agreed that the County Lines Task Group should be a joint scrutiny task and finish group between the Safer Communities and Children and Young People Services (CYPS) Overview and Scrutiny Panels, with Councillors from each of the Panels invited to take part. Each of the Panels was represented as follows:  Councillor Sweeney – Chair of Safer Communities Panel  Councillor Trisha Long – Chair of CYPS Panel  Councillor Sims – CYPS Panel  Councillor Charlie Preston – CYPS Panel  Councillor Gill – Safer Communities Panel  Councillor Mussell – both Panels (prior to December 2019)  Councillor Lisa Preston

1.3 Although this is a joint task group, the Safer Communities Panel remains the lead Panel and is required to approve the report for it to be submitted to the responsible bodies.

1.4 The objectives for the review agreed by the Task Group were:  To assess the prevalence of issues with county lines in St Helens and surrounding areas  To understand the potential reasons for these issues existing in St Helens compared with other areas  To understand what relevant partner agencies were doing both individually and in partnership with each other to tackle the issue  To consider what more could be done and the barriers to achieving better outcomes

1.5 To carry out the review the Task Group received information about Government strategies, guidance and policies in relation to County Lines. The Task Group also held a meeting on 24th January 2020 to meet with officers from the following services to receive information about current work being undertaken to tackle Organised Crime Gangs (OCGs) involved in County Lines and protect the young people that they were targeting.

1.6 This report details the findings of the Task Group’s work and its conclusions and recommendations. This report will be submitted to Cabinet and the Merseyside Police and Crime Commissioner’s office for consideration with a request for a response to the recommendations.

74 4 4c

Background

What is County Lines?

2.1 According to the National Crime Agency’s website1, “‘County Lines’ is a term used when drug gangs from big cities expand their operations to smaller towns, often using violence to drive out local dealers and exploiting children and vulnerable people to sell drugs. These dealers will use dedicated mobile phone lines, known as 'deal lines', to take orders from drug users. Heroin, cocaine and crack cocaine are the most common drugs being supplied and ordered. In most instances, the users or customers will live in a different area to where the dealers and networks are based, so drug runners are needed to transport the drugs and collect payment.”

2.2 “A common feature in county lines drug supply is the exploitation of young and vulnerable people. The dealers will frequently target children and adults - often with mental health or addiction problems - to act as drug runners or move cash so they can stay under the radar of law enforcement.

2.3 “In some cases the dealers will take over a local property, normally belonging to a vulnerable person, and use it to operate their criminal activity from. This is known as ‘cuckooing’.

2.4 “People exploited in this way will quite often be exposed to physical, mental and sexual abuse, and in some instances will be trafficked to areas a long way from home as part of the network's drug dealing business.

2.5 “As we have seen in child sexual exploitation, children often don't see themselves as victims or realise they have been groomed to get involved in criminality. So it's important that we all play our part to understand county lines and speak out if we have concerns.”

What is Child Criminal Exploitation?

2.6 In the Government’s Serious Violence Strategy2, The Home Office defines Child Criminal Exploitation (CCE) as occurring “…where an individual or group takes advantage of an imbalance of power to coerce, control and manipulate or deceive a child or young person under the age of 18; it does not always involve physical contact and can also occur through the use of technology; and it is boarder than just county lines, including children forced to work on cannabis farms or to commit theft.”

BBC Report in August 2019

2.7 On 12th August 2019 the BBC published a video report3 regarding County Lines that covered specific issues within St Helens. The BBC’s report filmed

1 https://www.nationalcrimeagency.gov.uk/what-we-do/crime-threats/drug-trafficking/county- lines 2https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_dat a/file/698009/serious-violence-strategy.pdf 3 https://www.bbc.co.uk/news/av/uk-49321950/liverpool-to-north-wales-up-close-with-a- county-line

75 5 4c

Officers from Merseyside Police searching for missing children, predominantly 14 to 15 years old, from St Helens, most of whom were suspected to be linked to County Lines drug dealing in North Wales. In the video the Police Officers suggested that searching for children missing from care was now a daily routine and that the children were criminally exploited by drug gangs targeting vulnerable young people.

2.8 The BBC’s report also stated that across the UK 10,000 children were involved in County Lines related criminal activity. The report suggested that authorities had no idea how many young people were currently involved in County Lines in St Helens and that so far no one had been prosecuted in relation to exploiting (“trafficking”) those young people.

2.9 On 18th August 2019, a further extended video of the report4 from the BBC was published. This included responses from Sarah O’Brien, the Council’s Strategic Director of People Services, as lead for Child Safeguarding in St Helens, and Chris Green, Assistant Chief Constable of Merseyside Police.

2.10 The Council response to the findings of the report was that, nationally and not just in St Helens, the criminal exploitation of children is a crisis and that funding wasn’t good enough. It was noted that Mental Health Services, Schools, Social Care were all at breaking point and needed more resources putting in and that as a society we need to protect our vulnerable young children.

Government Serious Violence Strategy

2.11 In April 2018, the Home Office published the Serious Violence Strategy5. The Strategy was the Government’s response to serious violence and recent increases in knife crime, gun crime and homicide. The Strategy states that while law enforcement is a very important part, success depends on partnerships across a number of sectors such as education, health, social services, housing, youth services, and victim services.

2.12 Action in the strategy is framed on 4 main themes:  tackling county lines and misuse of drugs  early intervention and prevention  supporting communities and local partnerships  law enforcement and the criminal justice response

2.13 Chapter 3 of the Strategy is specific to County Lines and misuse of drugs. This Chapter focuses on the activity proposed to reduce violence, exploitation and abuse associated with County Lines activity within the Government’s broader programme of work to tackle drugs and serious and organised crime.

2.14 The Strategy states that “Police forces are taking a range of action against criminal gangs and organised crime groups involved in county lines drug dealing with an approach focused on both disrupting and prosecuting offenders but also, crucially, identifying and safeguarding those caught up in the model… Once caught up in county lines, exploited individuals are at risk of extreme physical and/or sexual violence, gang recriminations and

4 https://www.bbc.co.uk/news/av/uk-49389392/county-lines-criminal-gangs-targeting-children 5 https://www.gov.uk/government/publications/serious-violence-strategy

76 6 4c

trafficking.”

2.15 The Strategy refers to a working group set up by the National Police Chiefs Council (NPCC) which identified the need for a platform to share information and co-ordinate the policing response to county lines. This lead to a new National County Lines Co-ordination Centre (NCLCC) being established to help bring the law enforcement effort together.

2.16 The NCLCC became operational in September 20186. It is a multi-agency team of 38 experts from the National Crime Agency (NCA), police officers and regional organised crime units who work together to develop the national intelligence picture of the complexity and scale of the threat of county lines, prioritise action against the most serious offenders, and engage with partners across government, including health, welfare and education spheres, to tackle the wider issues.

2.17 Chapter 3 of the Strategy also calls for nationwide awareness-raising communication activity about the threat of county lines targeted to young and vulnerable people and how to avoid becoming involved and exploited by gangs. The activity is designed to deliver a range of communications and engagement activities in collaboration with the NPCC and Crimestoppers. The activity is being delivered through a range of tailored communications materials including posters and online content7. The communications material raises awareness of the signs to spot of a young person who is being exploited as part of county lines activity, and it signposts anonymous reporting via Crimestoppers.

2.18 Chapter 4 of the Strategy is about early intervention and prevention which includes, among other things, proposals to provide funding for PCC and CSPs to put initiatives in place which provide alternatives for young people to steer them away from gangs. Chapter 5 is about supporting communities and local partnerships to develop resilient communities that can help to identify crime and by working with Community Safety Partnerships and Police and Crime Commissioners.

Home Office County Lines Pilot Project

2.19 In 2017/18, the Home Office funded a pilot service, undertaken by two charities, St Giles Trust and Missing People, to provide support to young people exploited through county lines in order to divert them from further involvement in crime or gang activity. The pilot support service was for exploited young victims caught up in county lines drugs running between London and Kent8. The pilot service included offering: one-to-one support to young and vulnerable drug carriers through St Giles Trust workers; specialist support interviews with children who have returned from being missing while being used as a drug carrier and support for their parents/carers, provided by Missing People; and research into the services available to help young people

6 https://www.gov.uk/government/news/national-county-lines-coordination-centre-to-crack- down-on-drug-gangs 7 https://www.gov.uk/government/collections/county-lines-criminal-exploitation-of-children- and-vulnerable-adults 8 https://www.missingpeople.org.uk/latest-news/968-funding-to-support-exploited-children- running-drugs-in-county-lines.html

77 7 4c

exit county lines involvement to identify any gaps of support.

2.20 In January 2019, St Giles Trust published a report9 regarding the outcomes of the pilot project. The objectives of the pilot included: reducing the number of children involved in county lines activity; improve the lifestyles and life chances of those who exit county lines activity; understand how interventions can work effectively together to help children affected by county lines; develop a model that effectively tackles the issue of child exploitation in county lines; and facilitate enhanced intelligence and partnership working across agencies involved in crime, social services, safeguarding, health and other key agencies.

2.21 During the pilot 38 children and their families were engaged with 85% recorded as having positive outcomes. 11 children had exited county lines activity, 19 decreased risk and were in the process of exiting activity, five reengaged with education and three had moved into employment. Most of the children cited improved relationships with positive family members, had decreased or ceased offending and going missing, had improved their health (by reducing/ceasing alcohol and drug use, improved eating and sleeping and had better mental health), and developed greater stability and resilience.

2.22 The report did note that three of the children they engaged had gone into custodial sentences for their involvement in county lines and were currently in youth offending institutions. It was hoped however, that during their time in custody caseworkers could continue to their relationships with them and help them rehabilitate.

2.23 The pilot project highlighted the benefits of engaging people with lived experiences and/or cultural competence (i.e. part of/knowing the culture of the children’s backgrounds) in being caseworkers was essential to developing relationships and trust with the children. The children were more likely to engage with someone they felt genuinely understood them and their mindset. The report did however report that caseworkers were stretched by the workload and more resources would have been useful to meet demand.

2.24 The report suggested that the cost benefit of the pilot project included savings to the Police in less time spent on missing children cases and savings to the local authorities when statutory care was avoided. It was suggested that the caseworkers were effective in engaging children in education although stated that alternative education providers were continuing to struggle with the challenges of engaging children involved in county lines and being a place targeted by county lines recruiters.

2.25 The report recommended that any commissioners looking to put something similar to the pilot in place should consider how projects could be resourced long term as this project had suffered because of the uncertainty during the pilot regarding future funding. It also suggested training for all statutory sector officers on what county lines is and how kids get involved should be rolled out. Finally, it recommended that Alternative and Mainstream education provision be urgently reviewed to understand how it can better meet the needs of all children placed in it, including those involved in county lines activity.

9 https://www.stgilestrust.org.uk/our-impact/evaluations-into-our-work

78 8 4c

Crimestoppers and other Charities

2.26 Crimestoppers10 is an independent UK registered charity that operates the anonymous 0800 555 111 phone number as well as a Secure Online form on their website for anyone with information about crime who for whatever reason does not want to go to the Police.

2.27 ‘Fearless’ is the Crimestoppers brand for young people11. The brand has been set up as the main way that young people will be introduced to the valuable service that Crimestoppers provides. Developed through consultation with young people, Crimestoppers has been repackaged to make it more credible, accessible and trustworthy for a younger generation. Fearless Education Resource on County Lines12 is an educational resource for professionals working with young people throughout the UK. It provides exercises on a range of crime types that professionals can use to challenge young people’s perceptions, stimulate debate and encourage good citizenship.

2.28 Catch 2213 is a not for profit business with a social mission. They help to design and deliver services that build resilience and aspiration in people and communities. Catch 22 provide the Pan Merseyside Child Exploitation Service and the St Helens Missing and Child Sexual Exploitation Service (Commissioned by the Council) as explained in paragraphs 2.28 and 2.29.

2.29 Safe4Me14 is a website providing teachers, professionals and parents with information and resources to help educate young people about keeping safe and making responsible choices. The website has a county lines page15 that provides information about what county lines is, who is vulnerable to exploitation, what signs to look out for and what to do if concerned as well as links to other resources including ones specific to education such as the Fearless Education Resource mentioned above.

2.30 St Giles Trust16 is a charity which specialises in using expertise and real-life past experiences of its volunteers to empower people who are not getting the help they need. Their work targets people held back by poverty, exploited, abused, dealing with addiction or mental health problems, caught up in crime or a combination of these issues and others. The range of needs supported includes help for vulnerable young people involved in or at risk of criminal exploitation.

2.31 Missing People17 is a charity dedicated to helping find missing people. They offer online and telephone support to children and adults who are thinking of going missing or looking to return home after being missing. They also help families look for missing loved ones and work with them to support their person when their return home.

10 https://crimestoppers-uk.org/ 11 www.fearless.org 12 https://www.safe4me.co.uk/wp- content/uploads/2019/02/Fearless_CountyLinesResource_18pp_V2_online.pdf 13 https://www.catch-22.org.uk/ 14 https://www.safe4me.co.uk/ 15 https://www.safe4me.co.uk/portfolio/child-criminal-exploitation-county-lines/ 16 https://www.stgilestrust.org.uk/ 17 https://www.missingpeople.org.uk/

79 9 4c

Local Context

2.32 In January 2019, the NCA published an Intelligence Assessment of County Lines Drug Supply, Vulnerability and Harm during 2018. It stated that analysis, suggested there were currently over 2000 individual deal lines numbers in the UK, linked to approximately 1000 branded county lines. The report also said that Merseyside had the third highest number of county lines (7% - 140) and was an exporting area (i.e. drugs and the dealers originated in the county and drugs were taken for sale outside of the county). When the Task Group held its meeting the number of county lines coming out of Merseyside was reported to be 300. North Wales was the main place these drugs were being exported to however the Police informed the group that the links with the Isle of Mann were also an issue.

2.33 In Merseyside the Police have taken part in NCLCC action and is working with local authorities and other partners to tackle the county lines issue as it pertains to each area. In October 2019 the NCLCC co-ordinated a week of action focused on pursuing offenders, safeguarding and protecting vulnerable, reducing the number of effective County Lines, seizing proceeds of crime, and educating professionals. By October 201918, Merseyside Police had made 32 arrests, identified and engaged with more than 100 vulnerable people and seized drugs and weapons. Along with arrests and safeguarding of those believed to be involved, officers across the force and their housing and other partners had been carrying out talks in schools, visits to care home providers, taxi companies and foster carers to continue raising knowledge amongst those who may encounter those who are at risk of exploitation.

2.34 The Pan Merseyside Child Exploitation Service19, provided by Catch22, works with young people across Merseyside who are experiencing or at risk of child criminal or sexual exploitation. The service uses both one to one and group work with young people in partnership with Merseyside Police and Local Safeguarding Children Boards. Catch22 staff also attending multi-agency meetings. The Service forms part of Victim Care Merseyside which is funded by Merseyside's Police and Crime Commissioner.

2.35 Catch 22 conducts comprehensive screening and assessments of young people to identify CSE or CCE risk and incidence, followed by programmes of intervention over the long-term ensuring that the young people are fully supported to recover and reduce any further risk. The service also supports young people to exit gangs and operates a dedicated helpline for those who need advice (including family and friends who are concerned about runaways and exploitation). The service offers training to groups of young people (preventative and targeted) as well as professional training to members of the children and young people's workforce.

2.36 The St Helens Missing and Child Sexual Exploitation Service20 (Commissioned by St Helens Council) works with young people across St Helens who are missing from home or care or who are experiencing or at risk of child sexual exploitation. Catch22 works alongside young people, their families, the Council’s social care services and Merseyside Police to find out

18 https://www.merseyside.police.uk/news/merseyside/news/2019/october/county-lines-week- of-action-in-merseyside-sees-arrests-safeguarding-and-seizures/ 19 https://www.catch-22.org.uk/services/merseyside-child-sexual-exploitation-service/ 20 https://www.catch-22.org.uk/services/st-helens-missing-child-sexual-exploitation-service/

80 10 4c

what has caused them to run away and to seek to prevent them from running away again in future.

2.37 In St Helens, figures provided to the Task Group stated that between 1st April 2018 and 14th March 2019:  There were 111 CSE victims in St Helens;  There were 78 CCE victims in St Helens;  There were 1382 cases of young people (U’18) missing in St Helens; o These missing episodes were shared between 312 individuals; o 15 young people came to physical harm during their missing episode, 2 were victims of a sexual offence, 16 committed a crime and 1 self- harmed; o 2 of the young people were under the age of 8; 8 were aged 8 – 10; 156 (11.3%) aged 11 – 13; 532 (38.5%) aged 14 – 15 and 684 (49.5%) aged 16 – 17; o 1009 (73%) of the young people were in care. Findings

3.1 At its meeting on 24th January 2020 the Task Group invited officers from various Council services and the Police. Officers who attended the meeting were:  Stephen Tracey – Senior Assistant Director for Housing and Recreation  Sam Murray – Assistant Director for Community Safety  Linda Evans – Senior Assistant Director for Social Work and Community  Jo Bibby – Service Manager for EDT21, MASH22, Duty Team & Complex Safeguarding  Trish Monaghan – Complex Safeguarding Lead  Darren Taylor – Detective Sergeant, Merseyside Police  Heather Addison – Safeguarding Children in Education Co-ordinator

3.2 During the meeting, the officers provided an overview of their role and how their services worked to protect young people and members of the Task Group asked questions. This section details the points that were raised during the meeting.

Who Is Vulnerable to Criminal Exploitation?

3.3 It was reported that criminals were most frequently targeting those young people who were most vulnerable because of their personal circumstances. Typically, some young people who have been caught up in county lines have had distressing upbringings with many having been a victim of or witnessed domestic abuse, have volatile family relationships, and been in and out of care. In these cases, young people may not have developed attachments to others as would normally be expected. They may be ostracised from peer groups and bullied by other pupils in school. Due to the lack of attachments and low self-esteem, these young people are vulnerable to being groomed into criminality and gangs. the groomers would suggest they are offering a sense of belonging, an identity to a group, but this is part of the grooming process which adds to the trauma overall. Groomers will tempt young people

21 Emergency Duty Team 22 Multi Agency Safeguarding Hub

81 11 4c

by modes of alcohol, money, drugs, gifts amongst others however these come with a price, often it’s at the cost of losing the young person’s family relationships.

3.4 It was suggested that in many cases, the young people involved in county lines didn’t realise they were vulnerable or being exploited. In some cases, the young person might be “the eldest in a family of five kids with no father figure and a mother that didn’t work and they saw themselves as the main bread winner through their illegal activities”.

3.5 Many of those young people who are excluded from school, in alternative education or on reduced school hours are more at risk of exploitation because when not in school there may be no one checking where they are and they go to these places where they exposed to criminality and become exploited.

3.6 It was however pointed out that the most vulnerable young people are not the only ones at risk and there have been cases were young people from more stable or affluent backgrounds have also become involved in county lines drug dealing. These young people can be at risk because those around them such as family and teachers would never suspect that they would be involved in criminality. Young People from these backgrounds can become involved due to drug debts and coerced into criminality as way to pay off the debt. They may also suffer from a lack of self-esteem (particularly young girls at risk of sexual exploitation) or be looking for an escape from the pressures of life. Many young people identified as being exploited have mental health/trauma related issues.

3.7 It was suggested to the Task Group that the number of children referred to services as at risk could be three times higher than those in Knowsley however those young people in Knowsley were involved in much higher volumes of drugs and money. Officers were unclear as to why St Helens had higher numbers than Knowsley however one reason might have been that services in St Helens were more able to identify vulnerable young people that may require interventions.

How Do Criminals Operate?

3.8 The Task Group was informed that the criminals exploiting young people were skilled manipulators and understood how the young people were vulnerable and how to target that vulnerability to build a relationship with them and coerce them into criminality. CCE and county lines had developed over time as a tactic for distributing drugs. CCE separates drug dealers from those actual selling the drugs, putting vulnerable people at risk of arrest and not the criminals. It is widely accepted young people at risk or are involved in CCE are victims and should be considered as such, this should also factor into a safety plan which protects them from further harm.

3.9 The Police have come to recognise that exploitation and manipulation methods used in CCE were the same type used by terrorist groups to radicalise people. It was explained that manipulation of vulnerable people wasn’t often via threatening methods and usually criminals would use gifts and soft exploitation to engage young people initially. The Police used the acronym TRAP (Take Risk and Prosper) as a way to describe the approach used by criminals to convince young people that the risk of committing the

82 12 4c

crimes was worth the rewards.

3.10 One of the issues with trying to tackle the tactics used by county lines gangs was that there evolved quickly and new ways to coerce and exploit children were being deployed all the time. It was mentioned that one of the reasons that young people from more affluent areas were being targeted was that awareness of the risks to children in care meant that authorities were watching these young people closer and were more likely to spot them being involved (however this group still remained the most at risk). Merseyside Police were trying to target 10-15 cases per month to develop their understanding of the issues in the county and engaged with the NCLCC to share intelligence. They also tried to work with those convicted of crimes who were willing to share information about how organised crime groups were operating and the tactics they used to target young people.

How are Services Reacting?

3.11 The Task Group was informed that there had been a number of changes to the way services were being delivered recently. Children’s Social Care Services were prioritising early help and had recently received additional funding to develop support for families showing early indictors of challenges to work with them to avoid issues escalating. It was suggested that all services (such as schools, nurseries, children’s centres etc.) had a responsibility to work with families at early stage. Officers were being trained to recognise the signs of issues in families and know where to signpost them for particular issues. It was suggested that the number of families being identified as requiring early help was growing which made early intervention even more crucial to taking pressure off statutory services.

3.12 During 2018 a review of Children Services was conducted to assess how the county lines issue was being addressed. The findings were that service practice was variable and the understanding of the issue among social care work force was inconsistent and officers weren’t always engaging in multiagency work. This led to variable and inconsistent outcomes and improvements needed to be made.

3.13 Following the review, in July 2019 Cabinet approved funding for the Complex Safeguarding Hub (CSH) which came into place in August 2019. This had led to better tracking of cases and more a consistent approach as well as better partnership working. Officers stated that the work of the hub is under continuous review to ensure it keeps pace with understanding the changes criminals make to the way they try to exploit young people.

3.14 The Task Group was informed that the Complex Safeguarding Team had made improvements to its effectiveness but there was still more work to be done. New and existing pathways were being developed to ensure a consistent approach by officers and managers were involved in the pan Merseyside work and working with a local care group.

3.15 To ensure a cross service approach, there are daily multi-agency meetings (Chaired by Complex Safeguarding), in which Catch 22, Safer Communities, Health and the Police attend, with satellite support from Youth Offending Services and Young People Drug and Alcohol Addiction Team.

83 13 4c

3.16 It was explained that any young person at risk of exploitation is reviewed within five days. Advanced practitioners were trained to identify what CCE is with support from Police. Catch 22 was the commissioned provider for missing children and return interviews for those children and intervention with high risk young people. Officers from various services were co-located as a hub to improve communications. For those partners who weren’t able to attend meetings because of location, a phone in facility was being established.

3.17 The Task Group was informed that the Multi Agency Safeguarding Hub (MASH) was currently working with 66 young people known to service, of whom 15 were high risk (10 boys, 5 girls), 29 were medium risk (21 boys, 8 girls) and 12 were low risk. There were no specific criteria to identify high medium and low risk so the process was quite subjective. Services had access to a toolkit, used pan Merseyside CE protocol, to support the assessment process. Levels of vulnerability, police intelligence and other information were used to establish risk for each child.

3.18 Community Safety had also been working on developing its relationships with other children’s services. The Council was currently reviewing strategic governance arrangements for the Community Safety Partnership via the People’s Board to ensure better links between agencies. The Home Office has provided £3.3m to Merseyside Police to deliver a programme of action through a Violence Reduction Partnership to deal with serious violence; some of this funding was being used to provide diversionary activities for young people to take them away from criminal groups and reduce risk of exploitation. The Community Safety Partnership also received funding from the Office of the Police and Crime Commissioner (PCC) to support local priorities to reduce crime and disorder.

3.19 Within the Youth Offending Service, officers were highlighting the vulnerabilities of young offenders to CCE and were champions of raising awareness of criminal exploitation. The Task Group was informed that consideration was being given, local and nationally, to how legislation related to modern day slavery could be used to frame the young people YOS dealt with as victims of exploitation rather than offenders.

3.20 Officers informed the Task Group that they were passionate about dealing with county lines issues and were dedicated to getting a handle on the current situation by developing the workforce needed to deal with the issues and level of demand. It was suggested that austerity had impacted Council services’ and partners’ abilities to provide the level of support required to meet current demand and there was difficult to do more with less resources however services were rising to the challenge.

What is Happening Across Merseyside?

3.21 The Task Group was informed that the Council was working with partners and other local authorities across Merseyside to develop a more consistent and uniform approach to tackling county lines. Until recently each local authority area had their own arrangements in place and Merseyside Police worked with each local authority in different ways. Partners were currently developing standardised thresholds for referrals for young people at risk as well as a consistent referrals process and way of managing pathways for young people

84 14 4c

through services. The Task Group was also informed that the Police were looking to standardise their processes across the area based teams working with different local authorities by 1st April 2020.

What are Education Settings doing?

3.22 Their experiences at school were considered to be an important part of what made young people vulnerable to exploitation and school staff were seen as a valuable resource in helping to identify risk factors within vulnerable young people early so that services could intervene at an early stage and prevent problems of criminality. The Task Group was informed that Head Teachers, Safeguarding Leads and Governors at Schools across the Borough were being provided with training on Child Criminal Exploitation (CCE).

3.23 As stated previously there appeared to be a higher risk of exploitation to pupils who were excluded or on reduce hours in schools; potentially because they were spending more time in environments that can lead to them being exploited rather than in school. Officers were working with schools on the attendance of pupils and growing an awareness within schools of hot spots and trends (i.e. where young people were hanging out outside of school, what they were doing when not in school). As mentioned within Section 2 of this report, alternative education settings are often targets for criminals looking to exploit vulnerable young people and this was also the case in St Helens.

3.24 The Task Group was informed that schools were required to inform the Council of those pupils receiving part time education. It was suggested that the culture was changing around understanding that schools need to keep children on full time schedule as far as possible to protect their best interests.

3.25 The support provided by services was holistic across schools and colleges. Officers were also worked in sixth forms at Cowley International College and Rainford High School as well as St Helens College. As an example of work done with older children, the Task Group was informed about a St Helens College performance/session on knife crime specific to pupils (particular male pupils that are vulnerable to being involved in knife crime).

3.26 It was suggested that more work needed to be done with those who were NEET (Not in Employment, Education or Training) or those in work were their routine made them vulnerable to exploitation. Due to the lack of opportunities and the low self-esteem that could come with being NEET, these young people were more vulnerable than those in work or education.

Interventions in the Community

3.27 The work carried out by the Violence Reduction Partnership has identified that local community is often best placed to provide services to vulnerable people than bigger organisations. It was suggested that different communities had different needs that could be best met by locals who understood those needs. As mentioned previously, the Violence Reduction Partnership, through funding from the Police and Crime Commissioner (PCC) however it was unclear whether there would be long term funding for some initiatives and services were working with community groups to bid for funding.

85 15 4c

3.28 Members of the Task Group pointed to specific examples of work going on the communities they were aware of and agreed that trying to channel the skills of young people into more positive and productive things would help to steer them away from criminality.

3.29 In relation to raising awareness of CCE and helping people to learn how to spot potential issues and how to raise them with the right people, services had set up a social media campaign using the hashtag #Stop which had been promoted through local radio and television. Services also reached out to local businesses to make them aware of how to recognise the signs of criminality and exploitation in their local area. The Police had set up a local campaign called ‘Tell Us’ which enabled people to send the Police intelligence about crimes online; this was being promoted across Merseyside. It was also mentioned that Crimestoppers provided ways to provide information to the Police anonymously.

Other Opportunities

3.30 As previously mentioned, the charity St Giles Trust works with young people to take them away from criminality by using caseworkers who have life experience with that issue. Some members of the Task Group were aware of the work of this charity prior to the review having attended events led by Junior Smart, the Founder of St Giles Trust’s SOS+ Project23. The SOS+ Project delivers early intervention work in educational settings, through preventative sessions on violence, vulnerability and exploitation. Uses trained professionals with lived experience of the criminal justice system to de- glamorise gang involvement and expose the harsh realities of crime and violence. As they know these issues first-hand, the trained professionals can speak from their own experiences and have high levels of engagement from the young people.

3.31 The SOS+ Project offers Gangs and County Lines training sessions aimed at professionals. The presentation consists of speakers utilising their lived experience within the criminal justice system to unpack and explore the realities and consequences of county lines drug smuggling, gang involvement, criminal exploitation and serious youth violence. Perspectives from previous perpetrators, combined with relevant case studies, aid audiences in gaining an understanding of the issue. The presentation also covers signs and indicators; motives and purposes; perspectives of both victims and perpetrators; common misconceptions amongst professionals; and various intervention strategies/ suggestions for long-term solution.

3.32 It was suggested that peer to peer work would be effective in getting young people to take on the messages being given. Young People/Young Adults sharing their stories with other children was likely to have more impact as young people didn’t necessarily take on messages from adults who they felt couldn’t relate to them and how they felt. Although the natural instinct of services was to protect a child that has been a victim of exploitation and not expose them to talking about their issues openly it was suggested that using their voice would help other vulnerable young people avoid the damaging effects of criminality.

23 https://www.stgilestrust.org.uk/the-sos-project

86 16 4c

Risks of Unregistered and Unregulated Private Children’s Care Homes

3.33 Members of the Task Group expressed concerns about the potential risks to children from out of borough placed in private homes in St Helens and asked whether services had identified any vulnerable children in these homes. Members referred to a Parliamentary Select Committee review which found that Government hadn't given any powers to local authorities to deal with the issue of unregulated private homes.

3.34 It was explained that out of borough placements from other local authorities were a challenge for services in St Helens. There were protocols in place requiring Directors of Children Services (DCS) for each local authority to inform other local authorities when children were being placed in their area and informing them of the risk factors associated with each child. However, it was reported that this wasn't happening consistently for children sent to St Helens and was problem nationally. It was stated that the Association of DCSs had prioritised this issue for consideration to ensure improvements were made.

3.35 The Task Group was informed that a pan Merseyside working group, chaired by a representative of the Police, was looking at the private homes in the Merseyside region and the placement of children in those homes. It was explained that any children's home providing care must be regulated by Ofsted. However, homes providing accommodation only for older children (i.e. 16-17) who didn’t require care were not required to be regulated by Ofsted. It was mentioned that Ofsted was challenging whether or not these unregulated homes should be regulated as a number of them were causing serious risks to the safety of young people across the county. The Task Group was informed that Ofsted are working with Police to prosecute those running care homes which had not been registered as it was illegal not to register a children’s care home.

3.36 The Task Group was informed that the growth in numbers of residential establishments in St Helens was an issue. It was explained that it was cheaper to provide this type of accommodation in North than South of England so local authorities in the south were placing children here. Until recently there had been 29 of these unregulated homes however there were now 55. It was mentioned that the Council didn’t have powers under Planning Legislation to object to these homes opening when planning applications were submitted. Conclusions

4.1 The Task Group is concerned that Child Criminal Exploitation is a major issue, not just for St Helens as a borough, but Merseyside and the Country as a whole. It has been a challenge for local services to understand how best to tackle this issue which has a major impact on the lives of some of our most vulnerable children and their families.

4.2 The Task Group is reassured, however, that this issue is a priority for services and that improvements have been made to the way services are taking a partnership approach to tackle the issue. Despite the good work that has been done so far officers have acknowledged that there is still a significant amount still to do. The Task Group has confidence in officers to be able reach

87 17 4c

the point where services are tackling county lines issues as effectively as possible. The Task Group believes that the Council’s Scrutiny Function should continue monitoring this issue and holding services to account to ensure improvements continue to be made as this issue needs to be a long term priority.

4.3 The Task Group supports the early intervention and prevention approach that is being taken to tackling vulnerability and reducing the risk of exploitation for our young people. The Task Group agrees that local community groups are well placed to understand the issues the young people in their area face and can be supported to put community initiatives in place to build resilience. It was clear that funding is an issue in this area however the Task Group believes that services and commissioners should recognise the value these community initiatives have and the benefits they bring to them as service providers and support community groups by sharing the funding burden.

4.4 The Task Group was pleased that there appears to be good understanding among partners of the types of characteristics that can make children vulnerable to criminal exploitation as this understanding will hopefully help services to target those at risk earlier before the damage of criminality is done. However, the Task Group does feel that there appears to be a gap in providing vulnerable young people with peer to peer support and enabling young people who have been victims of exploitation to help others avoid the same fate.

4.5 The Task Group is keen to learn more about the work done by St Giles Trust, in particular the SOS+ Project and the way people with specific life experience of the issues young people are facing can be used to more effectively engage with them. The Task Group believes that it would be of value for the Safer Communities Panel to contact the St Giles Trust to arrange for them to come and speak with Councillors and Officers about the work that their project might do to help young people in St Helens.

4.6 The Task Group was also pleased that intelligence regarding the tactics criminals use to target vulnerable young people is improving however acknowledges the difficultly of keeping up with how criminals are changing the ways they operate. The Task Group recognises that a wide range of young people from all backgrounds, not just those statistically more at risk, can be susceptible to exploitation through the tactics criminals are employing and suggests that communities and families need to be aware of the signs that someone they know may be a risk of exploitation and not just assume that it couldn’t happen to them or in their community.

4.7 The Task Group emphasises the importance of increasing public awareness of the issues and educating people, parents and carers in particular, about recognising the signs. Schools, neighbours and community groups can all play a role in spotting when a young person might be vulnerable. Nationally it is recognised that there is still not a lot of public awareness about county lines and there are a lot of resources being made available to try to increase understanding as a way of tackling the issue. The Council should ensure that it does its part to get the messages out to residents through its communication channels and networks. Councillors should also do their part to promote the issue within their communities.

88 18 4c

4.8 As well as using the communications materials available to raise awareness of county lines, the Council should ensure officers and councillors are provided with specialist training to ensure they are properly equipped to recognise the signs of county lines risks in places and vulnerable people. The Task Group is pleased that training is being provided in schools as they are key to protecting young people and identifying the signs of vulnerability. The Task Group encourages all schools in the Borough to engage with the training being provided.

4.9 The Task Group believes that schools play a vital role in protecting young people and should be on the front line in being able to identify vulnerable young people at risk of exploitation. It is suggested that the Safer Communities Panel consult directly with schools to ask what their experiences of dealing with children vulnerable to exploitation are.

4.10 The Task Group is keen to learn more about the Violence Reduction Partnership and believes that the Safer Communities Panel should arrange a visit for Councillors to see how services are working in person. Recommendations

The Task and Finish Group recommends that:

5.1 That all Councillors receive training on CCE to enable them to share messages with residents and recognise potential issues in their wards.

5.2 That all schools be encouraged to ensure their staff and governors receive CCE training.

5.3 Regular updates on progress by services be reported to the Safer Communities Overview and Scrutiny Panel to ensure continued improvements in tackling Child Criminal Exploitation. Updates to the Panel should include data regarding the number of young people at risk to enable the Panel to assess the effectiveness of efforts to reduce CCE.

5.4 That the Chair of the Safer Communities Overview and Scrutiny Panel write to all Councillors who are school governors to ask them to raise the issue of County Lines and CCE with their Governing Bodies to ask them what they’re doing support pupils who may be vulnerable to exploitation.

5.5 That members of the Task Group conduct a site visit to the Violence Reduction Partnership to see the work being done there.

5.6 That the Safer Communities Scrutiny Panel contact the St Giles Trust to invite Junior Smart to a future Panel meeting to discuss his work with community groups to steer vulnerable young people away from crime.

5.7 That the Council’s Communications Team engage with Children’s Services about promoting the NCA guidance about spotting potential CCE and how to report it.

5.8 That this report be circulated to all members of the St Helens Council Children’s Improvement Board for information.

89 19 4c

County Lines Task Group

Rec Recommendation Responsible Officer Agreed Action and Date of Implementation No 1 That all Councillors receive training on CCE to enable them to share messages with residents and recognise potential issues in their wards. 2 That all schools be encouraged to ensure their staff and governors receive CCE training. 3 Regular updates on progress by services be reported to the Safer Communities Overview and Scrutiny Panel to ensure continued improvements in tackling Child Criminal Exploitation. Updates to the Panel should include data regarding the number of young 90 people at risk to enable the Panel to assess the effectiveness of efforts to reduce CCE. 4 That the Chair of the Safer Communities Overview and Scrutiny Panel write to all Councillors who are school governors to ask them to raise the issue of County Lines and CCE with their Governing Bodies to ask them what they’re doing support pupils who may be vulnerable to exploitation. 5 That members of the Task Group conduct a site visit to the Violence Reduction Partnership to see the work being done there. 6 That the Safer Communities Scrutiny Panel contact the St Giles Trust to invite Junior Smart to a future Panel meeting to discuss

County Lines Task Group

his work with community groups to steer vulnerable young people away from crime. 7 That the Council’s Communications Team engage with Children’s Services about promoting the NCA guidance about spotting potential CCE and how to report it.

8 That this report be circulated to all members of the St Helens Council Children’s Improvement Board for information. 91 4c 21 This page is intentionally left blank 5

CABINET

Wednesday, 23 September 2020

Report Title: Performance Report - Quarter 1 - 2020/21

Cabinet Portfolio Finance

Cabinet Member Councillor Martin Bond

Exempt Report? No

Reason for Exemption Open

No Key Decision

Public Notice Issued N/A

Wards Affected (All Wards);

Executive Director Corporate Services

Cath Fogarty Report of Email – [email protected]

Telephone 01744 67320

93 5

Chris Collinge

Performance, Strategy & Information Manager Contact Officer [email protected]

1. Summary

1.1 The Performance Report Quarter 1 2020/21 provides an analysis of progress and performance over the course of the period against each of the Council’s 6 priorities. The Quarter 1 Report reflects performance during the first 3 months of the Covid-19 pandemic and the impact that this has had on many of the Council’s measures of performance. The Council acknowledges that effective performance management arrangements are critical to supporting decision making during these challenging times.

The report is presented with the caveat that work to deliver a step change in the Council’s approach to performance management is ongoing over the course of Quarter 2. This includes:

i) Wholescale review of the Council’s performance management framework in line with the Council’s plans for reset and recovery from the Covid-19 crisis and the desired outcomes of the Borough Strategy / Council Plan following consultation, further review and approval. ii) Full alignment of the new performance management framework to the priorities of the Council Plan. iii) Full review of performance targets in the light of the impact that Covid-19 has had on the Council’s performance.

2. Recommendations for Decision

Cabinet is recommended to:

i) Note the current performance position.

ii) Work with appropriate Executive Directors to address specific areas for performance improvement.

iii) Work with appropriate Executive Directors in agreeing proposals for the future range of appropriate performance measures and indicators to be presented in Cabinet reports and their respective targets.

3. Purpose of this Report

3.1 The Council remains committed to the regular monitoring and reporting of performance information to ensure the delivery of efficient, effective and value for money services that meet the needs and expectations of the customers and communities it serves. The purpose of the report is to present to Cabinet for the period Quarter 1 2020/21, a summary of progress against its priorities and an overview of the performance in relation to key indicators. 94 5

3.2 The report is presented with the caveat acknowledged at Section 1 that the performance framework presented within the Appendix to this report is currently subject to wholescale review.

3.3 Each of the 6 Priority sections within Appendix 1 contain the following:

ii) A summary of progress in terms of delivery against the priority.

iii) A performance indicator tracking table showing performance against indicators in the year to date, direction of travel and comparative performance. iii) A summary of progress against key performance indicators, what is going well, what is proving challenging and the action being taken to improve performance. It should be noted that the comparative quartile performance does not relate to performance within the quarter, which has been impacted by Covid-19, but reflects St Helens’ position for the indicator against a comparator group when the last nationally verified data was published, largely for the period 2018/19.

4. Background /Reasons for the recommendations

4.1 The Quarter 1 report reflects performance during the first 3 months of the Covid-19 pandemic and many of its wide-ranging impacts. During this unprecedented period, it is more critical than ever that the Council has a clear understanding of what it needs to measure and how it is performing to inform effective decision making.

4.2 The indicators contained within the Quarter 1 report are those which were reported to Cabinet over the course of 2019/20. These indicators have now been recast against the 6 priorities of the draft Council Plan. It is acknowledged that this realignment highlights an imbalance in the number of measures reported against individual priorities and gaps within certain areas in terms of indicators required to measure success of progress against priorities.

4.3 At the same time the overwhelming majority of indicators are now being impacted to varying degrees by the Covid-19 pandemic. The onset of the pandemic initially impeded the Council’s ability to set meaningful targets and review its range of measures. The performance scorecard highlights those measures where targets have been subject to review. In the light of Quarter 1 performance, as soon as is meaningfully possible, the range of indicators and associated targets will be reviewed / impact assessed, ensuring a clear line of sight to the new priorities and desired outcomes of the Borough Strategy / Council Plan and Reset and Recovery Plans.

5. Consideration of Alternatives

5.1 None

6. Conclusions

6.1 The Performance Report - Quarter 1 2020/21 at Appendix 1 provides an assessment of the Council’s performance during a period of unprecedented challenge due to the Covid-19 pandemic. The impact of the pandemic is reflected across all Council priorities. Now, more than ever, robust and appropriate performance management arrangements are required to enable effective decision making and the delivery of the Council’s desired outcomes across the borough and communities. The Council remains fully committed to this end, with work ongoing over the course of Quarter 2 to deliver the step change required to its performance management framework. 95 5

7. Implications

7.1 Financial Implications

7.1.1 None

7.2 Legal Implications

7.2.1 None

7.3 Staffing/HR Implications

7.3.1 None

7.4 Impact on our customers/residents

7.4.1 None

7.5 Community Impact Assessment

7.5.1 Not required as the report has no direct impact on the community.

7.6 Asset / Property Implications

7.6.1 None

7.7 Environmental implications

7.7.1 None

7.8 Policy Framework Implications

7.8.1 The recommendations within this report are in line with existing council policies.

7.9 Risks

7.9.1 The regular monitoring and reporting of performance to Cabinet is undertaken to mitigate the risk of underperformance.

7.10 Link to council’s priorities

7.10.1 The report by its nature covers all 6 Council priorities

8. Background papers None

9. Appendices Enc.1 – Performance Report – Quarter 1 2020/21 96 5

Appendix 1

Performance Report Quarter 1 – 2020/21

1 97 5

Contents Page

Performance Indicator Tables Explanatory Note 3

Priority Performance Summary 4

Priority 1 – Ensure Children and Young People have a positive start in life 6

Priority 2 – Promote good health, independence and care across communities 15

Priority 3 – Create safe and strong communities for our residents 21

Priority 4 – Support a strong, diverse and well-connected local economy 25

Priority 5 – Create a green, thriving and vibrant place to be proud of 29

Priority 6 – Be a modern, efficient and effective council 33

2 98 5

Performance Indicator Tables Explanatory Note There are two different types of performance tables contained within this report: 1. Summary Performance table – this provides an at glance view of performance in relation to Tier 1 indicators in each priority and;

2. Individual Priority Performance tables – this presents data for both Tier 1 and Tier 2 measures in each priority for the quarter. Further quarter’s data will be added into subsequent reports over the year.

A Red, Amber, Green (RAG) rating is used on the Summary table, as well as for the performance figures on the individual priority tables. Where there is data but no colour, this indicates that a target was not previously set as the indicator was not hitherto reported to Cabinet. The RAG rating indicates whether performance has met or exceeded target (green), did not meet target but was within a 5% tolerance (amber), or did not meet target by more than 5% (red). The Direction of Travel (DOT) symbol compares performance from the last reported period, to the most recent reported performance. This indicates whether the latest reported performance data is either an improvement on the data from when last reported (arrow pointing up), the same as the last reported data (dash symbol), or worse than the last reported data (arrow pointing down). The colour of the DOT symbol correlates as to whether the target was met (as set out above). For example, a green arrow pointing down would show that an indicator was on target for the month/quarter, but performance was down on the last reported period. On the individual priority tables, the ‘% Variance from Target’ column shows the percentage variance between the latest reported data and the target for that month. The Comparative Performance column provided in both the summary and individual priority tables provides a judgment (where available) on the performance of an indicator compared to a suitable family comparator group. On this column, the following applies: Green = First Quartile; Yellow = Second Quartile; Amber = Third Quartile; Red = Fourth Quartile. It should be noted that the quartile performance does not relate to performance within the quarter but reflects St Helens’ position for the indicator against a comparator group when the last nationally verified data was published. However, some caution should be applied to comparative performance data. The quartile positions given for St Helens - compared to peer authorities - is at a given moment in time, when the last nationally verified and published information was made available. In most instances within this report the latest comparative data relates to 2018/19. It is possible that since this time the relative performance of St Helens and its comparator authorities may have subsequently changed. Equally, although ‘first quartile’ is the preferred outcome, in some instances the quartile comparative position does not necessarily equate to a judgement on good or bad performance. It should therefore be viewed in the context of the performance of other linked measures. For example, top quartile performance in terms of a low rate of children subject to a Child Protection Plan would need to be viewed within the context of other measures such as referral rates and Section 47 rates.

3 99 5

Priority Performance Summary Although subject to future review, the Tier 1 performance measures are those reported to Cabinet in 2019/20 recast against the priorities of the Draft Council Plan. The table below provides an overview of performance for those measures where new data was available as at Quarter 1 2020/21.

Tier 1 Performance - Quarter 1 - 2020/21

Performance Comparative Portfolio Reference Performance Indicator DOT vs. Target Performance

CYP-01 Children in need (CIN) 4th Quartile

Ensure Children CYP-02 Looked after children (LAC) 4th Quartile and Young CYP-40 Children subject to a Child Protection People have a 3rd Quartile (new) Plan (CPP) positive start in CYP-41 life Referrals to children's social care 3rd Quartile (new) KEY - Performance vs Target

E&S-25a NEET & Not Known 4th Quartile On or better than target Permanent admissions to residential Off target within 5% ASC-18 2nd Quartile care Off target Data collection currently ASC-20a All delayed transfer of care 1st Quartile Promote good suspended by NHS health, KEY - Comparative Target independence PH-25 (new) Mortality rate due to suicide 4th quartile First Quartile and care across Second Quartile Admissions for alcohol specific CCG currently unable to our communities PH-48 4th quartile Third Quartile conditions provide data Fourth Quartile CCG currently unable to PH-52 (new) Emergency hospital admissions for falls N/A provide data KEY - Direction of Travel (DOT) Create safe and Better than the last reported period strong SC-01 Repeat MARAC N/A communities for Worse than the last reported period our residents No change from last reported period G&P-01 Rate of employment 1st Quartile Support a strong, First reported diverse and well- period G&P-06 Town Centre retail vacancies N/A connected local economy G&P-09 Increases in dwelling stock N/A

Create a green, Percentage of household waste sent for Quarter 1 Data currently thriving and vibrant ENV-02 4th Quartile recycling delayed place to be proud of

CS-01 Council Tax collection 4th Quartile

Be a modern, CS-02 Sickness Absence 1st Quartile efficient and effective Council CS-03 Business rate collection 4th Quartile

CS-14a Satisfaction with Council Contact Centre N/A

4 100 5

Priority Performance Summary Continued The table below highlights those measures of performance where the latest comparative performance is either 3rd of 4th quartile and where direction of travel, from the last reported period to the most recent reported performance in quarter 1, is not showing improvement.

Year of Comparative Ref Performance Indicator DOT Performance Comparative Data A Positive Start in Life Tier 1 Number of looked after children per 10,000 CYP-02 4th Quartile 2018/19 children within the Borough Percentage of young people academic age E&S-25a 16-17 not in education, employment or 4th Quartile 2019/20 training and not known combined Tier 2 Average time (in days) between a LA receiving court authority to place a child and CYP-24 4th Quartile 2018/19 the LA deciding on a match to an adoptive family Under 18 conception rate per 1,000 15-17 PH-04 4th Quartile 2018/19 year old (3 year rolling average)

Green, Thriving, Vibrant Tier 2

ENV-07 Number of flytipping incidents 3rd Quartile 2018/19

5 101 5

Priority 1 - Ensure children and young people have a positive start in life Objectives  Every child will attend a good school and achieve their potential  Support children and young people to build their confidence and resilience  Support children and families with early help  Safeguard children and young people from risk of harm and improve the lives of children in care.

Progress against priority Education and Schools  The impact of the Covid-19 pandemic on education and schools during Quarter 1 of 20120/21 has been profound, bringing unprecedented disruption to the education of children and young people across the borough.  The Government announced that for the 2019/20 academic year national curriculum assessments across the primary sector would not take place due to the pandemic. All statutory external moderation duties undertaken by the local authority were therefore cancelled.  In the secondary school sector, all Key Stage 4 (GCSE) and Post 16 exams (A levels) due to take place in summer 2020 were also cancelled. As a result, the DfES will not publish any school or college level educational performance data based on tests, assessments or exams for the 2019/2020 academic year.  St Helens Education Recovery Group was quickly established to bring together all stakeholders across the education sector to develop a strategic response to the impact of the pandemic. This was a collaborative effort between the local authority, the education sector and unions. The initial focus of the group was to jointly plan for the phased expansion of children and young people returning to early years settings, schools and colleges and provide support for the most disadvantaged pupils. Several members of staff across Education services were re-deployed into schools to support these aims.  During the initial phase of lockdown, all schools were able to offer educational provision for those children defined by the DfES as vulnerable, in receipt of an Education Health and Care Plan or those with parents/carers who are recognised key workers. PPE packs were delivered to all schools across the borough.  Strong support was offered to all disadvantaged pupils. The SEND team was proactive in offering telephone check ins with all families of children with an Education Health and Care Plan which in some cases led to changes in support being offered. The Virtual School also continued to function and effectively champion the needs of Looked After Children. Laptops and routers were delivered to secondary / special schools for disadvantaged pupils in year 10. Provision was also provided to ensure children being educated at home had appropriate resources and were being safeguarded.  The numbers of pupils attending schools in St Helens increased week on week as the final school term progressed, particularly the number of key worker children attending schools. As guidance from Government shifted in June, the majority of primary schools expanded provision to accommodate additional, non-priority group pupils, with the focus primarily centred on Year 6. Secondary schools in St Helens were also able to increase access to provide support to Year 10 and Year 12 pupils. By the first week in

6 102 5

July a total of 5,267, children and young people were attending a school in St Helens, 20% of the school age population. Approximately 30% of the primary school population, 5% of the secondary population and 30% of the special school population were in attendance. This is strong performance with feedback from the DfES placing St Helens in the top quartile of authorities for numbers of children attending school. St Helens was also ranked first in its statistical neighbour group for numbers of children with Education, Health and Care Plans attending school.  St Helens Education Recovery Group also initiated planning for the longer-term recovery activity to re-build the resilience and capacity of the sector. A total of 6 workstreams have been established to examine different aspects of the support required for recovery. Action plans have been developed across these 6 areas covering Learning and the Curriculum, Support for Vulnerable Learners, Workforce Support and Planning, Early Learning and Childcare, Transition Planning Post-16 and Business Sustainability. Some of the key actions under development across these workstreams include:  Work has been ongoing to ensure all schools have suitable technology to support a blend of high quality on site and remote learning should face to face teaching in classrooms become limited again.  Support and resources have been provided to schools to assist the production of ‘lost learning’ recovery plans.  Work is ongoing to identify vulnerable learners who may have faced multiple barriers to learning during the period of school closure and provide additional and appropriate support to maximise their engagement and learning.  Resilience programmes, guidance and resources are being produced to support pupil’s mental health and wellbeing and access to specialist support. Additional bereavement support services were recently commissioned  Pupil level teacher assessment judgements for Year 6 pupils are being collected and transferred to the appropriate secondary school where the pupils are due to attend in September 2020 to support transition. These are voluntary arrangements with schools choosing whether to participate, or not.  Work to support the post-16 transition into further education, training or work has been accelerated. This has included the provision of careers advice and guidance, personalised support to those most at risk of becoming NEET and ongoing work to ensure all 16-17-year olds have a September Guarantee offer in place.  Governor Forums have been supported to take place virtually to ensure governing bodies are fully updated prior to full opening of schools in September 2020.  A programme of work is underway to build parental confidence about risks associated with Covid-19 in educational settings to maximise the number of pupils returning to school in September through a local school attendance campaign.  Work is ongoing to ensure that transport is not a barrier to pupils attending school in September and that children and young people arrive at and return from school safely. Early Help and Children’s Centres  Over the course of Quarter 1, St Helens Early Help Service and Children’s Centres continued to provide ongoing support to children and families during the Covid-19 pandemic.  To ensure the needs of families continued to be met, a review of all cases took place to inform the level of emotional and practical support provided to families. Plans have continued to be progressed through the continuation, where possible, of multi-agency

7 103 5

family action meetings. Priority has been applied to families who were likely to encounter additional pressure during “lockdown” because of domestic abuse and mental health concerns. The services continued to deliver direct work by adhering to social distancing measures and the use of technology. In addition, packs have been distributed to families providing child friendly information about Covid-19. This has helped greatly in supporting parents in explaining the current situation to children and young people, and alongside this, families have been provided with details of helplines and websites to support positive parenting, reduce family stress and keep children safe.  Children’s Centres also continued to provide support and responded at very short notice to set up and facilitate emergency creche provision for the children of keyworkers. Programmes have continued to be delivered through virtual sessions, including speech and language and other areas of support, as well as delivering daily activities through the children’s centres Facebook page. Resilience and Wellbeing  The PATHS programme (Barnardo’s social and emotional learning programme) continued to be delivered during the first quarter to 8 primary schools. Elements of the programme were extended to all primary schools due to Covid-19. A further 8 primary schools are scheduled to join the programme from September 2020.  The Educational Psychology Service produced a guide for all schools on Transition and Recovery in the wake of Covid-19. This was also adapted for early years settings and has been shared with parents. The service will be visiting all schools at the beginning of term to offer support and help assess the impact of the pandemic on pupils.  Public health work has continued despite challenges due to coronavirus. Since the pandemic, antenatal support has been provided virtually and this has been well received. The number of women discharged into infant feeding services increased by 94% between January and April 2020. This has been followed by improved outcomes, with breastfeeding at 6-8 weeks increasing by 10% between January and April 2020. Virtual support groups are now available, and service delivery is due to expand until 8pm on Monday to Friday. Children’s Social Care  The priority for Children’s Social care has continued to be promoting the welfare, protection and care of children and young people and their families during the Covid- 19 pandemic. Delivering services in this context has led to practice being delivered in new and creative ways, whilst continuing at the same time to meet the full range of statutory duties relating to children in need of help and protection. Examples of new and creative service delivery include: - The virtual operation of all multi-agency meetings such as Initial and Review child protection conferences, Looked After Children reviews and LADOs. - The adapted delivery model for the Edge of Care service, which has been offering family group conferencing to families. - The increased the level of contact with our care leavers and the increased direct and where necessary financial support, particularly to those care leavers who do not have a family and friend support network and may be feeling isolated. - The collaborative work on a regional basis to ensure children can access the range of placements needed during the pandemic.

8 104 5

 Social Work teams have continued to offer face to face visits for children looked after and those subject to a Child Protection and Child in Need plan. Compliance with review timescales remains strong at 98%, 99% and 97% respectively. Achieving permanence via adoption has been delayed due to court hearings being suspended which means there are 14 children awaiting a final adoption order and a further 12 awaiting a placement order. Care proceedings hearings have been delayed in a small number of contested cases. Looked After Children reviews and Child protection case conference have taken place within timescales albeit held virtually using the technology that has been made available to the Teams.

 There has been extensive staff engagement during the first quarter, with engagement sessions attended by over a 100 children’s social care staff. The sessions focussed on working arrangements in the current Covid-19 context and allowed reflection on the immediate response to the pandemic, what can be taken forward into the new way of working, what has not worked well and the work that needs to be picked up again as soon as it is safe and possible. Discussions were very positive and have helped highlight many issues that are now being considering in future planning. This positive dialogue will be ongoing.

 Stability within the workforce has improved with 90% of social work vacancies filled on a permanent basis. This will provide improved continuity and consistency for the children and the basis on which practice can develop and improve.

9 105 5

Performance Indicator Summary

Ensure Children and Young People have a positive start in life - 2020/21

CYP-01 Rate of Children in Need per 10,000 0-17 population Lower 429 492.9 478 485 444 454 439 9.48% 4th Quartile Number of looked after children per 10,000 children within the CYP-02 Lower 121 129 134.8 125 133 134 134 -7.20% 4th Quartile Borough 1

r CYP-40 Rate of children subject to a Child Protection Plan per 10,000

e Lower 34.7 59.5 56.3 55 Y 57 59 51 7.27% 3rd Quartile i (new) under 18 year olds T CYP-41 Rate of referrals to children's social care per 10,000 under 18 Lower 506 589.7 805.4 600 N/A N/A 152.5 -1.67% 3rd Quartile (new) year olds Percentage of young people academic age 16-17 not in E&S-25a Lower 6.5 6.1 5.6 8.4 Y 5.9 6.6 7 -16.67% 4th Quartile education, employment or training and not known combined

CYP-04 Rate of S47s per 10,000 population (cumulative) Lower 148 288.4 255.2 195 20 36 52 -6.12% 4th Quartile Percentage of re-referrals to Children's Social Care within 12 106 CYP-09 Lower 18 16 23.5 18 33 32 31 -72.22% 2nd Quartile months of the previous referral Percentage of children becoming the subject of a Child CYP-18 Lower 9.9 19.3 25.9 16 N/A N/A 17.9 -11.87% 2nd Quartile Protection Plan for a second or subsequent time Average number of days between entering care and being CYP-23 Lower 553 480 572 440 N/A N/A 541 -22.95% 4th Quartile placed for adoption Average time (in days) between a LA receiving court authority to CYP-24 place a child and the LA deciding on a match to an adoptive Lower 303 222 272 140 N/A N/A 282 -101.43% 4th Quartile family Percentage of former care leavers aged 19-21 in suitable CYP-27a Higher 92.9 89 90 95 N/A N/A 97 2.11% 1st Quartile

2 accommodation

e Percentage of former care leavers aged 19-21 in employment, i CYP-28a Higher 49 49 47 66 N/A N/A 76 15.15% 3rd Quartile T education or training Percentage of Education, Health and Care (EHC) plans CYP-29 Higher 68.6 15.5 69 50 N/A N/A 100 100.00% 4th Quartile completed within a 20 week period Percentage of S47s progressing on to an Initial Child Protection CYP-42 Lower 37 36.3 35 45 N/A N/A 29 27.50% 2nd Quartile Conference (ICPC) CYP-43 Number of foster carers recruited by St Helens Council Higher 1 6 4 20 Y N/A N/A 3 -40.00% N/A Under 18 conception rate per 1,000 15-17 year old (3 year PH-04 Lower 33.4 29.6 32.8 27 N/A N/A 32.6 -16.43% 4th Quartile rolling average) PH-05 Percentage of infants being breastfed at 6-8 weeks Higher 22.4 21.8 28.1 25 N/A N/A 27.4 11.84% 4th Quartile Under 18 admissions to hospital for alcohol specific reasons CCG currently unable to provide PH-22 Lower 99 98.8 73.4 81 - N/A 4th Quartile per 100,000 population data

10 5

Overview of Priority Performance A total of 18 indicators were due to be reported in Quarter 1. Data cannot currently be provided for 1 of these measures as the CCG is currently reporting that they are unable to provide data in relation to hospital admissions for alcohol specific reasons. Of the remaining 17 indicators, 7 are reported as meeting target, whilst 10 are not meeting target, one of which is within a 5% tolerance of target. Of the 15 indicators where direction of travel can be determined, 11 are showing improvement on the previous reporting period in terms of variance from target, 1 is showing the same level of performance and 3 are showing a downturn in performance. The latest available picture of comparative performance relates to verified nationally published data for the financial year 2018/19. The comparators used for the children’s social care measures are the 11 local authorities within the DfES family group. The comparators for the public health measures are the 16 authorities within the CIPFA nearest neighbour's family group. The comparative performance position remains challenging with 10 indicators in the 4th quartile and 3 in the third quartile. Around half of these measures are showing improvement in their current direction of travel. What is performing well Children’s Social Care  At the 30th June 2020 a total of 188 children and young people were being supported with a Child Protection (CP) Plan, equating to a rate of 51 children per 10,000 under 18-year olds, compared to a rate of 59.5 (219 children) in the same period in 2019/20. Over recent years the St Helens CP population numbers have altered markedly from being well above comparable national averages to well below and now to a position below the local target and in line with statistical neighbour averages. Increased scrutiny by the Conference Chairs and Heads of Service have enabled a more consistent application of thresholds within the department. The targets set for the current year have been set at a rate that the department believes represents a realistic population estimate, one that is aligned to comparable Statistical Neighbours.  A total of 29 former relevant care leavers turned 19, 20 or 21 years old between April 2020 and June 2020 and the local authority was in touch with all of the young people at the time of their latest birthday. In total, at the time of the birthday for each young person, 28 of the 29 care leavers were living in suitable accommodation, which equates to a provisional performance figure of 97%, better than the same period last year (90%) and better than the most recent published national average of 85% in 2018- 19. Performance is also top quartile for the peer group of authorities. A total of 22 of the 29 care leavers were engaged in Education, Employment or Training (EET). This equates to a provisional performance figure of 76% of care leavers, considerably better than the same period last year (52%) and better than the most recent published national average (2018/19), also 52%. Performance is an improving picture. The Council investment into the Care Leavers Service is now positively impacting as demonstrated in the Service performance and improvement.  Performance in Quarter 1 2020/21 stands at 100% of Education, Health and Care Plans (EHCPs) produced within 20 weeks, considerably better than the same period last year (41%). In May, the Government introduced a temporary modification to the legislation regarding EHCPs to allow Covid-19 related exceptions to the 20-week requirement. The latest published comparative performance for the calendar year 2019, places St. Helens in the bottom quartile. However, if performance is maintained as per quarter 1 2020/21, St. Helens comparative position will be top quartile, demonstrating the effort and success of the team in improving performance.  In the 2020/21 financial year a total of 190 Section 47 enquiries have thus far been initiated by St Helens Children's Social Services with 56 of those enquires completing and progressing to an Initial Child Protection Conference (ICPC). The proportion of

11 107 5

Section 47 enquiries completed and progressing to ICPC at the end of June 2020 stands at 29%, a lower S47 to ICPC conversion rate than reported in the previous year (36%) and below the local S47 to ICPC conversion target (40%). Performance is second quartile for its peer group. A review of application of S47 thresholds has been completed, actions arising from the review include; learning and development and an increased performance focus. This will continue to drive improved practice in this area. What requires improvement and what action is being taken Children’s Social Care

 At 30th June 2020, the total number of children and young people open to and receiving support from statutory children's social care was 1,616, equating to a rate of 439 children per 10,000 aged under 18. The number of Children in Need (CiN) supported by St Helens Children's Social Services has reduced gradually over recent months and now stands below the number reported at the end of the previous two financial years. However, it remains the case that the numbers of CiN reported for St Helens, when expressed as a rate per 10,000 under 18-year-old, remain well above comparable average rates in the region (389) and at national level (334) as reported in March 2019. The department is undertaking a range of improvement actions as part of its wider improvement plan for children's social care.  At the end of June 2020, St Helens had 493 children in care and a CLA population, when expressed as a rate per 10,000 under 18-year old, that continues to be well above than comparable regional and national averages. The numbers of children cared for at 30th June 2020 (493) is broadly the same as that reported at the end of 2019-20 financial year. However, in October 2019, as anticipated due to legacy issues, the number of children had risen substantially to 535; the number we are now seeing reflects a gradual and safe reduction in children entering care which we expect to continue.  In the current 2020/21 financial year, a total of 561 referrals to St Helens Children's Social Care have been received. The number of referrals, when expressed as a rate, equates to 152.5 children per 10,000 aged under 18 and is nearly in line with the local target for the end of June 2020. Should the current rate of incoming referrals continue at its current rate for the remainder of the financial year then it is projected that St Helens will receive approximately 2,250 referrals over the year as a whole, which will, if realised, represent a reduction on the high number of referrals received in the previous 2019/2020 financial year (2,900). Comparative performance at the end of March 2019 places St. Helens below the median average for its group of statistical neighbours. The department, in conjunction with the Safeguarding Children Partnership, is undertaking a range of improvement actions as part of its wider improvement plan for children's social care including the understanding and application of consistent threshold and progressing the actions found in a recent audit into referrals.  Since 1st April 2020 a total of 190 Section 47 enquiries were initiated a cumulative rate of 52 per 100,000 population. This demonstrates a level of Section 47 activity that is marginally below activity reported in the corresponding period in the previous year. The most recent comparative data (2018/19) places St. Helens performance significantly higher than comparable regional, statistical neighbour and national averages. This potentially indicates an internal issue with thresholds. The department is currently auditing this area of practice to better understand and address the presenting issues.  Over the course of Quarter 1, a total of 561 referrals to St Helen's Children's Social Services have thus far been made. 173 (or 31%) of the referrals in the period were re-

12 108 5

referrals to St Helen's Children's Social Services, that occurred within 12 months of the current referral. This is higher than the percentage of rereferrals during Quarter 1 in 2019/20 which stood at 28.9%. The current re-referral rate (31%) stands well above comparable regional and national averages. The Department have completed and presented an audit into re-referrals to the Improvement Board. Close oversight and scrutiny continue to be placed on re-referral activity.  Between 1 April and 30 June 2020, a total of 56 children and young people became the subject of a Child Protection (CP) Plan with 10 of the children in the group (or 17.9% of children) having previously been on a CP Plan at some time in the past. The percentage of children who were the subject of a CP Plan for a second or subsequent time (17.9%) is much lower than the activity reported during 2019-20 financial year (26%) and also below the most recently published 2018-19 comparable regional (22%), statistical neighbour (19%) and national (21%) average. The department continues to monitor this area of practice and it has been noted that a significant number of second time plans correlate with families experiencing domestic abuse.  In the current 2020/21 financial year no children have been thus far adopted from care which is, in part, due to the current Covid-19 national public health crisis, with Family Court closures resulting in delays in proceedings. In terms of adoption timeliness, the cumulative 2018-2021 (3 year) performance for the average number of days between a child entering care and being placed for adoption now stands at 541 days for the 30 children adopted over the three years in question. The average timeliness (in days) between a child entering care and being placed with their adoptive family (541 days) is outside the local target (440 days). The average timeliness (in days) between the local authority receiving court authority to place a child and the local authority deciding on a match to an adoptive family (282 days) is outside the local target (140 days). Performance is 4th quartile for both indicators. The department continues to monitor timescales and there is a drive to improve. However, St Helens has achieved adoption for sibling groups, older children and those considered to be harder to place; staying with the plan of adoption for these children inevitably impacts on timescales for achievement of permanence.  At the end of June 2020, a total of three foster carers had been recruited by St. Helens Council, missing the target of 5. Performance is marginally better than the same period the previous year. Over recent years, recruitment of foster carers has become more challenging for local authorities, which combined with a growth in the number of Children Looked After, requires the need for a greater focus on how the Authority can attract and retain carers. Various marketing methods are being employed to advertise and recruit more foster carers. Education and Attainment

 The 16-17-year-old combined NEET and Not Known performance at the end of Quarter 1 was 7%, which was higher than the target 6% and higher than the previous year’s performance in Quarter 1 (6.3%). The recently published national data for 2019/20 shows that St Helens performance at 5.6% remains bottom quartile for the statistical neighbour group but only marginally higher than the North West and England averages of 5.4% and 5.5% respectively. This represents the “pre-Covid” position. The drop-in performance this quarter can largely be attributed to the impact of Covid-19, with the percentage of young people whose destination is not known increasing by 0.5% since April. In this period, young people would normally be visited by our Career Connect Service, and as this has been unable to take place, contact details are being tracked for these young people utilising various local authority data bases.  The context for NEET is anticipated to be increasingly challenging, with growing unemployment as a result of the economic impact of Covid-19. Partners in St Helens

13 109 5

have been meeting weekly to co-ordinate efforts to support young people into or to remain in education, employment or training, whilst the Career Connect team are currently working through the September Guarantee offers for young people in year 11 and year 12. At this stage the picture in terms of the September Guarantee for year 11’s looks positive. A co-ordinated approach to highlight opportunities and sources of support and advice for young people is being undertaken. The NEET Prevention Officer is currently working with 40 young people identified by schools as at risk of becoming NEET. A collaborative bid saw the Combined Authority awarded £1.5m to support vulnerable young people which includes further capacity in St Helens for NEET Prevention and the Ways to Work Programme. Recruitment is underway for these new posts. The NEET Taskforce is ensuring that there is a safety net for young people who do not get the results they need or who are at risk of disengaging. This group is also identifying any emerging gaps in provision that could become barriers for young people to engage. Individual young people will also be case-conferenced where necessary to provide wrap around support to engage in EET. Local authorities are working across Liverpool City Region to champion the needs of our young people. A range of initiatives are under discussion, including a multi-million-pound bid to deliver a Kickstart Programme for young people aged 16-25. The DWP are in the process of finalising plans to establish a Youth Hub, initially in the form of on-line advice and guidance, but are also finalising plans for a presence in the Town Centre. Public Health

 The latest data for Quarter 1 shows that the 3-year rolling rate for teenage conceptions reduced slightly to 32.6 per 1,000 compared with the previous quarter, though this remains worse than target and a high rate nationally. In December 2019 the national lead from Public Health England attended St. Helens multiagency task group to advise on priority actions. A strategy and action plan have been drafted. Initial actions include: o We have developed a local system to be able to estimate up to date trends as the Public Health England data is 15 - 18 months behind. o We have identified the schools with the highest number of pregnancies, and we are working with them and local services to increase interventions o We are working with four 'early adopter' schools and the faith sector on implementing the new national guidance on Relationship and Sex Education in preparation for mandatory roll out to all schools from September 2020. o The Family Nurse Partnership have completed insight work with teenage parents about access to contraception and attitudes towards teenage pregnancy to help inform the strategy.  The latest available data shows that 27.4% of St Helens mothers are continuing to breastfeed their babies 6-8 weeks from birth. This remains one of the highest rates recorded for St Helens, although this remains significantly below the national average rate of 48.2%. Actions to improve performance have included baby cafes, volunteer peer support and the successful ‘Your Milk Your Story’ social media campaign. The Infant Feeding Partnership Group meet on a quarterly basis and an action plan is in place. The group also align and link in with Liverpool City Region Breast Feeding activity and strategy meetings.

14 110 5

Priority 2 - Promote good health, independence and care across our communities Objectives  Provide people with a positive experience of health and care services  Support people to lead healthy lives and improve their wellbeing  Promote good mental health to improve people’s lives  Support people with health and care services to remain independent in their community Progress against priority Adult Social Care  The first quarter of 2020/21 has been dominated by the Covid-19 pandemic and the subsequent Council response.  The Council has an obligation to ensure that contracted adult social care services remain financially sustainable within the requirements of the Care Act (2014). Service user preferences may change as the effect of Covid-19 across the sector are felt. This could result in a rebalancing of the service profile across the market, for example a greater use of care at home such as domiciliary care, direct payments or other care models rather than care in residential settings. In progressing against this priority, it’s imperative to ensure: o There is a sustainable care market in St Helens; o There is enough market capacity to meet demand; o Good quality care is provided.  During the Covid-19 pandemic the department has striven to ensure this priority continues to be met and has undertaken the following via the Contact Cares function: o Made 24,403 calls to individuals; o Delivered 112 emergency parcels delivered to 93 residents; o 169 residents supported with Hospital and Brookfield discharges, outpatient appointments and Care Home transfers; o 6,000 shielding residents called and provided with food, medicine, care services and signposting.  The Social Work team has ensured: o 4,190 Assessments and reviews were undertaken; o 7,237 Care plans are currently in place.  Mental Health Services have continued to be provided: o A 24/7 mental health crisis line has taken 1,890 calls; o The Mental Health Floating Support Team have continued to visit all service users.  The Department has continued to provide services to enable people to maintain their independence and has: o Made 1,000 welfare calls to everyone registered and follow up calls to those in greatest need;

15 111 5

o Ensured telephone assessments continued throughout and equipment delivered; o Undertaken daily calls and support to all providers; o Undertaken weekly conference calls with providers; o Seen 683 people currently supported by St Helens in Care Homes; o Seen 1,755 people currently supported by Domiciliary Care Services; o Undertaken daily monitoring of Care Homes with outbreaks.; o Secured access to the national emergency PPE supplies and develop a system to fairly allocate;  As well as dealing with the pandemic, the department has continued the development of strategies to increase independence and improve services for individuals in the following areas: o Care Homes - Enhanced `Care Home Support’ developed during the pandemic is being retained so that residents can be supported safely and out of borough placements reduced. o Homes for Life - Extra Care Housing is being maximised to continue to reduce demand for traditional Care Home beds. Alterative Housing options that are future proof will be developed. o Day Services - To reduce dependence on buildings, outreach support is being developed for people who require care and volunteers and community solutions are supporting people who are isolated, lonely and require support to take part in activities or provide a break for a carer. Alongside this, planning has commenced for community activities peer support and `virtual’ day services to be provided through “digital days” which could be an alternative to building based services and an opportunity to stay in touch, socialise and even exercise. o Market Strategy - The department has undertaken wide-ranging consultation with providers to understand the impact of the Covid-19 pandemic on the market and by consequence service users. o Financial Strategy - The department continues to take a robust approach to dealing with the financial position and providing scrutiny with a view to finding solutions. This is in conjunction with the wider savings strategy. An adult services finance group has been established to consider the financial position and the savings strategy. o Quality Assurance - The department is committed to providing services of the highest standard and to that end have recently undergone robust scrutiny from the LGA utilising the TEASC (Towards Excellence in Adult Social Care) monitoring tool. This involved producing a revised TEASC report and the department met with LGA representatives who subsequently produced a report from the LGA allowing the departments to consider the findings. Public Health Coronavirus

 There has been extensive work in Public Health in response to the coronavirus pandemic, both within St Helens, and across Cheshire and Merseyside. This has included work such as public health advice, support for vulnerable people, infection control, and data management and intelligence.

16 112 5

 Public Health have supported the Merseyside LRF on a range of cells, including test and tracing, intelligence and vulnerable people. Work was undertaken with the CCG to secure swabbing for vulnerable cohorts to support outbreak management.  Work on outbreak management has been significant, with the rapid development of a team of staff from environmental health, sexual health, public health, infection control and admin support set up and trained to manage complex local outbreaks and undertake contact tracing. This was the first such response team developed in Cheshire and Merseyside. We also have a single point of contact for outbreaks from Public Health England with Contact Cares.  A Cheshire and Merseyside central hub was subsequently developed with support from St Helens staff. A range of complex outbreaks have been supported so far, with locations including care homes and homeless shelters.  An outbreak management plan has been produced and a proactive communications plan is under development.  Data and intelligence activity has progressed in a fast-changing environment. Work locally has supported colleagues in the hospital to plan capacity and outbreak management teams to estimate demand and plan staffing cover. Public Health have also worked with public health academics across the North West to model future demand on the health and social care system. A range of data sources are compiled and analysed to inform on disease progression and system demand for the health protection board.  Financial allocations have been received for the local track and trace function and St. Helens received £1.3m, which will be needed to operate the system over the next 2 years.  Public Health have been supporting HR and the Communications team to communicate important information to the council workforce and the wider community. A range of health and wellbeing messages have been communicated to staff including working from home, physical activity, healthy eating, reducing harmful drinking, and mental and emotional wellbeing. Workplace activities have been implemented to encourage better health and wellbeing for Council employees and a workplace health champions network has been created. Equally important has been the broad range of advice and support communicated to allow the reopening of both council services and services within the community and business sector. Other health issues  In other areas of health, reducing smoking remains an important priority to both improve health overall and reduce inequalities in health within the Borough. Stop smoking support remains an important part of this, and the service has continued despite the current challenges with support now given virtually. Following this, Public Health England have recently released 2019 smoking rates across England. The results for St Helens are very positive, with the proportion of adults who are smokers falling from 15.8% in 2018 to 13.0% in 2019. The value is now even lower than the England average of 13.9%.  Activity to promote mental health and prevent suicide continues locally, with a range of projects highlighted in the performance update for mortality due to suicide and undetermined injury.

17 113 5

Performance Indicator Summary

Promote good health, independence and care across our communities - 2020/21

Number of older people aged 65 or over admitted on a ASC-18 permanent basis in the year to residential or nursing care per Lower 630.9 570 669 660 Y 26.0 35.3 62.5 62.11% 2nd Quartile 100,00 population aged 65 or over All delayed transfer of care (number of delayed days per Data collection currently ASC-20a Lower 250.6 172.3 219 220 Y N/A N/A 1st Quartile

1 100,000 population aged 18 and over) suspended by NHS

r e

i Mortality rate due to suicide and injury of undetermined intent

T PH-25 Lower 17.9 15.9 14.4 16.5 Y N/A N/A 12.9 0.77% 4th quartile per 100,000 population Admission episodes for alcohol specific conditions, all ages, CCG currently unable to provide PH-48 Lower 1,110 1,125 1,059 1034 N/A N/A 4th quartile per 100,000 population data Emergency hospital admissions for falls for aged 65+ per CCG currently unable to provide PH-52 Lower 2,692 2,484 2,438 2484 N/A N/A N/A 100,000 population data

Percentage of adults aged 18-69 with learning disabilities 114 known to ASCH in settled accommodation at the time of their ASC-11 Higher 96.5 97 96.6 96 Y 97.6 97.6 97.4 1.46% 1st Quartile most recent assessment, formal review or other MDT planning meeting Percentage of adults aged 18-64 with learning disabilities in ASC-12 Higher 6.6 7.7 7.4 8 Y 7.8 7.6 7.2 -10.00% 1st Quartile employment Number of adults, receiving self-directed support in the year to ASC-13 31st March, as a percentage of clients accessing long-term Higher 87.9 77.8 84.8 88 Y 90.0 89.4 88.8 0.91% 3rd Quartile community support Percentage of older people discharged from hospital to their own home or to a residential or nursing home or extra care ASC-17 Higher 87 93.3 90.6 93 Y 87.0 88.5 90.1 -3.12% 1st Quartile

2 housing bed for rehabilitation who are still at their place of

e residence 91 days after discharge i T Number of adults aged 18-64 admitted on a permanent basis in ASC-19 Lower 12.2 11.3 16 12 Y 0.0 0.0 0.0 100.00% 2nd Quartile the year to residential or nursing care per 100,000 population

Percentage of initial strategy discussions undertaken within 1 ASC-22 working day of an adult safeguarding alert being made to the Higher 97.8 98 84 99 Y 100.0 96.0 96.0 -3.03% N/A contact centre. Percentage of visits to an adult safeguarding victim undertaken ASC-23 within 2 working days of the initial strategy discussion unless Higher 100 100 100 98 Y 100.0 100.0 100.0 2.04% N/A requested otherwise by service user or family.

ASC-26 The outcome of short-term services Higher 76.7 78.1 89.6 85 Y N/A N/A 87.5 2.94% 2nd Quartile

18 5

Overview of Priority Performance A total of 13 indicators are due to be reported in Quarter 1. Data cannot currently be provided for 3 of these measures. The reporting of delayed transfers of care has been temporarily suspended by the NHS. The CCG are currently reporting that they are unable to provide data in relation to hospital admissions for falls and alcohol specific conditions. Of the remaining 10 indicators, 7 are reported as meeting target, whilst 3 are not meeting target. Of the 3 measures not meeting target, 2 are within a 5% tolerance of target. Of the 10 indicators where data is available, 2 are showing improvement on the previous reporting period in terms of variance from target, 3 are showing the same performance and 5 are showing a downturn in performance. The latest available picture of comparative performance relates to verified nationally published data for the financial year 2018/19. The comparators used for the social care measures are the 23 local authorities within the ADASS North West family group. The comparators for the public health measures are the 16 authorities within the CIPFA nearest neighbour's family group. The comparative performance of the adult social care measures is generally strong, with all but one either first or second quartile. The comparative performance of the public health measures for suicide and alcohol specific admissions to hospital are both 4th quartile, however recent local performance trends are showing some improvement.

What is performing well Adult Social Care  As of the end of June 2020, there have been 23 permanent admissions to residential or nursing care giving a rate of 62.5 per 100,000 of the over 65 population. This is less than the target of 165 at this stage in the year. The low figure may be showing the effect of Covid-19 and service users / families' reluctance to be placed in a residential or nursing home at this time. This effect may continue in the short term, but we will need to monitor the figures once the numbers of infections decreases and the country is released from lockdown. There have been no recorded permanent admissions for the 18-64 years age group in this period. Comparative performance (2018/19) is second quartile for both indicators.  At the end of June 2020, a total of 577 clients (97.4%), with a learning disability, out of 592 are identified as being in settled accommodation, which is better than the target set. Comparative performance (2018/19) is top quartile for this indicator. St Helens consistently reports at a high level for this indicator and is usually in the top 3 in the North West.  As of the end of June 2020, a total of 2,326 clients out of 2,620 in receipt of services had been through the self-directed support process, which equates to 88.8%. Performance is better than the same period last year (83.7%), although the latest comparative performance puts St. Helens in the 3rd quarter for its peer group. Close monitoring of this indicator is required during 2020/21 to improve performance further.  Out of 13 adult safeguarding investigations commenced since the start of April 2020, all received a visit within two working days. This indicates that those enquiries leading to investigation are being commenced in a timely manner following the initial strategy meeting and this evidences consistent positive practice.  Since April 2020 a total of 77 out of 88 people who received short term involvement did not go onto access long term services. This gives a performance position of 87.5%, which is better than target and positive performance as this is a measure of the success of short-term services. Performance is slightly below the same period last year (90%) but comparatively is still performing strongly (2nd quartile in 2018/19).

19 115 5

What requires improvement and what action is being taken Adult Social Care  As of the end of June 2020, there are 43 people out of 592 (7.2%) with a learning disability in paid employment. This is slightly below target and will require monitoring and checking with the Supported Employment Team and All Ages Team, to ensure recording is accurate. A report will be built to identify those service users with no employment status recorded. The reduction in performance may be due to the impact of Covid-19 and the closing of a number of workplaces. The latest comparative data (2018/19) places St. Helens in the top quartile for this indicator.  As of the end of June 2020, out of 304 people receiving a reablement service on discharge from hospital a total of 274 were still at home 91 days after discharge. This gives an actual for the period of 90.1%. Performance is similar to the same period last year (89.4%). Although below target, performance has increased each month over the course of Quarter 1. Performance will continue to be closely monitored each month. If the current rise slows, the department will consider actions with the Reablement Team. The latest comparative performance (2018/19) places St. Helens in the top quartile for its peer group.  As of the end of June 2020, there had been 203 adult safeguarding initial strategy discussions undertaken within 1 working day out 212 enquiries received during the period, giving an outturn of 96%, slightly below target. This may be due to the 50% increase in the number of strategy discussions required during June compared to the first 2 months. Performance is better than the same period last year (82%). However, the measure will require close monitoring over the next 3 months to ensure initial strategy discussions undertaken within timescale. Public Health  Although St Helens is still significantly higher than the England average, the rate of mortality due to suicide and undetermined injury continues to fall, which is positive. The latest local provisional data is a 3 year-rolling-rate up to the end of March 2020 at a rate of 12.9 per 100,000, corresponding to 60 deaths. This is a noticeable reduction on the Quarter 1 value 12 months previously, when the rate of 14.7 per 100,000 corresponded to 69 deaths. This continues the very significant reduction in deaths by suicide in St Helens since 2015-17, when the rate of 17.9 deaths per 100,000 was the highest in England.  There is a range of action continuing to support further improvements in these figures, and local mental wellbeing generally. The ‘OK to Ask’ campaign has been providing resources to help maintain good mental health during the Covid-19 pandemic. There has also been work on a campaign on the links between mental health and domestic abuse.  The ‘Kind to Your Mind’ campaign was run jointly across Cheshire and Merseyside. A number of marketing and communications channels were used to promote the campaign, including radio partnerships, a campaign website, social media, PR and a dedicated podcast series. The project was evaluated and was successful in its objectives, leading to 2,246 people visiting the ALMA wellbeing portal, 239 users completing online therapy and 1.1 million people reached through radio.  Finally, Cheshire and Merseyside were rated as a Suicide Safer Community by Living Works, a prestigious award that has taken two years to complete and shows the joined- up efforts across the sub-region.

20 116 5

Priority 3 - Create safe and strong communities for our residents Objectives  Work with partners and communities to create strong and safe neighbourhoods  Reduce the impact of domestic abuse in our communities  Work as a partnership to prevent and reduce harm to our most vulnerable residents

Progress against priority  A Safer St Helens Executive has been established to take forward the partnership activity to deliver safer communities in St Helens. The Executive will be supported by a number of thematic sub-groups. The Executive will report to the People’s Board as a standing item for future meetings.  The Domestic Abuse Strategy was approved in March 2020 and work has commenced across the partnership to implement the key actions within this. A sub-group has been established that will take forward areas of work such as training and development of initiatives across the borough and will report progress to the Safer St Helens Executive. The service has also worked with SafeLives (a national domestic abuse charity) to develop a Survivor Panel, which will meet when lockdown restrictions are eased.  During Quarter 1, activity to address domestic abuse has focused on specific campaigns during the pandemic due to concerns regarding the impact of lockdown on people experiencing domestic abuse. The Council has supported the national campaigns on domestic abuse but has also developed specific local campaigns including a campaign promoting Childline for young people and the promotion of the helpline numbers on pharmacy bags.  Additional support for the Safe2Speak service was secured during Quarter 1 to increase Independent Domestic Violence Advisor (IDVA) capacity from funding made available by the Ministry of Justice. The Council has also confirmed additional funding for the Safe2Speak Service to preserve existing IDVA capacity for 2020/21.  The Office of the Police & Crime Commissioner has also confirmed funding of £175,000 for St Helens to support crime prevention and to support victims of crime. This funding will support domestic abuse services, preventing re-offending and supporting the Youth Justice Service.  St Helens Community Safety Partnership received notification of an allocation of £120,000 from the Merseyside Violence Reduction Partnership to deliver local initiatives to support the wider objectives of reducing serious violence in the area. During Quarter 1, a small grants programme has been developed in partnership with the support of Halton & St Helens VCA to support local organisations delivering youth mentoring and diversionary activities. The current landscape presents a challenge for the delivery of traditional programmes and projects; however, the services will commence from September 2020.  In addition to the campaigns on domestic abuse and hate crime, the Community Safety Team has delivered a number of other campaigns during this quarter, including advice to residents on the dangers of Open Water Swimming and a campaign on the dangers of off road vehicles / scrambler bikes, including information on how to report concerns.  From the commencement of the lockdown period in March 2020, there was a significant increase in reports of anti-social behaviour to both the Council and Merseyside Police. Initial reports during the first few weeks of the lockdown focused

21 117 5

on neighbour issues and non-compliance with Covid-19 regulations. The nature of the anti-social behaviour reported has changed alongside the easing of restrictions, with alcohol related anti-social behaviour and concerns regarding large gatherings increasing. In response to this, the Council co-ordinated a #ReadytoRespect campaign regarding neighbour issues during the first period of lockdown and has worked with partners including Merseyside Fire & Rescue on delivering outreach services to parks and open spaces. The Council has also worked to support Merseyside Police on the implementation of Dispersal Orders in two specific sites over recent weeks. The Community Safety Team continues to respond to reports on an individual case basis and to also co-ordinate responses across the Safer St Helens partnership.  Finally, during Quarter 1 the service has provided additional support to a number of wider initiatives relating to the response to the pandemic, including assisting with the ‘Everyone In’ approach to Rough Sleeping and Homelessness and in supporting both the Licensing and the Town Centre services in the planning for the re-opening of the night time economy.

22 118 Performance Indicator Summary

Create safe and strong communities for our residents - 2020/21

Higher / Past Performance Q1 Q1 Q1 20/21 20/21 target % Variance Comparative Tier Ref Performance Indicator Lower is 17/18 18/19 19/20 DOT Target reviewed? April May June from Target Performance better? Outturn Outturn Outturn 1 Percentage rate in repeat victimisation for those domestic r SC-01 Lower 27.5 29.2 38.5 41 Y 48.0 36.0 34.2 16.56% N/A e

i violence cases being managed by a MARAC T

SC-07 Number of hate crime incidents report to agencies Higher 211 245 314 290 Y N/A N/A 74.0 1.37% N/A

2 SC-08 Number of incidents of anti-social behaviour Lower 6,065 4,470 4,196 6,400 Y N/A N/A 2014.0 -25.87% N/A

r e

i Data collection currently T SC-12 The percentage of children re-offending Lower 57 50.8 40.7 45.3 Y N/A N/A 3rd Quartile suspended by Ministry of Justice Targets to be set SC-19 Serious violence offences per 1,000 population (New) Lower N/A N/A N/A Data awaited from Police N/A N/A N/A

following Police data

119

23 5 5

Overview of Priority Performance A total of 5 indicators were due to be reported in Quarter 1. The Youth Justice measure which relies on national data has been temporarily suspended by the Ministry of Justice. Data in relation to the serious violence measure which is a local new indicator for 2020/21 is awaited from the Police. Targets will be set once this is received. Of the 3 indicators where data is available 2 of the measures are currently meeting target, whilst 1 is not. Direction of travel can be determined for 1 measure in Quarter 1 and this is showing improvement on the previous reporting period in terms of variance from target, Comparative performance can be determined for 1 indicator as the remainder are all local measures of performance. The Youth Justice measure is shown as 3rd quartile, however performance improved significantly in 2019/20 and this position is anticipated to change for the better when national data for 2019/20 is published.

What is performing well  The performance in relation to the number of repeat cases managed by the MARAC has recorded an improvement from April 2020. The MARAC has continued to function on a virtual basis during the lockdown period. The MARAC Steering Group has continued to oversee the performance of the MARAC in St Helens, including reviewing the levels of referrals and repeat cases.  The Quarter 1 period has seen a rise in recorded reports of hate crime to agencies despite lower levels of recording during April 2020. The target within the framework seeks to see an increase in reporting of hate crime incidents as this is an area that has traditionally remained under-reported. Locally, during Quarter 1, the service has promoted the #Betterthanthat campaign to tackle hate crime and seek local support for a pledge to be ‘better than that’. The Council also lit the Steve Prescott bridge during this period to remember George Floyd and has also promoted the ‘No Place for Hate’ message. What requires improvement and what action is being taken  There has been a significant rise in the incidence of anti-social behaviour during Quarter 1. This follows a period of lower rates of reporting over previous periods and is reflective of the impact of the lockdown. An estimated 50-60% of all calls during this period related to adherence to Covid-19 regulations. Given that this has been an unprecedented three months, comparison to levels of anti-social behaviour in previous quarters is problematic, as non-compliance with social distancing and social gatherings restrictions would not previously have been considered as anti-social behaviour. To address the wide range of issues over the period, the service has worked in partnership with Merseyside Police on a specific response programme, including providing additional funding resources to Merseyside Police. Outreach services continue to target specific locations and the service has also recruited to a new post of Anti-Social Behaviour Officer, commencing in role during August 2020 and providing additional capacity for the service. The levels and nature of reporting of anti- social behaviour will continue to be monitored closely over the next quarter and the service will respond to any emerging challenges relating to the easing of lockdown restrictions.

24 120 5

Priority 4 - Support a strong, diverse and well-connected local economy Objectives  Invest to grow, attract and create more businesses and jobs  Improve skills and access to employment  Redevelop our town and district centres  Provide the right homes, in the right place, at the right cost

Progress against priority Business and the Economy

 The impact of the Covid-19 pandemic on our business community and the local economy has been catastrophic with premises forced to close, furloughing of staff and the increase in financial hardship as a result. During this period, our Business Support Team has worked tirelessly to provide appropriate advice and signposting to ensure that local companies have been able to access all relevant financial and advisory support. Our Ways to Work Team have also worked hard to ensure that all employment opportunities are actively promoted, and assistance has also been provided to those facing redundancy. The feedback from our Business Community has been extremely positive referencing the help and support that has been provided by the Council and the speed at which we have reacted to their needs.  The Council has dispensed over £25m of business grants and has also made a further £1.5m available through its Discretionary Fund to support local businesses that may not have received financial support previously. This fund has so far received over 200 application with almost £1m having been distributed.  The delivery of the Glass Futures project moves ever closer with pre-development funding having been made available through the Liverpool City Region Combined Authority during this quarter. The project partners which include St Helens Council, Network Space and Glass Futures are now heavily focused on progressing a detailed design with a planning application expected before the end of 2020.  The regeneration of our Town Centres remains a key priority and work continues to progress the partnership with English Cities Fund with the focus being to deliver significant redevelopment of both St Helens and Earlestown Town Centres. Housing Services  A key focus for the Housing Options and Advice Service during this quarter was on ensuring that all rough sleepers in the Borough were provided with an offer of accommodation under the Government’s ‘Everyone In’ initiative. Aimed at those who were street homeless or staying in communal night shelters, the Council worked with hostel providers and a local hotel to ensure that all those identified as rough sleeping or sharing facilities were offered self-contained accommodation to reduce the risk of infection and allow vulnerable people to stay safe and self-isolate. During this quarter, 87 people who were either street homeless or who had been asked to leave shared accommodation were helped with offers of accommodation. Joint working with public health, St Helens CCG and St Helens Together as well as charitable organisations ensured that a holistic response was developed to not only address the housing needs of this group but their wider support needs. Individual rehousing plans and options have been identified for those accommodated under this initiative.

25 121 5

Performance Indicator Summary

Support a strong, diverse and well-connected local economy - 2020/21

G&P-01 Rate of employment (working age) Higher 70.1 72.7 74.5 74 N/A N/A 74.0 0.00% 1st Quartile 1

e G&P-06 Town Centre retail vacancies as a proportion of total stock Lower 11.8 13.4 20.9 14 N/A N/A 20.9 -49.30% N/A i T G&P-09 Number of net increases in dwelling stock Higher 408 775 758 434 Y N/A N/A 98.0 -9.26% N/A

Percentage of major planning applications determined within G&P-12 Higher 100 100 100 100 N/A N/A 100.0 0.00% 1st Quartile 13 weeks or within an agreed extension in time Percentage of minor and other applications determined within 8 G&P-12a Higher N/A N/A 96.8 94 N/A N/A 96.5 2.66% N/A weeks Number of private sector vacant dwellings that are returned into HS-03 occupation or demolished as a direct result of action by the Higher 161 93 102 50 Y 1.0 6.0 9.0 -10.00% N/A local authority 122 Number of households that are families with children living in HS-06 Lower 44 61 63 64 Y N/A N/A 21.0 -31.25% N/A temporary accommodation. 2

r Average number of weeks spent in B&B accommodation for all e i HS-08a households who are in priority need and owed the main Lower 1 10.4 0 12 Y N/A N/A 0.0 100.00% N/A T housing duty under the Homelessness Reduction Act 2017 Total number of weeks spent in temporary accommodation provided by the LA (not B&B/refuge) for all households who have HS-08b been assessed as being owed the relief duty under the Lower N/A N/A 12.7 16 Y N/A N/A 14.0 12.50% N/A Housing Act 1996, where these duties ended during the quarter and the Council discharged their duty to the household

HS-09 Number of households assisted to reduce fuel poverty Higher 496 506 861 450 N/A N/A 135.0 35.00% N/A

26 5

Overview of Priority Performance A total of 10 indicators are reported in Quarter 1. Of these 10 indicators, 6 are reported as meeting target, whilst 4 are not meeting target. Of the 5 indicators where direction of travel can be shown, 1 is showing improvement or the same performance on the previous reporting period in terms of variance from target, 2 are showing the same performance and 2 are showing a downturn in performance. The latest available picture of comparative performance available for 2 indicators relates to verified nationally published data for the financial year 2018/19. The comparators used are the 16 authorities within the CIPFA nearest neighbour's family group. The latest employment rate continues to be top quartile within the family group, but the rate has fallen since last reported. Planning performance remains strong comparatively and locally, performing at its maximum level.

What is performing well

Economy and Planning  The rate of employment stands equal to target at 74%. The latest data relates to the period April 2019 to March 2020. The employment rate has shown a 0.5% reduction since the last reported period, January 2019 to December 2019. St Helens current rate is below the North West average of 74.9% and the England average of 76.2%. Performance continues to compare favourably to St Helens’ group of comparator authorities. The latest data will not reflect the impact of Covid-19 on the economy. However, it is inevitable that the employment rate will be impacted by the pandemic and the measure will be carefully monitored going forward.  The performance of Planning services continues to be strong over the first quarter with 100% of major planning applications determined within timescale and 96.5% of minor and other applications determined within timescale. Housing and Housing Services  There was a total of 98 net dwellings completed during the first quarter, approximately 14% of which were affordable. The measure is currently below the target of 108 for the first quarter, however significant housing construction continues across the borough with 578 units under construction and it is anticipated that the year-end target will be exceeded.  The Empty Homes Service has continued to deliver positive outcomes despite a reduction in the availability of the service to carry out site visits during lockdown. During Quarter 1, the Council successfully brought 9 empty homes back into use through ongoing support and liaison provided to property owners. This was only 1 less than the target of 10 and the service continues to contribute to meeting the housing needs of the Borough and supporting the housing market.  During Quarter 1 the Council’s Homelessness Team were able to meet the needs of homeless households (both single people and families) through the provision of temporary accommodation to protect them during the initial Covid-19 period. The Team have been successful at finding accommodation solutions for homeless households at an early stage. No homeless households needed to be accommodated in B&B accommodation during the period. The indicator measuring the number of weeks spent time in temporary accommodation (not B&B/refuge) during this period was also within target.  During Quarter 1, the Affordable Warmth & Welfare team adapted to allow continued service delivery during lockdown without needing to undertake home visits. The team reduced fuel poverty through emergency heating repairs/boiler replacements, income maximisation, price comparisons for gas and electricity to reduce fuel bills and

27 123 5

providing general energy efficiency/affordable warmth advice. The 135 assisted was above the anticipated target due to successful integration of Affordable Warmth and Welfare Benefits teams in order to include income maximisation within Fuel Poverty reduction work. Economy  The town centre vacancy rate stands at 20.88% with 62 vacancies against a total of 297 units. Given the global pandemic, it is hard to ascertain the full future impact that Covid-19 will have on the High Street. Whilst many of the shops have re-opened, the footfall for the town centre is low, due to most of the office-based staff in the town centre working remotely, consumers not yet fully returning to the town centre due to confidence issues and changes in consumer behaviour with the growth of on-line shopping. This is potentially likely to have a real negative effect in the coming months. Businesses are currently assessing their workforce, with many employees still on furlough, and reviewing their estate in light of the pandemic, which will potentially lead to further closures in the coming months. Virgin Media have already made a national decision to close their high street shops and it is anticipated more will follow. However, enquiries for food & drink and barbers & hairdressers premises continue to be received, as well as proposed alternative uses for shops or former retail units in the town centre. The position will continue to be closely monitored. What requires improvement and what action is being taken Housing Services  The number of households with children in temporary accommodation on the last day of the quarter was higher than expected when compared with earlier years. 14 of these households had offers of accommodation via local Registered Housing Providers and would, in normal circumstances, have signed up and moved into their tenancy. Due to the Covid-19 pandemic however, there were delays with lettings as void works were on hold for a significant period of time leading to reduced ‘flow’ in the housing allocations and lettings system. The Council’s Homelessness Team have worked closely with Torus and the other Registered Providers to overcome this. Void works, allocations and lettings have recommenced, and households are now moving out of temporary accommodation into permanent properties.

28 124 5

Priority 5 - Create a green, thriving and vibrant place to be proud of Objectives  Reduce our carbon footprint and impact on the local environment  Provide green and attractive open spaces for people to visit and enjoy  Create a thriving, diverse cultural offer and pride in our Borough

Progress against priority  The Covid-19 pandemic and how the Council has responded to this dominated the first quarter of the financial year. There was significant disruption to most services resulting in the closure of library and leisure facilities and the temporary suspension of some services, for example recycling and green waste services for several weeks. However, the response to the pandemic has been overwhelmingly positive and services have adapted and have introduced new and innovative ways of delivering services as we have looked to maintain service delivery and support our residents and communities.  Although buildings were closed, the libraries team continued to operate as new on-line digital services were introduced which have ensured that residents can continue to access the service but in different ways. At the end of the first quarter, there had been 20, 243 visits to on-line services, including e-book platforms, a 98% increase compared to the 10,239 visits in the same quarter last year. The promotion of the Library Home Delivery Service resulted in 66 new residents, most of whom are shielding, benefitting from this service.  The Council’s Schools Library Service was the only service in the North West that continued to operate during lockdown and during this time continued to provide books and other resources to schools supporting vulnerable children and children of key workers.  In May, Cabinet approved the St Helens Borough Heritage Opportunities document and endorsed a proposal to produce a coordinated delivery plan for Culture bringing together recommendations of the Heritage Strategy, the future Arts, Events and Voluntary Sector Strategies and to align these to the regeneration work of the Town Centre Deal Board and the Council’s wider reset and recovery plans. The Heritage Opportunities document presents an ambitious and bold vision for heritage in the Borough, setting out our aspirations for the next ten years to develop a thriving heritage visitor economy based on our heritage industrial and outdoors assets so that communities will feel that their heritage and identity is respected and celebrated.  Work continued on the development of an Arts Strategy for the Borough following extensive consultation with partners and stakeholders. It is intended that the St Helens Arts Strategy will align with Arts Council England’s new ten-year national strategy, the Liverpool City Region Combined Authority Cultural Compact and the Council’s own strategic objectives for the Borough. The delivery aspect of the strategy will form part of the Cultural Delivery Plan mentioned above. It is intended that a draft Arts Strategy will be presented to Cabinet in the third quarter.  Organisers of the Rugby League World Cup 2021 announced that games involving the men’s teams from Tonga and Italy will take place at the Saints stadium. The teams will be based in Liverpool but will travel to St Helens to use the rugby league training facilities available in the Borough and during their stay the squads will engage with schools, clubs and local communities. Community rugby league clubs in the Borough

29 125 5

have already started to benefit from the World Cup’s legacy fund with grants totalling £443K awarded for projects at six clubs.  In early May, the Department for Transport announced the Emergency Active Travel Fund to support local authorities to further develop and enhance cycling and walking currently being developed and infrastructure. The aim of this fund is to promote ‘active’ travel as an alternative to the use of private cars. Funding for schemes is provided in two tranches. The Council was successful in securing £340k tranche 1 funding to be spent by 28 August 2020 to deliver cycling measures at Chester Lane/Jubits Lane and Clock Face Road. A second tranche of £7.896m has been allocated to the Liverpool City Region for the delivery of medium to longer term cycling and walking projects. Proposals for St Helens to access this second round of funding are currently being developed and will then be submitted for consideration to the City Region. Projects approved for this funding will need to be delivered by 31 March 2021.

30 126 Performance Indicator Summary

Create a green, thriving and vibrant place to be proud of - 2020/21

Higher / Past Performance Q1 Q1 Q1 20/21 20/21 target % Variance Comparative Tier Ref Performance Indicator Lower is 17/18 18/19 19/20 DOT Target reviewed? April May June from Target Performance better? Outturn Outturn Outturn 1 Percentage of household waste arisings which have been sent Quarter 1 data is currently r ENV-02 Higher 36.35 36.53 38.39 37 Y - N/A N/A e

i for recycling unavailable T

CC-01 Number of library visits per 1,000 population Higher 3,238 3,289 3,058 1,000 Y N/A N/A 115.0 -54.00% 3rd Quartile

CC-02 Number of active library members per 1,000 population Higher 194 135 141 50 Y N/A N/A 135.0 170.00% 1st Quartile All sports centres remained

2 CC-16 Number of visits to sports centres Higher 1,088,131 1,297,825 1,200,295 1,350,000 - N/A N/A

r closed during Quarter 1 e

i Kilograms of residual household waste collected per Quarter 1 data is currently

T ENV-03 Lower 498.8 494.3 468.05 490 Y - N/A 2nd Quartile

household unavailable Percentage of relevant land and highways that is assessed as ENV-06 Higher 91.8 95 95 95 Y 91.8 90.9 94.0 -1.05% N/A

having deposits of litter at an acceptable level ENV-07 Number of flytipping incidents Lower 2,005 1,959 1,817 1,900 219.0 401.0 593.0 -22.02% 3rd Quartile 127

31 5 5

Overview of Priority Performance A total of 7 indicators were due to be reported in Quarter 1. Data is currently unavailable for the recycling and household waste measures. This information is provided on a quarterly basis from the National Waste Dataflow system and Merseyside Recycling and Waste Authority but has been delayed. Data cannot be reported for visits to Leisure / Sports Centres as they remained closed over the course of Quarter 1. Of the remaining 4 indicators 1 indicator is reported as meeting target, whilst 3 are not meeting target, one of which is within a 5% tolerance of target. Of the 3 indicators where direction of travel can be determined, 1 is showing improvement on the previous reporting period in terms of variance from target, whilst 2 are showing a downturn in performance. The latest available picture of comparative performance relates to verified nationally published data for the financial year 2018/19. The comparators used are the 16 authorities within the CIPFA nearest neighbour's family group. The latest comparative picture of performance for the 4 indicators, where this can be determined, is mixed, with 1 indicator in the first quartile, 1 in the second and 2 in the third. It is difficult to determine how current direction of travel will impact the future quartile performance of these measures, which is to a large degree dependent on the performance of other authorities within the family group when the 2019/20 nationally published data is made available later in the year. What is performing well  The number of active library members remained better than target during this quarter. Although library buildings were closed library members accessing digital services significantly increased in this quarter compared to 2019. What requires improvement and what action is being taken  The number of visits to libraries is below target and reflects the impact of the Covid-19 pandemic, which saw all library buildings closed at the end of March. In response, the service has seen increased take up of on-line digital services with numbers accessing services in this way up by 98% compared to the same quarter in 2019. Proposals have been developed and approved for a gradual and phased re-opening of library buildings from 27 July in line with Government guidance. Initially, libraries at Parr, Eccleston and Chester Lane will re-open from 27 July. Although it is positive that residents are making more use of the library digital services, it is recognised that the target will need to be amended to reflect the impact of the pandemic lockdown and the phased re-opening of the service from 27 July.  All leisure centres remained closed during this quarter. The target for visitor numbers to sports centres will be adjusted to reflect the impact of this and the phased re-opening of leisure centres from 27 July. The revised target will also need to reflect the risk assessments that have been completed for all leisure centres and the Covid-19 mitigation measures that have been implemented at all centres in response to risk assessments. This will mean centres will be able to accommodate fewer visitors whilst social distancing and other measures remain in place.  The number of fly tipping incidents saw a significant increase during this quarter. This reflects the impact of the closure of all recycling centres across from the end of March until 4 May and the suspension of the bulk rubbish collection service. This indicator will continue to be monitored closely following the re-opening of recycling centres and the resumption of the bulk waste collection.

32 128 5

Priority 6- Be a modern, efficient and effective Council Objectives  One Resident - We will deliver an improved customer experience for residents, businesses and partners, ensuring that the culture of the whole council places the customer at the centre of all we do.  One Digital - We will invest to create a modern, digital workplace and infrastructure capable of changing the way we work and the services we deliver to better serve our customers, residents and communities.  One People - We will ensure our workforce is fully valued, empowered and supported; being equipped with the skills and knowledge necessary to support the delivery of our strategic priorities.  One Message - We will work together as one council to communicate effectively to build and support meaningful, positive relations within the council, with our customers and across communities.  One Space - We will work collaboratively with partners to ensure that the buildings, land and spaces that we have are used effectively and efficiently to promote positive change within the council and across our communities.  One Budget - We will look to deliver a sustainable budget strategy focussed on the delivery of our strategic priorities and the outcomes and services that matter most to our residents and communities.  One Practice - We will ensure modern, transparent, and clear governance arrangements that support strong political leadership, decision making and new collaborative ways of working.  One Outcome - We will promote a culture that prioritises performance management and in which everyone takes responsibility for performance improvement at individual, service and organisational level. Progress against priority One Resident  The contract to provide an integrated CRM, website, online forms, customer portal and intranet platform was finalised in May. The new platform will significantly improve customer service and transactions between the customer and the Council. The customer will be kept informed throughout the process of the request and be able to see the progress on the portal. Officers responding to customer requests will be assigned jobs directly on their devices, attend to the issue and update the contact and the resident at the same time. The platform also has applications including Streetscene, Registrars, Freedom of Information Requests, Subject Access Requests and Complaints, amongst others. The project will embrace all relevant services as it starts to move forwards. Project development has now started. Implementation of phase 1 of the project covering the CRM, new website, online forms and Customer Portal is anticipated for April 2021.  Work has been completed to allow our residents to use assistive technology (Amazon Alexa) various questions related to our Recycling service, such as ‘When is my collection’. Examples of this type of functionality is important in assisting people with visual impairment, or mobility issues and Customer Services will explore the possibilities of doing this in other services. Alongside this are developments from Amazon, which allow contact between users of Council services, which again if

33 129 5

explored, could assist in addressing issues of social isolation for some of our more vulnerable residents.  During the first quarter there has been effective joint working between the Contact Centre and Contact Cares, with a call overflow system to manage call demands and peaks.  Work is ongoing to develop a new Customer Service Strategy, which commits to providing a responsive, easy to use, and consistent experience for our residents and external customers alike. The Strategy will align with revisions to Customer Service standards, which apply to all Council Officers and compliment the work we are carrying out on the integrated CRM, website, online forms, customer portal and intranet platform.  A review of Customer Service Standards is underway to reflect how service delivery, in particular face to face service, is changing following the Covid-19 pandemic. The Customer Service Standards relate to Contact Centre officers, and a wider Workforce element, which tries to cover all aspects of customer/officer interactions. The Contact Centre document is all but complete but requires some refinement to reflect how we deliver our reception service. The Workforce element still requires further work and collaboration to complete. It is anticipated that both the new Customer Service Strategy and Customer Service Standards will be completed for approval by the end of the second quarter. One Digital The One Digital stream of the One Council programme has seen huge progress since its inception with some of its fundamental deliverables being expedited by the onset of the Covid- 19 pandemic to assist the Council to operate in a different way.  IT Strategy - The Council’s IT Strategy is being redeveloped, building not only on the core components of One Digital, but taking account of the changes brought about by the pandemic and the new way IT is used under the new normal. The IT strategy will be finalised over the Summer of 2020 and be ready for review in the Autumn and if approved can be adopted in the December.  Cloud adoption - The Council’s move to cloud platforms for the hosting all its systems and service, is offering greater flexibility in terms of cost and collaborative opportunities as we move forward. A significant piece of work has been undertaken with a Microsoft partner to provide an economic assessment of the move to cloud of the remaining on- premise systems. This is now being analysed and the plan with anticipated costs will be available in the Autumn of 2020.  Mobile Worker (Home, Agile, Office) - An extensive programme of work has been implemented to assist the Council’s move towards agile and mobile working, which has been critical during the pandemic to allow us to operate a home working environment. Microsoft Surface Tablets and Laptops have been deployed along with additional kit including screens. The ability to print, copy and scan services away from the office will be enabled through a network upgrade in August 2020. In some cases, access to appropriate connectivity can be problematic. A central print, copy and scan facility using the Councils Multi-Function-Devices (MFD’s) will be introduced into a new agile working hub once a decision is taken on where that will be.  Microsoft 365 - Microsoft 365 (M365) is the suite of applications that the Council is deploying to enhance agile working. Outlook Webmail, the Outlook Client, Teams, Teams Live, and SharePoint have now been deployed across the Council with the latter transforming the way we use documents by allowing multiple officers to update them simultaneously. The M365 platform is vast and we are beginning to unlock and exploit its potential. A programme of awareness is being developed to make officers

34 130 5

aware of what is available currently and to look at the potential for the use of other applications in the suite. Work is also underway to facilitate the use of other collaborative tools to enhance working arrangements with external partners, such as Zoom and Google Meetings. As part of M365, Power BI will be deployed as a visual dashboard and reporting tool. Power BI has been successfully deployed in Revenues and Benefits. Training has been arranged for further roll out to cover the Contact Centre and Performance Management.  Unified Communications - The Council has deployed a soft phone which allows users to take their phone with them on their device wherever they are without the need for fixed office-based telephony. The soft phone has now been deployed to over 2,000 officers with only the Contact Centre and Contact Cares yet to come on board.  Wi-Fi - Prior to the pandemic assessments were carried out to determine the cost of deploying Wi-Fi to our corporate buildings. A model and costs have been determined for the Town Hall, Wesley House and Atlas House. This model covers public and council Wi-Fi across buildings and will support agile working environments to be created and greatly enhance public connectivity. In light of the transformation in the way of the Council working, cyber security is being reviewed to ensure that the Council’s systems and data continue to be protected.  Digital Training - A new IT Learning Hub has been established accessible from the Councils Intranet. This hub contains the latest information about how the new technologies work and is being regularly updated to enable officers to exploit them. Further developments will see “bite size” learning focusing on the more commonly asked questions.  Business Partnership Management - IT has engaged with staff over the past year to enhance relationship with them and to better understand and respond to their IT needs. Following analysis of the findings, a set of next steps has been agreed to deliver a more user-centric approach. One People  Work on the Council’s Agile Working Strategy has been accelerated and progressed during the first quarter following the onset of the Covid-19 pandemic. It is now proposed that all employees, that were previously office based, become agile workers by default, with criteria being developed for agreement to determine which employees would not be in this category. It is envisaged that future agile working arrangements will be complimented by agile workspace to support team meetings, social interaction, and staff well-being. The development of the strategy and action to achieve its aims is being taken forward by an Agile Working Sub-Group reporting back to the Reset and Recovery Strategic Group. Intelligence has been gathered from across the Council to develop agile working arrangements through initial impact assessments, a specific survey to capture workforce requirements and conversations / engagement sessions with staff. This information is being analysed and work has begun on the review of a whole series of policies and procedures in relation to supporting staff and managers within a new agile working environment. A series of initiatives have been put in place, including a daily staff email briefing, to support staff working from home. Managers have been asked to ensure frequent and regular contact with all their staff.  A report has been developed to seek approval for a replacement of the current in- house HR System to compliment agile working arrangements, modernise processes and practice and provide better information access to managers and employees. Once a preferred supplier for the Human Resources System is identified approval will be sought to award the contract.

35 131 5

 The Workplace Health and Wellbeing Group was reconvened in June with strong representation from 26 managers across the Council’s workforce. The group is working positively to engage with staff and provide support on key issues including mental health and physical health, managing the work life balance, managing staff, agile working arrangements and accommodation proposals. An internal campaign using workforce champions to promote social activities including virtual coffee mornings, virtual book club and virtual keep fit classes is about to commence. The group is providing valuable feedback for the Recovery and Reset group to consider and address.  To add capacity to deliver the One People Agenda a new post of Organisational Design and Development Manager was created and successfully recruited to. The post holder commenced on 1 July 2020. One Space  Linked to the Council’s Agile Working Strategy and the assessment of workforce / workplace requirements, work is underway on the development of an Accommodation Strategy. The Strategy will look to determine, in the light of the significant change in working arrangements brought about by the onset of the pandemic, the Council’s workplace building needs in the short, medium and long term. This will cover spaces to accommodate staff that require essential office space to fulfil their role, spaces so that staff are able to collaborate effectively over short periods and spaces to accommodate front line service delivery and customer / resident contact. The Strategy will link closely with the One Public Estate Programme and Asset Management Strategy. One Message  A St Helens Together Community Engagement Strategy 2020-2025 is under development. The Strategy aims to support strong, active and inclusive communities capable of influencing and shaping the borough, whilst creating a more transparent and accountable council. The starting point has been the initial consultation around a new Borough Strategy which will run until the end of August. The Borough Strategy will set out a long-term vision for the borough, an understanding of the key challenges faced in achieving that vision and exploration of opportunities available. A digital survey has been released to residents, partners and council staff allowing them to present their views and focus groups with staff, residents and specific groups are being scheduled to take place. The response will inform the long-term view about what the borough should like and how the Council should refocus resources and deliver future services.  Over Quarter 1 the Communications team have communicated messages and guidance in relation to Covid-19 effectively and regularly with residents and communities across the borough. Communication plans were developed to assist with the easing of lockdown restrictions and convey messages around testing and prevention. The ‘St Helens is Open’ campaign successfully supported the reopening of town and district centres within the borough.  A new branding style for St Helens Council that seeks to strengthen the bonds between the distinct local towns and villages of our borough has been developed. The word ‘borough’ has been added below the crest to encompass all the distinct towns and villages across St Helens. The rebranding is now being rolled out / phased in across the Council. A review of the council and partners other brands is also underway, together with the further development of branding for St Helens Together.

36 132 5

 A draft Social Media Strategy is under development with proposals to rationalise existing social media accounts and a business case process for any proposed future accounts. A draft Media Protocol is also being developed.  Communications with staff and Members have been stepped up over the course of the first quarter due to the pandemic. Covid-19 Policy briefings have been produced weekly for senior officers and Cabinet members and a monthly bulletin produced for all Members. Daily Covid-19 Staff email briefings have been produced by the Communications team and the Chief Executive has initiated a series of staff engagement sessions to facilitate open conversations with employees across all service areas. One Budget  Work has been ongoing to determine the Council’s financial position given the impact of Covid-19. A report was produced for Cabinet on the 24th of June, which showed a modelled outline position reflecting significant pressures and budget shortfalls. The report requested the progression during the year of an Emergency Budget. Work will continue to determine the Council’s future financial position and regular reporting to Government is being undertaken to set out the additional costs and loss of income as a result of the pandemic.  Financial reporting to Cabinet continued over the course of the first quarter with the completion of the Revenue and Capital Outturn Report 2019/20 and the Financial Monitoring Report Period 1 – 2020/21. Work is ongoing on finalising the draft Statement of Accounts for 2019/20 to comply with the statutory completion date of the 31st August.  The Government has provided the Council with a £1.9m Hardship Fund to support economically vulnerable people and households in their local area. In line with Government guidance, an additional council tax discount of up to £150 has been applied to over 9,300 working age residents in receipt of Council Tax Reduction. This discount will also apply to new working-age recipients of Council Tax Reduction during the year. One Practice / One Outcome  New governance structures were quickly established during the quarter in response to the Covid-19 pandemic. A Covid-19 Strategic Group is coordinating the Council response to the pandemic in the context of the Merseyside Resilience Forum and its constituent groups. A Local Reset and Recovery Group led by the Assistant Chief Executive and themed sub-groups have also been established. Impact assessments have been completed that include recommendations on embedding new practices and system change, exploring and sharing good practice, and identifying where there have been significant impacts on service delivery due to Covid-19. The impact assessments are informing Reset and Recovery Plans, which continue to be progressed across the 6 priority areas of the Council Plan / Borough Strategy. Recovery plans will identify what success looks like under each priority, action required to deliver this and a robust set of performance measures which will form the basis for the Council’s new performance management / reporting framework to measure success.  The Council’s Draft Annual Governance Statement was completed in accordance with the Code of Corporate Governance and based on the principles in the CIPFA /SOLACE Delivering Good Governance Framework. This statement explains how St Helens Borough Council complies with the Code and meets the requirements of the Accounts and Audit Regulations. The Draft Statement was presented to the Audit and Governance Committee for approval in July.

37 133 5

38 134 Performance Indicator Summary

Be a modern, efficient and effective Council - 2020/21

CS-01 Percentage of council tax collected Higher 95.5 95.2 94.8 95.7 9.5 18.0 26.8 -2.55% 4th Quartile Number of working days/shifts lost to sickness absence per CS-02 Lower 8.61 8.96 9.25 9.1 Y 0.72 1.31 1.86 24.39% 1st Quartile 1

r employee e

i Percentage of non-domestic rates due for the financial year T CS-03 Higher 96.7 96.2 95 97 6.9 22.2 30.9 -2.22% 4th Quartile which were received by the authority The percentage of customers satisfied with their first point CS-14a Higher N/A 79 78.7 85 Y N/A N/A 76.4 -10.12% N/A contact with the Council through it's Contact Centre

135

39 5 5

Overview of Priority Performance A total of 4 indicators are reported in Quarter 1. 3 of the 4 indicators are reported as not meeting target. 2 of the 4 measures are within a 5% tolerance of target. Of these 4 indicators, 3 are showing improvement on the previous reporting period in terms of variance from target, whilst 1 is showing a downturn in performance. The latest available picture of comparative performance for the Council Tax and Business Rates collection relates to verified nationally published data for the financial year 2019/20, with St. Helens’ performance in the 4th quartile for both indicators. The comparators used are the 16 authorities within the CIPFA nearest neighbour's family group. The latest published comparative data for sickness absence relates to 2017/18.

What is performing well  The number of working days lost to sickness absence was 1.86 days at the end of the first quarter. Based on the revised target, this is better than the 2.04 days over the same period in the previous year. Performance in the first quarter has being impacted by the Covid-19 pandemic and the target has been reviewed and amended to reflect this. The new target for the year has been set at 9.1 days, which still represents an improvement on 2019/20 outturn performance. Given the current circumstances, however, it is extremely difficult to accurately predict what will happen over the remaining course of the year and targets may need to be reviewed accordingly. Significant effort to monitor absence data continues to ensure that absences are effectively managed in accordance with the agreed procedures. Resources are now focusing on Covid-19 related absences. Support and reinforcement of the effective application of the Attendance Management policy, including appropriate escalation will continue to assist in the effective control of regular attendance. What requires improvement and what action is being taken  The Council Tax collection rate is performing 2.5% below target at the end of quarter 1. Collection has been affected by Covid-19, as all recovery and enforcement activity has been suspended since lockdown commenced. A total of £1.46 million of Council Tax discretionary payments were posted in June, with a single payment of £150 made to all working age claimants eligible for Council Tax Reduction. The service will look to re-engage with customers in July/August.  The Non-domestic Business Rate collection is performing 2.2% below target at the end of quarter 1. Again, collection has been severely impacted by Covid-19 with many businesses being forced to close and great uncertainty remaining about the future. A total of £21.2 million of additional Retail Relief has been applied, the bulk of which has come from the national Retail Hospitality and Leisure Relief Fund. This has had the effect of reducing the amount of debt to be collected. Again, all recovery activity has been suspended since the start of lockdown and the service is looking to re-engage with ratepayers in July/August.  The percentage of customers satisfied with their first point contact with the Council through its Contact Centre is currently performing below the required target. Our survey is responded to by a fairly small cohort of residents but does reflect a general feeling about how we respond to requests across the Council. The impression of first contact with the Council could be multiple and very dependent upon the issue the resident is raising and how important it is to them. If the Council is not able to give them the response that they require, or the service requested is not delivered to their satisfaction, this could reflect their overarching response to our service. Overall, the measure remains below target, but within the quarter we have experienced the standing down and then reinstatement of our recycling services with the onset of the pandemic. Call volumes were massively increased over the period and at times the

40 136 5

wait for an adviser was longer than we would like it to be due to the sheer volume of calls. Most respondents to the survey indicated that they had contacted us in relation to recycling or waste services, and their response to the survey could reflect the situation with the service during the first months of the pandemic. There is an ongoing challenge to improve customer satisfaction through the One Resident strand of the One Council modernisation programme. The delivery of the new CRM system will assist in the provision of better intelligence to improve customer service and relations.

41 137 This page is intentionally left blank 6 Cabinet

23rd September 2020

Report Title: One Council Modernisation/LGA Update

Cabinet Portfolio Corporate Services, Estates and Communications

Cabinet Member Councillor Kate Groucutt

Exempt Report No

Reason for Exemption N/A

Key Decision No

Public Notice issued N/A

Wards Affected All

Rob Huntington Assistant Chief Executive Report of [email protected] 07850 436198

Rob Huntington Contact Officer Assistant Chief Executive [email protected]

1 139 6

Ensure children and young people have a positive start in life X

Borough Promote good health, independence and care across our communities X priorities Please mark X Create safe and strong communities for our residents X for any priority supported by Support a strong, diverse and well-connected local economy X this report

Create a green, thriving and vibrant place to be proud of X

Be a modern, efficient and effective Council X

1. Summary

This report provides an update on the delivery of the One Council Programme, which incorporates the actions and recommendations from the LGA Peer Review and Culture Review carried out in early 2019

2. Recommendations for Decision

Cabinet is recommended to:

i) note progress to date

ii) to note that a more robust programme management approach is being developed to drive forward improvements in line with Reset and Recovery ambitions.

iii) note that as part of the above, key measures of success and performance improvement, supported by an evidence base, will be identified (answering the ‘so what’ question)

iv) Agree the governance arrangements

3. Introduction and context

3.1 An LGA Peer Challenge was carried out in early 2019, which highlighted that the Council had identified a need to change and modernise to meet future challenges but that it faced some significant issues. The LGA Peer Challenge made several recommendations in its report to which the Council developed an action plan including consideration of wider issues of modernisation that the Council had identified.

3.2 Progress has been variable to date due to an absence of effective programme management and governance which is now being addressed, the recommendations of which are contained in this report at paragraph 8.0. In addition, it is now timely to integrate the ambitions outlined in the One Council Programme with the council’s Reset and Recovery programme of work as a result

2 140 6 of the COVID-19 pandemic. To support this, additional peer support has been agreed with the LGA and will take place on the 28th September in an agreed Recovery and Renewal Panel. This panel session provides an opportunity for the Leader, Cabinet Member - Corporate Services, Estates & Communication, Chief Executive and the Assistant Chief Executive to come together, virtually, with peers to:

 Reflect on what the Council has achieved and learnt in responding to the COVID-19 pandemic.  Discuss with peers the challenges and opportunities COVID-19 has presented for the Council and local area.  Consider the steps the Council wishes to take towards recovery/renewal.

The session will help to identify a series of actions the Council may wish to take as well as identifying further support and good practice from across the sector. The sessions will be co-facilitated by;

 Cllr Sir Stephen Houghton (Leader – Barnsley Council)  Sarah Norman (Chief Executive – Barnsley Council)  Claire Hogan (LGA Principal Adviser) and Dan Archer (LGA Programme Manager).

The LGA key recommendations were: -

 Ensure that improving Children’s Services remains a clear corporate priority

 Enhance senior capacity at Assistant Chief Executive (ACE) level to support the change programme and improve co-ordination of political and managerial decision making

 The Chief Executive should work with other senior officers to develop a more distributed leadership model which empowers Strategic Directors and senior managers (within a framework of clear accountability) and decreases the current over reliance on the Chief Executive

 Provide a development programme for both members and officers to improve joint working, better understanding of their respective roles and reset the Councils culture to drive positive change and ensure it addresses the issue of poor member behaviour.

 Overhaul performance and financial reporting arrangements to provide clearer information to support better informed decision making and performance monitoring

 Ensure constructive performance challenge and robust performance management across the organisation

 Ensure the review of the Councils strategy for the refresh of the Council Plan engages with members, officers, partners and residents and leads to an expression of its vision and priorities for the Borough that is widely owned and clearly understood

 As part of the regeneration strategy, develop a programme to support adults in work to develop their skills to progress their careers and earnings, enabling them to take advantage of the full range of opportunities presented by jobs growth in St Helens

3 141 6  Develop a capital and investment funding strategy that takes account of the Councils priorities, including its regeneration and economic investment goals, and ensure this is linked to the Medium-Term Financial Strategy

 Develop and invest in a more pro-active external communications strategy – to promote good news, mitigate and manage bad news and reinforce the St Helens narrative – to be owned and delivered across all council services

 Develop and invest in a comprehensive approach to organisational development, including strengthening internal communications and engagement

 Develop clear priorities for modernisation followed by a roadmap for delivery with sufficient resources to ensure success. 3.3 The LGA also provide the following wider local government perspective on modernisation as part of their best practice guidance notes and advice to the sector:

Councils are responsible for delivering an estimated 80 per cent of public sector transactions in their areas, they also have a particular obligation to design their services in the most accessible, economic and ‘user-friendly’ way, and a vital role to work closely with other public, private and voluntary sector partners to ensure that local services are built around the citizen rather than the needs of service deliverers.

At a time when public services face fundamental challenges, technology and digital tools and approaches are central to achieving all of this. For councils and their partners, these tools can enable:

 a deeper understanding of local patterns of need and interaction with government, allowing resources to be managed, planned and directed to where they will have the greatest impact

 more effective management of demand – for example, enabling user self-service and supporting peer to-peer advice-giving and assistance via social media

 more reliable, speedy, and precise handling of routine, repetitive tasks – allowing costly and scarce professional expertise to be targeted at cases which need judgement or at new and unexpected situations

 faster access to, and sharing of, data between councils, customers, and partner organisations, avoiding the need to collect the same information many times over and saving time on research and information collation

 new ways of working that potentially reconcile the goals of providing a better quality of customer experience while cutting costs.

3.4 On 17 July 2019 a report entitled One Council – A Modernisation Programme for St Helens Council was considered and approved by Cabinet.

4 142 6 4.0 Characteristics of the One Council modernisation programme

The One Council modernisation programme was planned to be an organic programme to include:

 Developing a partnership of trust between Councillors and officers in delivering against the Corporate Plan as determined by the Administration and approved at Cabinet and Council  Continuous service improvement for the benefit of the resident and customer  All employees working together in collaboration to improve services and performance  Providing a culture that spans both the Council and its partnerships.  A focus on greater collaboration between officers and departments within the Council  A programme which helps develop confidence in officers to identify issues and to do everything they can to resolve those issues in a collaborative way with colleagues  Developing a way of thinking that motivates employees  Developing a way of behaving that meets the Councils values and behaviour expectations  Developing self-belief in officers both individually and as an organisation  Everyone thinking that it is their role to try and solve problems for the benefits of better services to residents and customers

5.0 One Council Work Streams

To help organise the many aspects of the modernisation programme it was recommended and approved by Cabinet that eight workstreams would be the focus of the Programme, these being:

One Resident - One Customer - looking after the resident or customer experience and ensuring that the culture of the Council is always considering service delivery and service development from the resident and customer perspective.

One Message - ensuring that both external and internal communications improve significantly. This is essential to ensure that the St Helens narrative is primarily shared with residents and our customers, but also includes businesses, visitors, governmental bodies, students or researchers.

One Budget - delivering the financial strategy set by the Council and looking at how officers manage the budget using digital technology.

One Digital - how to make best use of ICT and digital technology including artificial intelligence. It is also about ensuring that products are fit for purpose, and the renewal of the Council’s website and intranet as well as a refresh programme for equipment when it comes to the end of its useful life.

One Space – focused on physical and land assets. It will also ensure digital data for the Council’s Asset Register, delivering Cabinet approved investment into assets that the Council has decided to keep and delivering managed disposal for those that the Council have declared as surplus, or for development.

One Practice – focused on governance. Ensuring that governance is modern, transparent and easily accessible for Councillors, officers, residents and customers.

One People - focused on organisational development and recognising the great work of employees. It looks at pay and reward strategies, terms and conditions and the HR policy 5 143 6 framework. In addition, transforming the culture of the organisation to support a modern effective 21st century organisation with an engaged workforce is integral to this workstream

One Outcome – focused on performance management and how performance management and performance data can be best used for decision making by both Councillors and officers

An updated roadmap of delivery against these workstreams is attached at Appendix A

6.0 Governance of the One Council modernisation programme

Effective governance and programme management is crucial, and it is timely that this is refreshed. Going forward the governance approach will be:

Cabinet - will be asked for approval where the spend is significant, the matter is politically sensitive, the matter is either a strategy document or a new or amended policy.

The Leader of the Council - will be the Accountable Cabinet Portfolio Holder and as such the sponsor of the One St Helens: One Council programme. The Leader will receive regular updates on the programme.

The Cabinet Portfolio holder for Corporate Services, Estates and Communications - will be the day to day Cabinet lead for the programme on behalf of the Leader of the Council. Most of the current programme work streams are within this portfolio.

Cabinet Portfolio Holders - will be asked to consider aspects of the programme that fall within their portfolio areas. Cabinet Portfolio Holders will be briefed on the programme at their regular one to ones with appropriate officers and at other meetings where Cabinet may meet collectively.

Scrutiny Commission - will receive One St Helens: One Council update presentations or reports on a quarterly basis.

Audit and Risk Committee - will receive relevant and appropriate updates as requested as part of their work programme.

The Chief Executive and Executive Directors - collectively will undertake the Senior Responsible Officer (SRO) role. Progress with the programme will be overseen by this group.

The Assistant Chief Executive - will be the Programme Director and will lead the programme day to day and be accountable for delivering against agreed timelines.

The One St Helens: One Council Programme Board - will be an officer Board chaired by the Assistant Chief Executive. A trade union representative will be invited to join the Board.

A Technical Design Authority (TDA) - will be established to develop, promote and monitor standards for ICT systems and information to help reduce preventable costs by removing duplication and encouraging the development of systems that are able to work together. The TDA will ensure that change initiatives consider and then agree a technical design as the change is being defined, established, and approved and that the technical design is achievable and fit for purpose for the organisation.

Project Boards - for larger projects, a small project board of officers will be established which will report into the One St Helens: One Council Board. 6 144 6

Project Managers - for larger projects a project manager will be appointed to lead on its delivery and to work with the appropriate Project Board.

Senior Managers and other officers - for smaller projects a senior manager or other appropriate employee will lead and report into the appropriate project board or One St Helens: One Council Board as appropriate.

Communications - throughout the programme internal communications will be vital.

7.0 Conclusions

7.1 Progress has been variable to date due to an absence of effective programme management and governance. In addition, it is now timely to integrate the ambitions outlined in the One Council Programme with the Reset and Recovery programme of work. The recommendations in the report and the suggested refresh of governance arrangements will support a more programme led approach to delivery.

8.0 Implications

8.1 Financial Implications

Several strategies have been identified that will seek funding e.g. the Asset Management Strategy. Additional staffing costs for running the programme to address some of the deficiencies in the Council will need to be considered. Wherever possible the investment into the One Council programme will be from within existing resources or the re-direction of existing resources.

8.2 Legal Implications

All Legal implications will be considered as part of the programme management arrangements.

8.3 Staffing/HR Implications

Senior Management capacity has already been strengthened to support delivery of the Borough priorities. Further changes within budgets may be needed to ensure the Council further realigns its officer capacity. The trade unions will be briefed and consulted on an ongoing basis. When the officer board is established the trade unions will be invited to join as full participants.

8.4 Impact on our customers/residents

The One Council modernisation programme will lead to greater efficiency and better customer service. This will benefit St Helens as a place, its residents, customers, businesses and visitors who interact with the Council.

The programme creates culture change within the Council, and this will benefit both the Council and its integration and partnership agendas.

7 145 6 8.5 Community Impact Assessment

A full community impact assessment will be completed as a key element of the programme management arrangements.

8.6 Asset / Property Implications

The report to Cabinet in July 2019 recommended that a new Asset Management Strategy be developed. The strategy is now in development and will outline the potential quantum of spend on buildings and disposal or acquisition options to deliver Council services and facilitate the regeneration of the Borough. Cabinet will be asked to determine the level of investment to be associated with the Asset Management Strategy.

8.7 Environmental Implications

The One Council programme deals mainly with the internal working environment of the Council rather than the external environment of St Helens borough. However, the Asset Management Strategy to be presented to Cabinet in the next twelve months, will have contain an approach to deliver the carbon reduction targets of the Borough.

8.8 Policy Framework Implications

Further Policy development will take place to support workstream delivery.

8.9 Risks

A full assessment of risks will be completed as part of the programme management arrangements.

9.0 Background papers

 Cabinet report 17 July 2019 - One Council - Modernisation Programme  Overview & Scrutiny Commission Report – 30th September 2019  Overview & Scrutiny Briefing Note – 10th February 2020

10 Appendices Appendix 1 – Programme Roadmap

8 146 CHILDREN’S IMPROVEMENT AND RECOVERY CUSTOMERS

GROWTH 147 ONE ST AND ECONOMIC

HELENS RECOVERY

INTEGRATED CARE IMPROVEMENT AND RECOVERY 6 6 One Council Programme

One Council One Council Planning Dedicated further sessions Modernisation Sessions with for People and Place Programme approved by workstream leads began Directorates to take place Cabinet in July 2019 in November. in January 2020.

2019 2020

148 July August September October November December January February

Progress report taken One Council Plan on a to Overview and Page’ overview workplan Scrutiny Commission in completed and February 2020 communicated in November.

Alignment currently taking place against reset and recovery • New Customer Services Strategy • New Customer Standards • Enhanced Customer Experience; • New website & Customer Relationship Management One Resident System • Artificial Intelligence & Chatbots • Improved Telephony Service • Improved Contact Centre Reception Self-service • Digitalisation of Environmental Services

• One Front Door x x Cabinet Approval – Draft Customer Service integrated CRM, web, Standards Policy 20.8.2019 online forms, Customer Portal and intranet platform. 2019 2020

July August September October November December January February 149

GOSS Interactive were The official contract was CRM, Web, Portal and New Customer Services officially awarded the signed and returned intranet project kick off Strategy sign off including contract 02.03.2020. 19.05.2020. meeting took place Customer Service Standards 03.07.2020.

2020 AI and Chatbot development

March April May June July August September October

COVID-19 Pandemic and St Helens Public Health Emergency and Response

Reset and Recovery programme of work 6 • Updated IT Strategy 6 • Mobile Technologies • Better Digital Communications with Partners & Public • Outlook Mail One Digital • Public Building Wi-Fi • Office 365/SharePoint • Unified Communications (Telephony) • Improved Digital Training • IT Business Partnership

Final Draft ICT Strategy Cabinet approval - 3 year produced x rolling programme for IT kit replacement

2019 2020

150 July August September October November December January February

Microsoft 365 rollout Surface Pro rollout Revised ICT Strategy sign off including complete including ICT roadmap and Outlook/Sharepoint key deliverables The replacement for the Nortel telephony system complete

2020 AI and Chatbot development

March April May June July August September October

COVID-19 Pandemic and St Helens Public Health Emergency and Response

Reset and Recovery programme of work • Updated HR & Organisation Development Strategy • Employee Survey • Workplace Mental Wellbeing Strategy & Action Plan • Employee Reward & Recognition Scheme One People • Modernisation of HR systems • Enhanced Employment Offer & Induction Process

Employee Survey - 1,117 returns providing 2,598 Health & Wellbeing comments and Group (inaugural mtg) suggestions.

2019 2020

July August September October November December January February 151

Health & Wellbeing Modernisation of HR Development and sign off Group meets Systems commences • HR Strategy • OD Strategy Organisational Design & • Agile Working Policy Development capability F/W development commences The majority of the Council workforce is working remotely/agile 2020

March April May June July August September October

COVID-19 Pandemic and St Helens Public Health Emergency and Response

Reset and Recovery programme of work 6 • New Communications Strategy 6 • Corporate & Place Branding • New Intranet • Embed Vision, Values, Beliefs & Behaviours One Message • Employee Engagement Events

• Community Engagement Plan x

2019 2020

152 July August September October November December January February

New Corporate Branding agreed Social Media Strategy - Communications Strategy CLT sign off Draft Community Engagement Community Wider Place Strategy sign off Engagement branding agreed 2020 Strategy

March April May June July August September October

COVID-19 Pandemic and St Helens Public Health Emergency and Response

Reset and Recovery programme of work • Strategic Asset Management Plan • Rationalisation of Council Office Buildings • Expansion of Agile Workspace & Collaborative Areas • Digital Screens & Commercialisation One Place • Improved Signage in Buildings • Earlestown Town Hall & GamblePublic Consultation

Draft Strategic Asset Management Plan for staff

2019 2020

July August September October November December January February 153

ETH and Gamble consultation results – Policy Cabinet Accommodation and Agile – Policy Cabinet 2020

March April May June July August September October

COVID-19 Pandemic and St Helens Public Health Emergency and Response

Reset and Recovery programme of work 6 6 Future Ways of Working/Workplace

Agree Strategic Ways of Working Staff Intent – Policy Communication and Engagement Est. start of refit of Atlas House Cabinet commences 07.12.2020 12.08.2020

Phased return of office-based staff – Trade Union Consultation 30.09.2020 -26.03.2021 2021 2020 17.08-17.09

154 July August September October November December January February

Phase 1 – Accommodation Rationalisation

All office-based staff to have returned/working hybrid 2021 26.03.2020

March April May June July August September October

Phase 1 Accommodation Rationalisation (cont) Phase 2 – Evaluation and Review • Medium Term Financial Strategy • Capital, Borrowing & Investment Funding Strategy • Explore Commercialisation & Trading Models • New Financial Reporting Format One Budget • Balanced Budget 20/21 • Updated Financial Instructions & Procedures

• Finance Business Partnership x

2019 2020

July August September October November December January February 155

Medium Term Financial Emergency Budget Strategy

2020

March April May June July August September October

COVID-19 Pandemic and St Helens Public Health Emergency and Response

Reset and Recovery programme of work 6 • Improved Performance Management Culture 6 • Improve Data Management & Analysis • Develop ‘Health of the Organisation’ Management Information One Outcome • Implement Dashboard & Reporting Tool • Collaborative Approach to Council-wide Service Improvements

Performance Scrutiny arrangements reviewed

Revised quarterly performance and financial reports presented to Cabinet over the course of 2019/20 following engagement with LGA, Members and Senior Officers. Revisions to performance reporting and an assurance approach undertaken in Children’s Services via Improvement Board. 2019 2020

156 July August September October November December January February

Corporate Health Performance Reporting Dashboard created Refresh - alignment to Borough Priorities and Borough Risks Requirement to review reporting format along with current range of performance measures and targets linked to the objectives of the revised Council Plan and reset Borough Complaints Policy 2020 and recovery activity. agreed

March April May June July August September October

COVID-19 Pandemic and St Helens Public Health Emergency and Response

Reset and Recovery programme of work New Senior Management Structure & Political Leadership

CX recruitment and ACX & ED Place Scrutiny training and Weekly ELT Meetings and Fortnightly Policy Cabinet appointment recruitment and awareness raising sessions monthly ELT/SLT meetings established appointment established delivered to Members and Scrutiny training and Scrutiny training and Officers awareness raising awareness raising sessions delivered to sessions delivered to Members and Officers Members and Officers 2019

July August September October November December January February 157

LGA Cabinet/ELT Workshop 2020

CX in post ED Place in ACX in post • Member/Officer Consultation on Cabinet – post Protocols Agreed Wider Organisational • Scrutiny Arrangements Organisational Reshaping reviewed Reshaping 2020

March April May June July August September October

COVID-19 Pandemic and St Helens Public Health Emergency and Response

Reset and Recovery programme of work 6 6 Council Plan/Borough Strategy

Two facilitated workshops LGA assisted session with took place in November Discussion paper on draft Draft Council Priorities Members to develop draft (repeated in early priorities went ELT in and Council Plan vision and priorities took December); one with the November. produced for place in July 2019. Senior Leadership Team and Consultation one with Labour Group to 2019 further shape priorities. 2020

158 July August September October November December January February

Draft Community Engagement Strategy produced Borough Strategy St Helens Policy Cabinet 11 Together launch Consultation – Borough June – Strategic Strategy St Helens Together Deficit discussion th th 2020 13 July – 4 September

March April May June July August September October

COVID-19 Pandemic and St Helens Public Health Emergency and Response

Reset and Recovery programme of work 7

Cabinet

24 September 2020

Replacement of the Council’s Human Resources Report Title: and Payroll Systems

Cabinet Member - Corporate Services, Estates & Cabinet Portfolio Communication

Cabinet Member Councillor Kate Groucutt

Exempt Report No

Reason for Exemption N/A

Key Decision No

Public Notice issued N/A

Wards Affected All

Cath Fogarty Executive Director Corporate Services Report of [email protected] 01744 673201

Cath Fogarty Executive Director Corporate Services Contact Officer [email protected] 01744 673201

159 7

Borough Ensure children and young people have a positive start in life priorities Please mark X Promote good health, independence and care across our communities for any priority supported by this report Create safe and strong communities for our residents

NB Use Section 4 - Support a strong, diverse and well-connected local economy Background Information to explain how Create a green, thriving and vibrant place to be proud of each selected priority is supported Be a modern, efficient and effective Council X

1. Summary

This report seeks approval to source a replacement for the current in-house HR System. In addition, the report seeks approval to extend the contract of the Council’s Payroll System. Finally, the report provides indicative costs and seeks approval for relevant year 1 & 2 funding from the Transformation Reserve.

2. Recommendations for Decision

Cabinet is recommended to:

i) Approve the sourcing of a replacement for the current in-house Human Resources System and the extension of the existing contract in respect of the Payroll System in line with the One Council Modernisation Programme.

ii) Approve the funding allocation.

iii) Agree that once a preferred supplier for the Human Resources System is identified, a further Cabinet report will be brought later in the year for approval to award the contract.

3. Purpose of this Report

3.1 The One Council – One People Strand identifies the need for a replacement HR System.

3.2 Advances in technology have driven expectations of an agile, digital workplace focused on employee engagement and employee experience. Equally there is a need for the organisation to develop people analytics and a system is required which can support this.

3.3 HR digital transformation would support organisational modernisation emanating from both the One Council programme and more recently the Covid-19 Reset & Recovery programme.

160 7 3.4 The Payroll System is procured via Zellis and the contract is due to expire on 31 March 2021. This is a vital system and regardless of any additional HR System procurement, this contract will need to be extended from 01 April 2021. The current Payroll contract value is circa £60K per annum. The extension of this contract would be both in terms of its length and the capabilities offered by the system. This will ensure that the Council will have a Payroll system in place to fulfil its obligations in respect of paying employees/workers, irrespective of any decision to purchase a replacement HR System.

3.5 The Zellis System remains a market leader as demonstrated by its wide client base including neighboring North West Councils. The Council is satisfied with the service its system provides. Investment in the system will allow us to increase the parameters of its use in line with the One Council Digital agenda. It will also prepare for the further integration needed with any replacement HR System.

4. Background /Reasons for the recommendations

4.1 The Payroll System is procured via Zellis and the contract is due to expire on 31 March 2021. It is vital that the Council has a Payroll system in place that can fulfil its contractual requirements to pay employees/workers and external clients, and to meet its statutory requirements in respect of the payment of tax, national insurance and pension contributions. The Zellis Payroll system provides this.

4.2 This is a vital system and regardless of any additional procurement, this contract will need to be extended from 01 April 2021. The system currently has limited interfacing with the existing in-house HR System and it is important that this interface can be maintained and expanded with any new HR System procured to ensure the most efficient use of resources available.

4.3 The current HR Systems are in-house products built on the Lotus Notes platform. Development started in 2001 and the system has been adapted over years to support service need. The current HR System is no longer fit for purpose and there has been a strategic decision to withdraw the Lotus Notes Platform and to move to Cloud-based systems.

4.4 The current HR systems are a set of functional databases but are labour intensive from the perspective of processing. They rely on significant manual intervention; digital flow is limited. Paper remains fundamental to many HR processes. Work was undertaken to develop replacement HR Systems in-house. Following discussion with Business I.T. it was identified given the complexities of system requirements that internal development was not feasible and the decision was taken that this should be abandoned. The above factors in conjunction with a wish to digitally transform the HR function has prompted consideration for new system development / procurement.

4.5 The HR System comprises of the following databases:

a) Employee information b) Establishment c) Absence d) Absence Reports e) Recruitment & Selection

4.6 The current HR system supports the functionality of a significant number of related Council systems. These are mapped and as part of any process to procure a new system consideration will be given in collaboration with IT and other services to the ability to continue

161 7 to support these systems / links or what practices would need to be amended ahead of implementation.

4.7 In addition the service has other in-house systems:

Jobs Online, the Councils advertisement and online application form system has recently been re-built. The system doesn’t currently have the ability to feed applicant information into the HR System.

Employee Relations Database, exists as a database however it is no longer fit for purpose and reporting is equally difficult in terms of reporting.

Appraisal System, is also an in-house system. Auto population of individual details and manager hierarchy are drawn from the current HR System.

Training System, is an in-house system which is not currently fit for purpose. It links to the HR System to extract employee and post related data. Its functionality in terms of maintaining training records is limited and requires manual intervention.

4.8 The Occupational Health Unit currently operate on a series of manual based systems, spreadsheets and paper records. Further consideration needs to be given to the investment in and procurement of an Occupational Health System. This would be subject to a separate report.

4.9 What is expected of HR has evolved. Modern, agile organisations require key information on a firm digital footing. This includes HR analytics, modern e-recruitment processes and employee on-boarding facilities. On-boarding processes flow from recruitment decisions and maintain communication with prospective employees via a digital platform, which allows them to engage in pre-employment processes and begin induction prior to joining the organisation.

4.10 The HR function must align itself to business need and be at the forefront of change as the Council embraces digital and organisational transformation.

4.11 HR systems must be automated, easily accessible, interactive and aligned with business need matching employee experiences with technology outside of work. A new system would not only provide increased access to managers, but also allow access to HR information and processes to employees. Access to a cloud-based system would be via a web-based platform accessible both from Council and personal mobile technology.

4.12 An improved integrated HR & Payroll system will support automation of processes and the accessibility of information for both managers and employees on a digital platform.

4.13 The organisation hierarchy built into the system will simplify the management of the security of access to and information held within. It will also support the automation of electronic authorisation processes and automatic production of organisation charts (family trees).

4.14 Systems would be accessible via mobile phones with the self-service options allowing both managers and employees to access and amend information.

4.15 An integrated system would allow recruitment information to feed employee data directly from electronic application forms into the HR system and Payroll System, minimising keystrokes and the potential for error.

162 7 4.16 Digital Onboarding processes would provide a secure space which allows a manager to track progress of a new recruit ahead of them starting. For the new employee this allows online access to read and update key information ahead of the actual start date and induction process.

4.17 An integrated system would allow employees to produce and submit timesheets electronically via either Council or personal mobile technology for authorisation by the manager before being loaded into payroll for HR checking. Parameter setting for different groups of staff and their relevant conditions of service would provide online options that are role specific, minimising the potential for error. Information input by the employee, once authorised and checked, would upload directly into the payroll system, again minimising keystrokes required.

4.18 Manager dashboards and access to reports will provide key information to be available constantly for managers relating to their direct and in direct reports. The One Council – One Outcome recognises the need for people data analysis to turn data into management information showing trends, projections and scenario planning to aid decision making.

4.19 Procurement rules and guidance will be followed in relation to the selection and award to a supplier. Detail of the process of selection will be provided in the report seeking award.

5. Community Impact Assessment

The Community Impact Assessment identified the following key implications

5.1 The One Council – One People Strand identifies the need for a replacement HR System. This is to help ensure that the HR Service can continue to support the priority for us to be a modern, efficient and effective Council

6 Consideration of Alternatives

6.1 In conjunction with IT colleagues and linked to a wider consideration of IT systems across the Council, soft market testing was completed in 2019 focusing on the Zellis HR System, UBW HR system and the Microsoft Dynamics HR. This soft market testing demonstrated the potential benefits that could realised by the Council through the purchase of an improved and integrated HR System.

7 Conclusions

7.1 The extension of the Payroll contract from 01 April 2020 is required to ensure that the Council maintains a system in place to fulfil its obligations in respect of paying employees/workers. The Zellis System remains a market leader and the Council is satisfied with the service its system provides. Investment in the system will allow us to increase the parameters of its use in line with the One Council Digital agenda. It will also prepare for the further integration needed with any replacement HR System.

7.2 The One Council – One People Strand identifies the need for a replacement HR System. The current HR System is no longer fit for purpose and there has been a strategic decision to withdraw the Lotus Notes Platform and move to Cloud. These factors in conjunction with a wish to digitally transform the HR function has prompted consideration for new HR system procurement

163 7 8. Implications

8.1 Legal Implications - What are the legal implications? Has the relevant Legal Officer confirmed that the recommendations within this report are lawful and comply with the Council’s Constitution?

8.1.1 None. Legal Officers have been consulted on the recommendations within the report.

8.2 Community Impact Assessment (CIA) Implications

What are the implications for the following areas identified from the CIA?

8.2.1 Social Value - How does the proposal support employing local people, spending in the local economy, and local procurement?

8.2.1.1 Given the complex nature of the system required the soft-market testing has indicated that there are no potential local suppliers. The Council will, however, continue to employ many local people whose pay and employment will be managed via the system procured.

8.2.2 Sustainability and Environment - How does the proposal impact on sustainability and the environment?

8.2.2.1 An improved integrated HR & Payroll system will support automation of processes and the accessibility of information for both managers and employees on a digital platform, replacing previous manual and paper-based systems and processes.

8.2.3 Health and Wellbeing - How does the proposal support and promote public health and wellbeing?

8.2.3.1 The health and welling strategies adopted by the Council for its workforce will be supported using information available from the system.

8.2.4 Equality and Human Rights – What are the Equality and Human Rights implications? If there is an adverse impact what mitigation has been put in place?

8.2.4.1 The systems being replaced holds the equality information about the workforce and are vital in terms of the on-going monitoring required.

8.3 Customers and Resident - What are the implications for our customers/residents?

8.3.1 Soft Market testing has been undertaken jointly by HR and Business I.T. Procurement have been consulted with regard to developments and due process. Going forward, HR, Business I.T. and Procurement will work together to identify the preferred supplier.

8.3.2 Managers and employees will benefit from increased access to HR information and processes via Council or personal mobile devices. Managers will further benefit from data dashboards enabling easy access to key information. Residents and prospective employees will benefit from an integrated recruitment and on-boarding process prior to joining the Council as an employee.

8.4 Asset and Property - What are the issues? Does the report propose and reduction, addition or change to the council’s asset base or its occupation?

164 7 8.4.1 HR information would be accessible via existing Council hardware and personal mobile technology.

8.5 Staffing and Human Resource - What are the workforce implications? Have Senior HR Officers been consulted?

8.5.1 There will be project management resources required throughout the project. Staffing implications will be further considered as outlined in 8.7.5, once the award is made and a timeline for implementation is agreed. Savings will be identified as a result of efficiencies both within Corporate Services and across the Council arising from the automation of current manual processes.

8.6 Risks - What are the issues? How are we mitigating them?

8.6.1 Procurement rules and guidance will be followed. The One Council People Strand identifies the need for a replacement HR System to enable and support digital transformation of the Council. Failure to procure would impact on the ability to deliver this strategy. The report also approves the extension of the Payroll System, failure to do so would impact on the Councils statutory obligations relating to pay.

8.7 Finance - What are the financial implications – Revenue and Capital? VAT and Insurance? Contract and Procurement? Have the relevant Finance and /or Procurement Officers confirmed that any expenditure referred to within this report is consistent with the Council’s budget?

8.7.1 The additional one-off cost of the Payroll improvements are approximately £80K over 2 Phases, to be completed in 2020. The circa £60K per annum ongoing annual costs for the Payroll System Software are already contained within existing budgets. The improvements proposed to the system are unlikely to result in a reduction of the annual cost.

8.7.2 The implementation of a new HR System will require significant investment in terms of both officer time and finances. The HR System is one of the key and fundamental Council systems, it links to a significant number of other Council systems and processes. The complexity of the transition and the automation of several processes brings potential associated risks. This determines that a sensible timescale and phased approach to full implementation is required. Given the size and nature of the HR systems that are being replaced it is anticipated that implementation of the replacement will need to be phased and scheduled over a 2-year period.

8.7.3 The Payroll improvement mentioned above and the Year 1 & 2 HR Systems costs, detailed below, will be funded from the Transformation Reserve.

8.7.4 From the soft-market testing indicative HR System costs are estimated to be approximately £250K in year 1 and £200K in year 2. The annual costs of the software are in the region of £100k pa, with one off project management and start-up costs of £150k in year 1 and £100K in year 2.

8.7.5 Ongoing annual costs will be found from reductions in staffing posts plus additional non- staffing savings which will be determined over time as operational efficiencies are identified across the Council, as generated by the new system, and by no later than the end of year 2. In addition, funding allocated for the costs and maintenance of the existing systems being replaced will be utilised. 165 7

8.7.6 Funding will be considered as part of a wider programme of modernisation and funding options including Transformation Reserve or capitalisation will be considered, in addition to existing budgets for the Payroll System.

8.8 Policy Framework Implications Are the recommendations within this report in line with existing council policies? If not, how is this to be addressed?

8.8.1 None

9. Background papers List the documents rather than attach

9.1 None

10. Appendices List and attach (not embed)

10.1 None

166 8

CABINET

23 September 2020

Test and Trace Model for St Helens Borough Report Title: Council including the Cheshire and Merseyside Hub

Cabinet Portfolio Cabinet Member - Public Health, Leisure & Libraries

Cabinet Member Councillor Anthony Burns

Exempt Report? No

Reason for Exemption Open

Key Decision No

Public Notice Issued N/A

Wards Affected All Wards

Executive Director - People's Services

Professor Sarah O’Brien Report of SarahO’[email protected]

01744 676309

Sue Forster Contact Officer Director of Public Health 167 8

[email protected]

Tel: 01744 673232

Borough Ensure children and young people have a positive start in life priorities Please mark X Promote good health, independence and care across our communities x for any priority supported by this report Create safe and strong communities for our residents x

NB Use Section 4 - Support a strong, diverse and well-connected local economy x Background Information to explain how Create a green, thriving and vibrant place to be proud of each selected priority is supported Be a modern, efficient and effective Council

1. Summary

1.1 The aim of this report is to describe the model for outbreak management for St Helens Borough Council, which includes the arrangements within the council and the development of a Cheshire and Mersey Hub. This report pulls together all the decisions that have been made so far, into one document to ensure transparency of the overarching model. Decisions have been made at speed to ensure that St Helens had a team in place to manage outbreaks locally.

2. Recommendations for Decision

Cabinet is recommended to:

i) To note the decisions already made

ii) To approve the overall model of delivery

3. Purpose of this Report

3.1 On the 22nd May 2020 Directors of Public Health received a national briefing and presentation from Tom Riordan the Chief Executive of Leeds City Council who had been seconded to support government and the Department of Health and Social Care on Test, Trace, Contain and Empower arrangements.

3.2 Within the presentation Local Authorities were given clear guidance that their future role in managing the spread of COVID-19 would be to manage local outbreaks. Local government was considered best placed to understand the implications for their communities and be able to work alongside partners and residents to manage the spread of COVID-19.

168

8 3.3 Local Authorities were also given additional funding to support the setting up of local systems to support outbreak management. Through the public health grant conditions St Helens Borough Council has received an additional £1,328,091. This money is to support the council to have a system in place to manage outbreak for the next 18 months to 2 years. Funding allocations and grant conditions are available at https://www.gov.uk/government/publications/local-authority-test-and-trace-service-support- grant/local-authority-test-and-trace-service-support-grant-allocations

3.4 St Helens Borough Council has approved their local Outbreak Management Governance processes and plans through emergency decision processes and this has subsequently been approved by the People’s Board. This report however sets out the overarching structures that have been put in place to ensure that St Helens has the resources and skills to manage outbreaks effectively. Some decisions have been made through either delegation Delegated Executive Decisions and Administrative Decisions. In order to ensure complete transparency, the overarching model and associated costs are described in this paper.

4. Background /Reasons for the recommendations

4.1 It was nationally mandated for Upper Tier Local Authorities to have Outbreak Management Plans and governance in place that cover 7 specific areas: i. Care homes and schools ii. High risk places and communities iii. Local testing capacity iv. Contact tracing in complex settings v. Data integration vi. Vulnerable People vii. Local Boards

4.2 St Helens process and governance are described are available on St Helens Borough Council website https://www.sthelens.gov.uk/omp

4.3 The Outbreak Management Plan has been developed using a framework that was developed by CHAMPs (Cheshire and Merseyside) public health network.

4.4 However, whilst the plans describe how we will manage outbreaks, additional resources and skills are needed to ensure we have a workforce of an appropriate size and skill set to support this new and additional requirement. This workforce will need to be in place for 18 months to 2 years. St Helens Borough Council, alongside the other local authorities in Cheshire and Merseyside, have decided on a mixed model to support outbreak management. This would consist of some contact tracing happening within a Cheshire and Merseyside Hub with a skilled workforce in St Helens Borough Council to compliment this capacity at a local level. Figure 1 describes the different levels of operation.

4.5 The Cheshire and Merseyside Test and Trace Hub will support localised outbreaks in all areas of Cheshire and Mersey. COVID-19 is an infectious disease that does not respect organisational boundaries.

4.6 The Hub is an emergency response and will scale up existing arrangements at pace with PHE. It will not replace local work but bolster local resilience, this will be particularly important during the winter period or should a second wave occur.

169 8

4.7 A team will be in place, one for Cheshire and one for Merseyside within the Hub model, enabling greater local insight but also maximising shared functions. Mutual aid will ensure no one local authority becomes overwhelmed should multiple outbreaks occur. The shared service will undertake test and trace for all people that are referred from the national Test and Trace Service. The service will escalate to local areas outbreaks where further consequence management is required at a local level. This service is funded by contributions from all local authorities across Cheshire and Merseyside. The business case for this was approved by Local Authority Chief Executives. In order that this service operates effectively a case management system has also been purchased which will mean the service can manage individual cases but also link cases to outbreaks and allow all staff to be able to update the system with actions. This system MS Dynamics has also been purchased across Greater Manchester, Lancashire and the whole of Wales.

Figure 1: Cheshire and Merseyside Test and Trace Service

4.8 However, whilst the above service will manage a lot of the day to day complex cases, in order that we keep our rates at a manageable level, we need additional support and resource to tackle prevention and the consequence management of cases. Within St Helens Borough Council we have developed a team to support this which includes Environmental Health Officers supporting workplaces and wider events and a team manager for our local contact tracing which will support more complex cases and consequences. Additional support has also been established for contact cares who are our single point of access. Figure 2 shows the makeup of the team and the management arrangements.

170 8 4.9 In addition to the direct St Helens Test and Trace Service Public Health have relied heavily on the Infection, Prevention, Protection and Control Service specifically to support care homes. This service is commissioned by Public Health and is hosted by St Helens CCG and covers infection prevention, protection and control for the 3 boroughs of Warrington, Halton and St Helens. Throughout the pandemic this service has been working almost exclusively on Care Home Outbreaks with some support to schools. However, the resources to continue throughout the winter supporting care homes and schools will be stretched to manage the current pandemic. Therefore, agreement was made with all three boroughs to increase the infection control nurse capacity in the interim. The decision has been made through delegated executive decision.

Figure 2: St Helens Council Test and Trace Service

Regulatory Services - Team Manager – Consultant Public Health Environmental Health Contact Cares Team

Assistant Team Manager Scp33-35

Senior Environmental Health Officer x 2 Contact Trace Officer x 3 Scp29-32 (admin decision) Scp23-25

Scp33-35 £35,935 - £37,849 Contact Cares Adviser x 1 Scp29-32 £32,029 - £34,788 Scp12-17 (admin decision) Scp23-25 £26,999 – £28,785 Scp12-17 £21,589 - £23,836 Scp7-11 £19,554 - £21,166 (excluding weekend working allowances)

4.10 A breakdown of costs associated with the services and staffing is described in table 1. Currently all decisions have been made for 12 months, this will be reviewed after 6 months as we understand the future implications for our population on the management of COVID-19.

171 8

Table 1: Current financial implications for test and trace and outbreak management

Description Cost Running (12 months) Total Cheshire and Mersey Hub £74,537 £74,537 Cheshire and Mersey MS Dynamics £11,742 £86,279 St Helens Test and Trace Staffing cost (incl weekend £200,982 £287,261 allowance) St Helens Test and Trace service equipment and additional £20,000 £307,261 licenses for MS Dynamics Infection Prevention, Protection and Control Team (DED 0134 £77,121.10 £384,382.1 2019/20)

4.11 The spend described in Table 1 reflects 12-month costs for staff with the systems covered for 2 years. This will need to be reviewed in 6 months as we understand more about COVID-19 and the spread of the infection and what resources we may need in the future. The remaining of the grant not spent in 2020/21 will need to be transferred to 2021/22 as it is unlikely that any additional funding will be forthcoming. It is also likely that the staffing resource will be required throughout 2021/22. Therefore, staffing costs may need to be extended for a further 6 to 12 months. Finance have been made aware of the requirements to carry forward slippage from this year to 2021/22, however, it is important that we manage this resource effectively with he changing nature of COVID-19 pandemic.

4.12 There will also be ongoing costs to manage outbreaks which may include publicity, engagement, support for people to isolate. Decisions relating to these funds will be made either through Administrative Decision or Delegated Executive Decision or Cabinet as appropriate

5. Community Impact Assessment

5.1 The Community Impact Assessment identified the following key implications

 Access to translation services including sign language - this has already been implemented for the St Helens service

 Safeguarding training - this will be implemented with all new starters

 Ensure that community groups and voluntary sector are involved in Outbreak Management to support community cohesion, specifically groups that maybe disadvantaged due to COVID 19. A Communications and engagement group has been set up to develop plans to engage locally with wider groups within St. Helens

5.2 The implementation of a local Outbreak Management Plan does entail interference with Human Rights Articles such as:  Article 5 - Right to Liberty and Security  Article 8 - Right to Respect for Private and Family Life, and  Article 11 - Freedom of Assembly and Association

The Human Rights Act does permit a public authority to interfere with these rights under certain justifiable conditions – these include the protection of health, and the prevention of the spreading of infectious diseases. However, to minimize the impact of using such powers the aim of the service and model is to initially172 prevent spread. 8 6. Consideration of Alternatives

6.1 The two alternatives to this model are:

 A service funded and operational at a Cheshire and Merseyside level only. However, evidence is showing us that as much intelligence on outbreaks is coming directly from our local communities to the current public health team. A Cheshire and Merseyside model would miss that vital element

 A service to be funded and operational at a St Helens level only. This model has been discounted as the Cheshire and Mersey model working together with the St Helens model brings a lot of experience from Consultants in Communicable Disease Control that can support the local service. The Cheshire and Mersey Model also supports intelligence on cross boundary issues within Cheshire and Merseyside. The cost of the Cheshire and Mersey model is shared across LA’s and as such is cost effective as the cost per authority is less than the cost of one whole time equivalent Consultant in Communicable Disease.

7. Conclusions

7.1 The paper brings all the current decisions around test and trace and outbreak management into one report for complete transparency around the spend of the additional Public Health Grant to support Outbreak Management.

8. Implications

8.1 Legal Implications

All decisions have gone through either administrative decision, delegated executive decision or Corporate Executive Group with appropriate legal and financial input.

8.2 Community Impact Assessment (CIA) Implications

8.2.1 Social Value

The model promotes local solution to Outbreak Management which ensures a closer link with community and community groups.

8.2.2 Sustainability and Environment

The proposal relies heavily on human resources who will operate generally in a hybrid working environment.

8.2.3 Health and Wellbeing

The overarching aim of the service is to prevent spread of COVID-19 and protect the health of the population.

8.2.4 Equality and Human Rights

All employment will consider equality. The service delivery model will manage risk of COVID- 19 based on evidence of risk therefore ensuring we address inequalities. Interpretation services have been commissioned.

8.3 Customers and Resident 173 The service will develop quality standards of operation. 8

8.4 Asset and Property

No issues identified.

8.5 Staffing and Human Resource

All decisions have been made with HR Input.

8.6 Risks

8.6.1 Having adequate resource and skills in place to protect our population from outbreaks linked to COVID-19

8.6.2 Communication between Cheshire and Mersey Hub and local activity

8.6.3 Information flows between Cheshire and Mersey Hub and local activity

8.7 Finance

The budget for the test and trace and outbreak management arrangements will come from the dedicated Public Health Grant. All decisions have involved the relevant finance officers.

8.8 Policy Framework Implications

The model will meet the requirements of the Outbreak Management Plan.

9. Background papers

N/A

10. Appendices

Appendix 1 – Update on Mobilising and Emergency Response Test and Trace Shadow Hub Appendix 2 – Case Management System

174 9 CABINET

23 September 2020

Report Title: Proposals to continue the Pause Programme in St Helens

Cabinet Portfolio Cabinet Member - Protecting Young People

Cabinet Member Councillor Nova Charlton

Exempt Report No

Reason for Exemption Open

Key Decision No

Public Notice issued N/A

Wards Affected All

Jim Leivers Director of Children’s Services Report of [email protected] 01744 671802

Jason Pickett Assistant Director, Community and School Support Services Contact Officer [email protected] 01744 671632

175 9

Borough Ensure children and young people have a positive start in life X priorities Please mark X Promote good health, independence and care across our communities for any priority supported by this report Create safe and strong communities for our residents

1. Summary

This report explains the Pause programme and the impact it has had in St Helens since it was launched as a pilot in 2017. The proposal is to continue to fund Pause for a period of 21 months through a combination of grant funding provided by the Pause charity and a contribution of match funding from the local authority.

2. Recommendations for Decision

Cabinet is recommended to:

i) To approve the continuation of the Pause programme for a period of 21 months (November 2020 to July 2022). ii) To approve the total cost of the programme (£508k) and confirm that this will be funded by a grant of £254k provided by the Pause charity, and by allocating £254k of existing Troubled Families monies.

3. Purpose of this Report

3.1 To provide Cabinet with an overview of the Pause programme, an update on service delivery, effectiveness and value for money.

3.2 To provide details of the proposal for the Department for Education, through Pause organisation, to provide 50% match funding for the delivery of Pause as part of developing a wider city region approach to service delivery.

4. Background /Reasons for the recommendations

4.1 Pause works with women who have experienced or are at risk of repeated pregnancies that result in children needing to be removed from their care. Pause aims to break this cycle by giving women the chance to pause, learn and aspire to take control of their lives. The purpose of Pause is to prevent the damaging consequences of countless more children being taken into care each year. The initial Pause pilot began in Hackney London, in 2013. There are now over 20 Pause Practices working across England, Scotland and Northern Ireland with plans to continue to expand by 2021. 176 9

The core programme lasts for up to 18 months per woman and aims to achieve the following outcomes:  For the women: a reduction in pregnancies, better engagement with services, improved stability, a more positive feeling of well-being and sense of self.  Budget savings: better engagement with the women, leads to reduced expenditure relating to social care interventions and helps to reduce costs of accommodating children.  The Pause hypothesis is that the benefits are not just immediate but that in the longer term there will be a reduction in repeat pregnancies leading to care proceedings, as a result of this group of women either choosing not to have more children, or being in a better position to parent and/or maintain contact with their existing children once they have stabilised their own lives.

4.2 Pause is a trauma informed programme which draws upon a range of evidence-based health, social work and psychological approaches. Each Pause Practice works intensively with up to 24 women over a period of 18 months. Pause offers a combination of therapeutic, practical and emotional support tailored around each woman’s needs. Each woman co-designs their own plan by working with their Practitioner to focus on and prioritise their own goals, which are then regularly reviewed and adapted. Whilst the model is not prescriptive, it does have a range of fidelity measures that are monitored through the Pause Monitoring and Evaluation Framework with performance reporting taking place on a quarterly basis overseen by a National Pause Practice Board. Pause has a strong track record and a growing evidence base (including an independent evaluation commissioned by the Department for Education) in engaging and providing individual support for women who have had traumatic experiences and complex needs. This often includes women with significant substance misuse, mental health difficulties and women who are victims of sexual violence.

The diagram below explains the key elements and examples of the approach

177 9 4.3 Pause St Helens is the first Pause Practice to be delivered in the Liverpool City Region. It is a partnership arrangement between St Helens Borough Council and the charity Pause, and started as an 18 month pilot in October 2017. The Authority subsequently extended delivery of the programme until October 2020 to support a second cohort of women.

4.4 Local need is high in relation to families who have experienced family court proceedings resulting in removals. An initial scoping exercise in 2017 identified a group of 56 potentially eligible women (213 children removed). Referrals have continued to come into the Practice from across the partnership and the service have received several self-referrals.

4.5 Pause St Helens has now actively worked with 41 women to date. There have been 108 children removed from this group of women, prior to becoming active with Pause. At the time of writing this report, there are 24 women currently on the programme and 14 women accessing post Pause support via a Next Steps offer.

4.6 Local outcome data gathered at the start, mid-point and end of the programme shows positive distance travelled in a number of areas over the first 2 years, including:

178 9

4.7 CORE-10 is a widely used clinical outcome measurement tool that is utilised with Pause women, throughout the programme, to measure change in their psychological well-being. It is a self assessment tool, but service users are supported by skilled practitioners to fully explore each area, before deciding on a score at the planning and review stages throughout the programme. The lower the score, the more satisfaction the women report in certain areas of their lives, eg recovery from loss, trauma, anxiety etc.

4.8 The economic impact was explored in the first external evaluation of Pause which identified that for every £1 spent a saving of £1.38 was made. Further work has done in the second evaluation which was commissioned by the DfE and is due for publication later in 2020. The economic modelling was undertaken by Ipsos Mori using the findings of a difference on difference study which showed clearly that having a Pause has an impact on rates of infant removal. This study found that the estimated benefit to cost ratios (savings per £1 spent) were significant at £4.50 over 4 years and £7.61 over 18 years. The second evaluation report is not published yet but Pause have agreed this information to be included within this report.

4.9 The current funding arrangement will come to an end in October 2020. The authority has received notification from Pause National that funding has been made available from the DfE to support further development and delivery of Pause across the Liverpool City Region. The funding available is £1.1 million for the whole of the Liverpool City Region and is to be used as 179 9 match funding to establish a regional approach to the delivery of Pause in the Northwest. Based on a 50% contribution from Pause, the Council would be required to identify total funding of £254k to deliver the full programme over the period November 2020 to July 2022. It is proposed that existing, currently uncommitted Troubled Families monies are used to meet the match funding requirement.

5. Community Impact Assessment

5.1 See 8.2.4 below.

6 Consideration of Alternatives

6.1 As above.

7 Conclusions

7.1 There are 498 children currently in the care of the Local Authority in St Helens. The aim of Pause is to prevent the damaging consequences of children being taken into care and the impact is measured by how many children go into care whilst their birth mothers are either working with Pause or have completed Pause within the past 3 years. The programme has been highly effective in engaging women previously been regarded as difficult to reach. It has worked intensively with over 40 women since its inception with only one reported pregnancy so far. Prior to engaging with Pause, this this cohort experienced 108 births resulting in the removal of children into care and the Pause pilot has therefore demonstrated its effectiveness in breaking the cycle of repeat pregnancies.

7.2 Based on an analysis of our first 2 years’ worth of data, it is estimated that 21 pregnancies will have been avoided by delivering the Pause programme in St Helens. This represents 21 births that would have highly likely resulted in removal and further trauma to children and families. The Pause National Team track the likely financial savings. They estimate the cost savings over 3 years to be approximately £2m. This programme represents an important invest to save model to reduce the number of children coming into the care of the Council.

8. Implications

8.1 Legal Implications

8.1.1 The Local Authority will be required to enter into an amended practice agreement with Pause (to be issued in due course). The current practice agreement is attached at Appendix 2, for information.

8.2 Community Impact Assessment (CIA) Implications

See 8.2.4 below.

8.2.1 Social Value

8.2.1.1 The service will work with service users on a range of activities designed to increase confidence and self -esteem, build skills and new networks which are key to successful employment

8.2.2 Sustainability and Environment

180 9 8.2.2.1 None.

8.2.3 Health and Wellbeing

8.2.3.1 Pause offers an intense programme of therapeutic, practical and behavioral support through an integrated model. Each woman has an individual programme designed around their needs looking at various elements of their system. This may include support from adult mental health and substance misuse services.

8.2.4 Equality and Human Rights

8.2.4.1 The programme addresses anti-poverty issues through its support around effective budgeting and access to appropriate benefits and local services to reduce levels of debt.

8.2.4.2 Maximizing the potential of women by supporting access to educational and employment opportunities and helping to reduce worklessness.

8.2.4.3 Encourages community integration through participation in a range of community groups and activities.

8.3 Customers and Residents

8.3.1 When family court proceedings end, there is a clear gap in the specialist support offer for women and their families who have had their children removed. Due to the complexities of their experiences, mothers who experience removal are more likely to come before the courts again, often quite quickly without having accessed the bespoke tailored support recommended and needed to be able to evidence change. Research by Lancaster University shows that over 11,000 women had more than one child removed between 2007 and 2014. One in four women who has a child removed through the family courts is likely to return to have another removed and that number increases to one in three if they are a teenage mother. Approximately 40% of women who experienced multiple removals of children from their care were Care Leavers themselves. 48% of these women entered the care system at an older age (10+) and half had experienced multiple placement moves. These women had been exposed to much higher levels of harm and adversity in childhood than what would be expected in the general population. On average, the women with whom we work have had between three and four children removed.

8.3.2 There are 498 children currently in the care of the Local Authority in St Helens. This evidences an ongoing need to develop and sustain innovative programmes of work with families to help break generational patterns of abuse and harm. The success rate of engagement with this group of women who have previously been regarded as difficult to reach, has been consistently measured at 85% or higher each quarter.

8.3.3 Based on an analysis of our first 2 years’ worth of data, it is estimated that 21 pregnancies will have been avoided by delivering the Pause programme in St Helens. That is 21 births that would have highly likely resulted in removal and further trauma to children and families. The Pause National Team provide each Practice with a costs benefits analysis tool to support each area to track the likely financial savings associated with birthing data and patterns of removals linked to the women on each programme. Cost avoidance calculations for St Helens as of July 2020 are:

181 9

8.4 Asset and Property

8.4.1 None.

8.5 Staffing and Human Resource

8.5.1 There are existing HR implications, the Pause Delivery Team consists of 5.00fte posts:

1 x Pause Practice Lead (Grade M; scp 36-38) 3 x Pause Practitioner (Grade K; scp 29-32) 1 x Pause Coordinator (Grade E; scp 7-11)

The Pause Practice Lead and two of the Pause Practitioners are seconded into these roles from other services within the Department. The other two Officers are on temporary contracts and it is proposed their contracts will be extended for the additional 21 months of the programme.

8.6 Risks

8.6.1 Should the programme discontinue, the cycle of repeat removal of children from a high risk group of women will continue to create poorer outcomes for families, contributing to additional cost and demand on statutory services.

8.7 Finance

8.7.1 The offer from Pause is to provide match funding of 50% to deliver an extended programme over a 21-month period, with the remainder of the cost of delivery to be funded by the Authority. The projected total annual cost is £290k per annum, and it is estimated that the cost of delivering a 21-month programme would therefore be £508k.

182 9 8.7.2 Based on a 50% contribution from Pause, the Authority would need to identify funding totaling £254k to deliver the full programme over the period November 2020 to July 2022. It is proposed that existing Troubled Families funding is used to meet the match funding requirement.

8.7.3 In the event that the final offer from Pause is less than a full 50% match for the cost of operating a 21-month programme, the Department will review all options to address the funding gap. This may include an additional contribution from the Troubled Families grant; reviewing the existing offer to deliver a reduced service over the same period; or reducing the length of the programme.

8.8 Policy Framework Implications

8.8.1 The Pause programme reflects the principles of good practice within the UK policy framework for health and social care. The effectiveness of the support provided is subject to evaluation and research at a local and national level.

9. Background papers

9.1 None.

10. Appendices

Appendix 1 – Current Pause Practice Agreement Appendix 2 – DfE Funding Confirmation

183 This page is intentionally left blank 9

DATED 15.05.19

(1) PAUSE CREATING SPACE FOR CHANGE

(2) ST HELENS COUNCIL

PAUSE PRACTICE AGREEMENT

6766788 v1 185 9

THIS AGREEMENT is made on 15.05.19

PARTIES

(1) PAUSE CREATING SPACE FOR CHANGE incorporated and registered in England with company number 09703298 and charity number 1170310, whose registered office is at Hackney Technology & Learning Centre, 4th Floor HLT, 1 Reading Lane, London, E8 1GQ (“Pause”); and

(2) ST HELENS COUNCIL whose principal place of business is at Town Hall, Victoria Square, St Helens, WA10 1HP (the “Local Delivery Organisation”);

each, together with their respective successors and assigns, a Party and together the Parties.

BACKGROUND

(A) Pause is a charitable organisation that works with women who have experienced, or are at risk of, repeat removals of children from their care.

(B) The Local Delivery Organisation is a UK local council that wishes to become part of the Pause Partnership, operate a Pause Practice and operate under the Pause Trade Marks.

(C) Pause and the Local Delivery Organisation agree to work together on the terms set out in this Agreement to implement the Pause Programme so that the Local Delivery Organisation may operate a Pause Practice in the Local Area.

(D) The Local Delivery Organisation will fund the operation of the Pause Practice, including the local delivery of the Pause Programme.

AGREED TERMS

1. INTERPRETATION

The following definitions and rules of interpretation apply in this Agreement:

1.1 Definitions

“Business Day” means a day other than a Saturday, Sunday or public holiday in England when banks in London are open for business

“Commencement Date” means 24 March 2019

“Confidential Information” means the terms of this Agreement and all information, however it is conveyed, that a reasonable person would consider to be of a confidential

186 6766788 v1 9

nature (whether or not such information is marked as confidential) belonging to either Party which relates to the business, affairs, developments, trade secrets, know-how, personnel or suppliers of that Party or its employees, officers, representatives, advisers or subcontractors, including Intellectual Property Rights, the Pause Framework, Pause Programme and any Personal Data

“Data Protection Legislation” means all laws relating to data protection and privacy which are from time to time applicable to Pause and the Local Delivery Organisation or any subsidiaries (or any part of their business), including (but not limited to): (i) the Data Protection Act 2018; (ii) the GDPR and all related national laws, regulations and secondary legislation; and (iii) the Privacy and Electronic Communications (EC Directive) Regulations 2003 (SI 2003/2426) and all other applicable national laws, regulations and secondary legislation implementing European Directive 2002/58/EC, in each case as amended, replaced or updated from time to time and together with any subordinate or related legislation made under any of the foregoing.

“Force Majeure Event” means any circumstance not within a Party’s reasonable control including, without limitation acts of God, flood, drought, earthquake or other natural disaster; epidemic or pandemic; terrorist attack, civil war, civil commotion or riots, war, threat of or preparation for war, armed conflict, imposition of sanctions, embargo, or breaking off of diplomatic relations; nuclear, chemical or biological contamination or sonic boom; any law or any action taken by a government or public authority; collapse of buildings, fire, explosion or accident; and any labour or trade dispute, strikes, industrial action or lockouts; interruption or failure of utility service

“Funding Memorandum” means the funding memorandum set out at Schedule 3 to this Agreement

“Insolvency Event” means the calling of any meeting of a party’s creditors; the appointment of any receiver, administrator, or administrative receiver over all or any part of its assets or undertaking; the suspension or cessation of its business; any threat to suspend or cease its business; the making of a winding-up order; the convening of a meeting to pass a winding-up resolution; or it entering into liquidation

“Intellectual Property Rights” means any patents, utility models, rights to inventions, copyright and neighbouring and related rights, moral rights, trade marks and service marks, business names and domain names, rights in get-up and trade dress, goodwill and the right to sue for passing off or unfair competition, rights in designs, rights in computer software, database rights, rights to use, and protect the confidentiality of, confidential information (including know-how and trade secrets) and all other intellectual property rights, in each case whether registered or unregistered and including all applications and rights to apply for and be granted, renewals or extensions of, and rights to claim priority from, such rights and all similar or equivalent rights or forms of protection which subsist or will subsist now or in the future in any part of the world

“Local Area” means all areas covered by St Helens Council. 2

187 6766788 v1 9

“Media Policy” means the policy set out at Schedule 6 to this Agreement

“Membership Fee” means the membership fee set out at Schedule 4 to this Agreement

“Month” means a calendar month

“Pause Framework” means the Pause Framework provided by Pause to the Local Delivery Organisation on or around the Commencement Date, as may be amended by Pause from time to time giving notice to the Local Delivery Organisation

“Pause Information Sharing Policy” means the information sharing policy set out at Schedule 5 to this Agreement

“Pause Materials” all documents, information, materials and systems, software or processes Pause makes available to the Local Delivery Organisation in connection with this Agreement, including the Pause Trade Marks, Pause Framework, computer programs, data, reports, methodologies and specifications and any other material or documentation

“Pause Monitoring, Evaluation and Learning Strategy” means the Pause Monitoring, Evaluation and Learning Strategy provided by Pause to the Local Delivery Organisation on or around the Commencement Date, as may be amended by Pause from time to time giving notice to the Local Delivery Organisation

“Pause National Practice Lead” means the individual chosen by Pause to support the Local Delivery Organisation in its implementation of the Pause Programme and operation as a Pause Practice

“Pause Partnership” means Pause and all Pause Practices

“Pause Programme” means the particular way in which Pause delivers and performs its services

“Pause Pledges” means the Pause Pledges set out at Schedule 2 to this Agreement

“Pause Practice” means the implementation by the Local Delivery Organisation of the Pause Programme in the Local Area

“Pause Practice Staff” means a member of Staff working as part of the Pause Practice

“Pause Quality Assurance System” has the meaning given in Schedule 5 to this Agreement

“Pause Trade Marks” means the trademarks listed in Schedule 1 to this Agreement which Pause owns and controls

188 6766788 v1 9

“Staff” means all persons employed by the Local Delivery Organisation together with the Local Delivery Organisation’s servants, agents, suppliers and subcontractors used in the performance of its obligations under this Agreement

“Term” means the period commencing on the Commencement Date and ending on 24 March 2022 or on termination of this Agreement in accordance with its terms, subject to any extension agreed pursuant to Clause 2.2

Termination Date: means the date of expiry or termination of this Agreement

"VAT" means value added tax chargeable under the Value Added Tax Act 1994

1.2 Interpretation

“Data Controller”, “Data Processor”, “Data Subject”, “Personal Data” and “Processing” shall bear the meanings given to those terms respectively in the Data Protection Legislation.

Unless the context otherwise requires, words in the singular shall include the plural and in the plural shall include the singular.

Unless the context otherwise requires, a reference to one gender shall include a reference to the other genders.

The words "include", "includes" and "including" are to be construed as if they were immediately followed by the words "without limitation".

A person includes a natural person, corporate or unincorporated body (whether or not having separate legal personality) and their successors and permitted assigns or transferees.

A reference to a statute or statutory provision is a reference to it as amended, extended or re-enacted from time to time and shall include all subordinate legislation made from time to time under that statute or statutory provision.

The Schedules form part of this Agreement and shall have effect as if set out in full in the body of this Agreement. Any reference to this agreement includes the Schedules.

A reference to any clause or sub-clause or schedule without further designation shall be construed as a reference to the clause or sub-clause or schedule to this Agreement so numbered.

Unless stated otherwise, a reference to a clause is a reference to the whole of that clause.

189 6766788 v1 9

2. TERM

2.1 This Agreement shall take effect on the Commencement Date and, unless terminated earlier in accordance with the terms of this Agreement, shall continue in force unless and until:

(a) the end of the Term;

(b) extended pursuant to Clause 2.2; or

2.2 The Parties shall review this Agreement six (6) Months before the Termination Date to consider whether or not this Agreement should be renewed. The Parties shall act in good faith to discuss and agree the terms of an extension of this Agreement, including the Membership Fee and Funding Memorandum.

3. SCOPE OF PRACTICE AGREEMENT

3.1 This Agreement governs the relationship between Pause and the Local Delivery Organisation in respect of the local delivery of the Pause Programme and operation of the Pause Practice by the Local Delivery Organisation, and licence of the Pause Trade Marks and Pause Framework to the Local Delivery Organisation.

3.2 The Local Delivery Organisation acknowledges that, in entering this Agreement, no form of exclusivity has been granted by Pause for the Pause Programme and Pause Practice and that Pause is at all times entitled to enter into other agreements with other third parties for the delivery of the Pause Programme and operation of Pause Practices.

4. PAUSE OBLIGATIONS

4.1 Pause shall:

(a) operate in a manner consistent with the Pause Pledge in its relationship with the Local Delivery Organisation;

(b) provide support to the Local Delivery Organisation in respect of implementation of the Pause Programme and operation of the Practice, including support with recruitment, data collection and analysis and pathway advice;

(c) provide to the Local Delivery Organisation training on the delivery of the Pause Programme and operation of the Pause Practice;

190 6766788 v1 9

(d) provide the Local Delivery Organisation with tools and resources which Pause believes are required for the Local Delivery Organisation to implement the Pause Programme and operate a Pause Practice;

(e) comply with the Pause Information Sharing Policy; and

(f) allocate a Pause National Practice Lead to the Local Delivery Organisation.

5. LOCAL DELIVERY ORGANISATION OBLIGATIONS

5.1 The Local Delivery Organisation shall:

(a) deliver the Pause Programme and operate the Pause Practice with integrity and in accordance with the Pause Pledge at all times;

(b) deliver the Pause Programme and operate the Pause Practice in a manner consistent with the Pause Framework;

(d) comply with the Pause Information Sharing Policy (with all obligations of the Pause Practice deemed to be obligations of the Local Delivery Organisation);

(e) use its reasonable endeavours to ensure that all Pause Practice Staff attend training provided by Pause;

(f) co-operate with Pause in all matters relating to the local delivery of the Pause Programme and operation of the Pause Practice;

(g) provide in a timely manner such Local Delivery Organisation material and other information relating to its implementation of the Pause Programme and operation of the Pause Practice as Pause may reasonably require and ensure that it is accurate in all material respects;

(h) ensure that all Local Delivery Organisation equipment required for implementation of the Pause Programme and operation of the Pause Practice is in good working order and suitable for the purposes for which it is used and conforms to all relevant United Kingdom standards or requirements;

(i) comply at all times with the Media Policy; and

(j) regularly update and maintain the records relating to the Pause Practice on the Pause Quality Assurance System and/or any other information management systems as notified by Pause.

191 6766788 v1 9

6. LICENCE

6.1 Pause hereby grants to the Local Delivery Organisation, a limited, non-exclusive, non- transferable, non-sub licensable licence to use the Pause Materials to such extent as is necessary to enable the Local Delivery Organisation to implement the Pause Programme in the Local Area and operate a Pause Practice as set out in this Agreement.

6.2 The Local Delivery Organisation shall:

(a) use the Pause Materials only in a manner which conforms to the reasonable directions and standards notified to it by Pause from time to time;

(b) use the Pause Trade Marks (including in respect of colour, printing style and typeface) only in the form set out in Schedule 1;

(c) include on all materials on which any of the Pause Trade Marks appear a statement that the Pause Trade Marks are owned by Pause and, if applicable, are registered trade marks of Pause in a form approved in writing by Pause;

(d) not use, register or attempt to register any trade marks, company, business or trading names or domain names which are identical or similar to (or which incorporate) any of the Pause Trade Marks, any aspect of them, or any other trade marks or trade names of Pause, without Pause’s prior written consent;

(e) not do anything which could, in Pause’s reasonable opinion, bring the Pause Materials or Pause into disrepute or which could otherwise damage the reputation or goodwill in Pause or could result in any of the Pause Trade Marks becoming generic or in Pause’s rights in them becoming diluted or which could otherwise prejudice or invalidate a registration or application for registration of any of the Pause Trade Marks;

(f) consult with Pause as to the form and content of all marketing, advertising and promotional materials in which the Pause Materials appear and not use or distribute any such materials unless Pause has first approved them in writing.

6.3 The Local Delivery Organisation hereby acknowledges and agrees that:

(a) all Intellectual Property Rights and other rights in and to the Pause Materials are the exclusive property of Pause;

(b) it shall not acquire, nor claim, any right, title or interest in or to any of the Pause Materials or the goodwill attaching to them by virtue of this Agreement or its use of the Pause Materials other than the rights specifically granted to it in this Agreement; and

192 6766788 v1 9

(c) all goodwill arising from use of the Pause Materials by the Local Delivery Organisation before, during or after the Term shall accrue and belong to Pause, and the Local Delivery Organisation shall, at Pause’s request and cost, promptly execute all documents required by Pause to confirm this.

6.4 If this Agreement expires or is terminated in accordance with Clause 13, the licences granted in this Clause 6 will automatically terminate.

7. MEMBERSHIP FEE

7.1 In consideration of the rights granted under this Agreement and the provision of ongoing support provided by Pause the Local Delivery Organisation shall pay the Membership Fee to Pause in the amounts and on the dates specified in Schedule 4 or as otherwise agreed pursuant to Clause 2.2.

7.2 All payments to be made pursuant to this Agreement by the Local Delivery Organisation are exclusive of any applicable VAT or any other applicable sales tax (which shall be paid by the Local Delivery Organisation at the rate and in the manner for the time being prescribed by law) and shall be made in pounds sterling to Pause’s bank account:

Bank: Lloyds Bank Address: Threadneedle Street Branch PO Box 1000 BX1 1LT Account: 38879568 Sort Code: 30-65-41

7.3 Payment of the Membership Fee shall be in immediately available funds by electronic transfer on the due date for payment. Receipt of the amount due shall be an effective discharge of the relevant payment obligation.

8. FUNDING

8.1 The Local Delivery Organisation shall fund the Local Delivery Organisation’s delivery of the Pause Programme and operation of the Pause Practice in accordance with the Funding Memorandum.

8.2 The Local Delivery Organisation warrants and undertakes to Pause that the funding described in the Funding Memorandum at Schedule 3 shall be sufficient for the Local Delivery Organisation to deliver the Pause Programme and operate the Pause Practice in accordance with this Agreement.

9. WARRANTIES AND REPRESENTATIONS

9.1 Each Party warrants and represents that:

193 6766788 v1 9

(a) it has full capacity and authority and all necessary consents to enter into and to perform its obligations under this Agreement;

(b) this Agreement is executed by a duly authorised representative; and

(c) no claim is being asserted and no litigation, arbitration or administrative proceeding is presently in progress or, to the best of its knowledge and belief, pending or threatened against it or any of its assets that will or might affect its ability to perform its obligations under this Agreement.

9.2 Except as expressly stated in this Agreement, all warranties, conditions and terms, whether express or implied by statute, common law or otherwise are hereby excluded to the extent permitted by law.

10. CONFIDENTIALITY

10.1 No Party shall use any other Party’s Confidential Information for any purpose other than to perform its obligations under this Agreement and each Party undertakes that it shall not at any time disclose to any person any Confidential Information of the other Party, except as provided by clause 10.2.

10.2 Each Party may disclose the other Party's Confidential Information:

(a) to those of its employees, officers, contractors, agents, or representatives who need to know such information for the purpose of carrying out the Party’s obligations under this Agreement, provided that it informs such third parties of the confidential nature of the Confidential Information before disclosure and, at all times, is responsible for their compliance with the confidentiality obligations set out in this Clause 10;

(b) to its professional advisers for the purposes of obtaining advice in relation to this Agreement;

(c) as may be required by law, court order or any governmental or regulatory or tax authority of competent jurisdiction provided it gives the other party as much notice of such disclosure as possible (to the extent permitted by law) and takes into account the reasonable requests of the other party in relation to the content of such disclosure.

10.3 The provisions of this Clause 10 shall not apply to such Confidential Information which:

(a) is in, or has become part of, the public domain other than as a result of a breach of the obligations of confidentiality under this Agreement;

194 6766788 v1 9

(b) was independently disclosed to the receiving party by a third party entitled to disclose the same;

(d) the Parties agree in writing is not confidential or may be disclosed.

10.4 The provisions of this Clause 10 shall continue to apply after termination of this Agreement.

11. DATA PROTECTION

11.1 Each Party shall at all times comply with all applicable requirements of the Data Protection Legislation in the processing of Personal Data. This clause does not relieve, remove or replace a party's obligations under the Data Protection Legislation.

11.2 The parties acknowledge that for the purposes of the Data Protection Legislation the Local Delivery Organisation is the Data Controller and Pause is the Data Processor. Schedule 5 to this Agreement sets out the scope, nature and purpose of the Processing, the types of Personal Data and categories of Data Subject.

11.3 To the extent that Pause Processes any Local Delivery Organisation Personal Data in order to perform its obligations under this Agreement, it shall only do so on the written instructions of the Local Delivery Organisation unless required by law in which case Pause shall (to the extent permitted by law) inform the Local Delivery Organisation of that legal requirement before the relevant Processing.

11.4 Pause shall ensure that all personnel who have access to and/or process Local Delivery Organisation Personal Data are obliged to keep the Personal Data confidential.

11.5 Taking into account the state of the art, the costs of implementation and the nature, scope, context and purposes of Processing as well as the harm that might result from the unauthorised or unlawful processing or accidental loss, destruction or damage of the Personal Data, Pause shall ensure that it has in place appropriate technical and organisational measures to ensure a level of security appropriate to that risk, including, as appropriate, the measures referred to in Article 32(1) of the GDPR.

11.6 Pause shall not, without the prior written consent of the Local Delivery Organisation, transfer any Local Delivery Organisation Personal Data outside the European Economic Area.

11.7 Pause shall notify the Local Delivery Organisation without undue delay upon becoming aware of any Personal Data breach affecting Local Delivery Organisation Personal Data.

195 6766788 v1 9

11.8 Pause shall assist the Local Delivery Organisation in responding to any request from a Data Subject and in ensuring compliance with the Local Delivery Organisation’s obligations under the Data Protection Legislation with respect to security, breach notifications, impact assessments and consultations with supervisory authorities or regulators.

11.9 Pause shall maintain complete and accurate records and information to demonstrate its compliance with this clause and the Data Protection Legislation and shall allow for audits by the Local Delivery Organisation in relation to the Processing of any Local Delivery Organisation Personal Data.

11.10 The Local Delivery Organisation hereby warrants, undertakes and represents that it has all necessary rights, titles, consents, permissions, authorisations and licences required by the Data Protection Legislation to enable Pause to Process Local Delivery Organisation Personal Data for the purposes contemplated by this Agreement.

11.11 Pause shall not engage any third party to process Local Delivery Organisation Personal Data without the prior written consent of the Local Delivery Organisation and provided that the third party enters into a written agreement incorporating terms which offer at least the same level of protection for Local Delivery Organisation Personal Data as those set out in this Agreement and which meet the requirements of article 28(3) of the GDPR.

11.12 Pause shall continue to process the Personal Data for the duration of this agreement and any extension agreed pursuant to Clause 2.2.

11.13 Pause shall, at the written direction of the Local Delivery Organisation and in any event within one Month of the termination of this agreement delete or return all Local Delivery Organisation Personal Data and copies thereof to the Local Delivery Organisation. Pause may retain Local Delivery Organisation Personal Data if required by law only to the extent and for such period as required by those laws and Clause 10 (Confidentiality) shall continue to apply to them. Pause may retain anonymised information to enable analysis of national data sets and longitudinal impact studies.

12. PUBLICITY

12.1 The Local Delivery Organisation shall not make any public announcement or issue any press release in relation to this Agreement or its subject matter without the prior written consent of Pause. If required, the Parties will jointly agree in writing an appropriate press release in relation to this Agreement on or shortly after the Commencement Date.

13. TERMINATION

13.1 Either party may terminate this Agreement immediately by written notice if the other party:

(a) has committed a material breach of this Agreement which breach is irremediable or (if such breach is remediable) fails to remedy that breach within a period of 30

196 6766788 v1 9

days, or such other period as may be specified by the notifying Party, after being notified in writing to do so;

(b) commits or suffers any Insolvency Event;

(d) the other Party repeatedly breaches any of the terms of this Agreement in such a manner as to reasonably justify the opinion that its conduct is inconsistent with it having the intention or ability to give effect to the terms of this Agreement.

13.2 Notwithstanding the service of a notice to terminate this Agreement, the Local Delivery Organisation shall continue to fulfil its obligations under the Agreement until the date of expiry or termination of the Agreement or such other date as required under this Clause 13.

13.3 On expiry or termination of this Agreement for any reason the Local Delivery Organisation has a duty to proactively work with local partners and agencies to reallocate the caseload of the Pause Practice to other appropriate local services.

13.4 Any provision of this Agreement that is expressly, or by implication, intended to have effect after termination shall continue in force and effect.

13.5 Termination or expiry of this Agreement shall not affect any rights, remedies, obligations or liabilities of the Parties that have accrued up to the date of termination or expiry, including the right to claim damages in respect of any breach of the Agreement which existed at or before the date of termination or expiry.

14. LIMITATION OF LIABILITY

14.1 Nothing in this Agreement shall limit or exclude a Party’s liability for:

(a) death or personal injury caused by its negligence;

(b) fraud or fraudulent misrepresentation; or

14.2 Subject to Clause 14.1, Pause, its employees, agents or officers will not at any time be liable to the Local Delivery Organisation or any other person for anything in connection with this Agreement, whether in contract, tort (including negligence or breach of statutory duty), misrepresentation, restitution or otherwise (whether at law or in equity) for any: loss of profits or loss of business, depletion of goodwill or similar losses, loss of anticipated savings, loss of use, loss or corruption of data or information (except where such loss or

197 6766788 v1 9

corruption is the fault of Pause); whether any of these losses are direct or indirect; or any special, indirect or consequential loss, costs, damages, charges or expenses.

14.3 Subject to Clause 14.1, Pause’s total liability to the Local Delivery Organisation in respect of all losses arising under or in connection with this Agreement shall be limited to the amount of the Membership Fee actually received by Pause from the Local Delivery Organisation.

15. DISPUTE RESOLUTION

15.1 If a dispute arises out of or in connection with this Agreement or the performance, validity or enforceability of it (Dispute) then except as expressly provided in this Agreement, the Parties shall follow the procedure set out in this clause:

(a) either Party shall give to the other written notice of the Dispute, setting out its nature and full particulars (Dispute Notice), together with relevant supporting documents. On service of the Dispute Notice, the Director of Practice & Learning of Pause and Assistant Director of the Local Delivery Organisation shall attempt in good faith to resolve the Dispute;

(b) if the Director of Practice & Learning of Pause and Assistant Director of the Local Delivery Organisation are for any reason unable to resolve the Dispute within 30 days of service of the Dispute Notice, the Dispute shall be referred to the Chief Executive of Pause and Senior Assistant Director of the Local Delivery Organisation who shall attempt in good faith to resolve it.

15.2 No Party may commence any proceedings under Clause 16.1616.16 in relation to the whole or part of the Dispute unless and until the procedure set out in this Clause 15 has been followed, provided that the right to issue proceedings is not prejudiced by a delay.

15.3 Nothing in this Clause 15 restricts either Party’s freedom to seek urgent relief to preserve a legal right or remedy.

16. GENERAL

16.1 Each Party shall, and shall use all reasonable endeavours to procure that any necessary third party shall, promptly execute and deliver such documents and perform such acts as may reasonably be required for the purpose of giving full effect to this Agreement.

Force Majeure

16.2 Neither party shall be liable for any delay in performing any of its obligations under this Agreement if such delay is caused by a Force Majeure Event. A party experiencing a Force Majeure Event shall give the other party full particulars of the circumstances and use reasonable endeavours to resume performance as soon as possible. If the delay in

198 6766788 v1 9

performance due to a Force Majeure Event is more than 30 days, either party may give notice to terminate this Agreement with immediate effect by giving written notice.

Assignment

16.3 This Agreement is personal to the Parties and neither Party shall assign, transfer, mortgage, charge, subcontract, declare a trust over or deal in any other manner with any of its rights and obligations under this Agreement without the prior written consent of the other Party.

Variation

16.4 No variation of this Agreement shall be effective unless it is in writing and signed by the Parties (or their authorised representatives).

Waiver

16.5 A waiver of any right or remedy under this Agreement or by law is only effective if given in writing and signed by the waivering Party and shall not be deemed a waiver of any subsequent breach or default. A failure or delay by a Party to exercise any right or remedy provided under this Agreement or by law shall not constitute a waiver of that or any other right or remedy, nor shall it prevent or restrict any further exercise of that or any other right or remedy. No single or partial exercise of any right or remedy provided under this Agreement or by law shall prevent or restrict the further exercise of that or any other right or remedy.

Rights and Remedies

16.6 The rights and remedies provided under this Agreement are in addition to, and not exclusive of, any rights or remedies provided by law.

Severance

16.7 If any provision or part-provision of this Agreement is or becomes invalid, illegal or unenforceable, it shall be deemed modified to the minimum extent necessary to make it valid, legal and enforceable. If such modification is not possible, the relevant provision or part-provision shall be deemed deleted. Any modification to or deletion of a provision or part-provision under this clause shall not affect the validity and enforceability of the rest of this Agreement.

Entire Agreement

16.8 This Agreement, the schedules and the documents annexed to it or otherwise referred to in it, constitute the entire agreement and understanding between the Parties and supersedes and extinguishes all previous agreements, arrangements and understandings

199 6766788 v1 9

(whether written or oral) between the Parties or any of them relating to the subject matter of this Agreement.

No Partnership or Agency

16.9 Nothing in this Agreement is intended to, or shall be deemed to, establish any partnership or joint venture between any of the Parties, constitute any Party the agent of another Party, or authorise any Party’ to make or enter into any commitments for or on behalf of any other Party

Third Party Rights

16.10 Except as otherwise expressly provided within this Agreement, no one other than a Party to this Agreement shall have any right to enforce any of its terms.

Notice

16.11 Except as otherwise expressly provided within this Agreement, any notice given to a Party under or in connection with this Agreement shall be in writing and shall be delivered by e- mail, by hand, or by pre-paid first-class post next Business Day delivery service.

16.12 Any notice shall be deemed to have been received:

(a) if delivered by hand, on signature of a delivery receipt or at the time the notice is left at the proper address;

(b) if sent by pre-paid first-class post or other next Business Day delivery services, at 9.00am on the second Business Day after posting or at the time recorded by the delivery service;

This clause does not apply to the service of any proceedings or any documents in any legal action or, where applicable, any arbitration or other method of dispute resolution.

16.13 For the purposes of clause 16.11 the address of each Party shall be:

(a) For Pause:

Jules Hillier, Chief Executive Officer

Address: Pause, 4th Floor, Hackney Technology & Learning Centre, 1 Reading Lane, London, E8 1GQ

E-mail: [email protected]

200 6766788 v1 9

(b) For the Local Delivery Organisation:

Jason Pickett Assistant Director

Address: Atlas House St Helens, 2 Corporation Street,St Helens, WA9 1LD

E-mail: [email protected]

16.14 Either Party may change its address for service by serving a notice in accordance with clause 16.11.

Governing Law

16.15 This Agreement and any dispute or claim (including non-contractual disputes or claims) arising out of or in connection with it or its subject matter or formation shall be governed by and construed in accordance with the law of England and Wales.

Jurisdiction

16.16 Each Party irrevocably agrees that the courts of England and Wales shall have exclusive jurisdiction to settle any dispute or claim (including non-contractual disputes or claims) arising out of or in connection with this Agreement or its subject matter or formation.

This Agreement has been entered into on the date stated at the beginning of it.

SIGNED by Jules Hillier for and on behalf of PAUSE CREATING SPACE ...... FOR CHANGE Authorised Signatory

20.05.2019 ...... Date

SIGNED by Jason Pickett for and on behalf of ST HELENS COUNCIL ...... Authorised Signatory

15.05.2019 ...... Date

201 6766788 v1 9

SCHEDULE 1

Pause Trade Marks

Registered Trade Marks Mark No. Status Classes Goods & Services UK00003169948 REGISTERED 9, 16, 9 Scientific, nautical, surveying, photographic, cinematographic, optical, 41, 42, weighing, measuring, signaling, checking (supervision), life-saving and teaching apparatus and instruments; apparatus and instruments for Pause creating space for change APP DATE: 45 conducting, switching, transforming, accumulating, regulating or 16/06/2016 controlling electricity; apparatus for recording, transmission or reproduction of sound or images; magnetic data carriers, recording discs; REG DATE: compact discs, DVDs and other digital recording media; mechanisms for 23/09/2016 coin-operated apparatus; cash registers, calculating machines, data processing equipment, computers; computer software; fire extinguishing apparatus; downloadable mobile software applications (apps) for use in the delivery and distribution of audio, video and multimedia entertainment content including text, data, images, audio, video and audio visual files; software for streaming audio visual and multimedia content via the internet, satellite and global communications networks.

16 Paper, cardboard and goods made from these materials, not included in other classes; printed matter; bookbinding material; photographs; stationery; adhesives for stationery or household purposes; artists’ materials; paint brushes; typewriters and office requisites (except furniture); instructional and teaching material (except apparatus); plastic materials for packaging (not included in other classes); printers’ type; printing blocks.

41 Education; providing of training; entertainment; sporting and cultural activities.

42 Scientific and technological services and research and design relating thereto; industrial analysis and research services; design and development of computer hardware and software.

45 Legal services; conveyancing services; security services for the protection of property and individuals; social work services; consultancy services relating to health and safety; consultancy services relating to personal appearance; provision of personal tarot readings; dating services; funeral services and undertaking services; fire-fighting services; detective agency services. UK00003169962 REGISTERED 9, 16, 41, 42, As above. APP DATE: 45 16/06/2016 REG DATE: 23/09/2016 UK00003169955 REGISTERED 41, 45 41 Education; providing of training; entertainment; sporting and cultural activities. 45 Legal services; conveyancing services; security services for the APP DATE: protection of property and individuals; social work services; consultancy 16/06/2016 services relating to health and safety; consultancy services relating to personal appearance; provision of personal tarot readings; dating services; REG DATE: funeral services and undertaking services; fire-fighting services; detective 23/09/2016 agency services.

20217 6766788 v1 9

SCHEDULE 2

Except as defined in this agreement, the terms referred to in this Schedule 2 refer to the terms within the Pause Framework.

The Pause Pledge

The Pause Pledge comprise of the following partnership points (the “Partnership Points”):

Our Pledge to each other All the people who make up the Pause Partnership are committed to these Partnership Points to maintain the fidelity of Pause.

Our Pledge to the women who work with Pause Pause will work with the woman as soon as is in her best interest irrespective of whether care proceedings have concluded or not. If a woman’s suitability for Pause changes during the programme, Practices follow the guidance set out in the Framework (4.1) including putting in place a comprehensive transition plan. Pause will help women in the following ways: o Offer them a relationship with their Practitioner that is secure, consistent and predictable; where they are valued and respected for who they are as women rather than judged or defined by any one presenting issue; o Provide them with the time and space they need to make the identified changes that are important to them in their lives; o Pause Practitioners will work with the women to identify their long-term goals and the necessary actions to achieve them; o Pause Practitioners will be open and clear in how they communicate with women, treating them as adults with agency.

Our Pledge with Pause Practices Pause will ensure it delivers its offer of support, and that this is experienced as flexible, responsive and able to reflect the varying needs of different Pause Practices. Pause will listen to the needs of Pause Practices and be prepared to adapt and change its involvement through a discursive relationship. Pause will maintain the Good Practice Guide to ensure it contains the most up-to-date information. Pause will ensure that Pause Practices have access to advice and training in relation to lone working. The Pause National Practice Lead is a member of the Local Pause Board. Pause must ensure the Pause National Practice Board reflects the experiences of Practice on the ground, reflects the experiences of the women and provides a reflective and thoughtful space for learning and sharing.

203 6766788 v1 9

We will work together to ensure that every Pause Practice and Pause nationally complies with all the Partnership Points and achieve the Pause Minimum Quality Standards.

Our Pledge to Pause Practitioners Your Pause National Practice Lead will identify and learn from innovations by experiencing local practice first hand, and will be there to provide support and constructive challenge to your Practice. Your Pause National Practice Lead will encourage sharing of experience and knowledge across Pause. Pause Practices will be open with the Pause Partnership and their Pause National Practice Lead, welcoming their involvement with Practice, including going alongside Practitioners as appropriate. Your Pause National Practice Lead will work with Pause Practices to ensure fidelity and quality to the model and will take the necessary steps to ensure this is upheld.

Our Pledge with Pause Partners Your Pause National Practice Lead is a member of the Local Pause Board. The Pause Board in each area is chaired by someone at director level, who becomes the local Pause Champion, e.g. Director of Children’s Service, Director of Public Health

Your Pledge to Pause Your team structure Pause Practices will work in collaboration with Pause throughout their recruitment process, utilising their Pause National Practice Leads as panel members for interviews, and resources supplied by Pause, e.g. job description and person specifications. The minimum staffing level for a Pause Practice is a Practice Lead, three Practitioners and a Practice Co-ordinator. Any variations to the architecture of a Practice should be discussed with your Pause National Practice Lead.

Your cohort Women who join Pause need to be of child-bearing age, have no children in their care and be at risk of repeat pregnancies that are likely to result in removal. The women who work with Pause must use the most effective methods of reversible contraception for the duration of the programme. Women may participate in Pause regardless of their presenting issues. Any restrictions placed on participation must be agreed with your Pause National Practice Lead. Pause Practices will complete the scoping exercise using the Pause scoping tool and will share the anonymous data gathered with Pause.

Your ways of working The maximum number of women for any one Practitioner to work with is eight. Pause Practices must ensure all Practitioners receive at least one clinical supervision per month.

204 6766788 v1 9

Pause Practitioners will consider whether any intervention or tool they use has a clear theoretical and robust evidential basis and that they have assessed any risk as reasonable and taken appropriate steps to mitigate. Each Pause Practice must ensure that the woman’s resource allocation of at least £2,000 per woman is ring-fenced within the Practice budget and that cash is never given directly. Pause Practices agree to make the ‘Post Pause Essential Elements’ available to women at the end of the programme. Pause Practices agree to follow the guidance on consistency and clearance for the media. Pause commits to supporting Pause Practices with their communications priorities. Pause Practices will answer the innovation questions before pursuing anything that sits outside the core Pause Programme. Pause Practices will always link with Pause Business Development for support when considering funding opportunities.

Your work with Pause Partners Pause Practices will have close working relationships (face-to-face where possible, at least for initial contact) with relevant local professional partner organisations. Pause Practices and local partners will develop partnership arrangements, including information sharing agreements, so everyone is clear about roles, responsibilities and expectations. Pause Practices will have a single point of contact with each local partner agency.

Your care plans Pause Practices will include the essential elements of assessment in their assessment care plans. Pause Practices will review their assessment care plans with their Pause National Practice Lead. Pause Practices should liaise with their Pause National Practice Lead to ensure assessment and care plans meet Pause guidance and requirements around baseline assessment, background information, risk and monitoring of most effective method of reversible contraception.

Your Practice safety Pause Practices must ensure they adopt and follow their local/delivery organisation’s safeguarding policies and procedures, relating to children and vulnerable adults. All Pause Practice staff must understand and implement the policy, and it must be in place before the first women join the programme. Pause Practices and their delivery organisations are responsible for ensuring that lone working is appropriately and safely managed.

Your quality assurance Pause Practices will provide timely and accurate data on fidelity, quality and outcomes through the Quality Assurance System (Apricot). Pause will provide each Practice benchmarking data from other Practices that allows them to set their own performance to support ongoing learning and development of the Pause Practice.

205 6766788 v1 9

Pause Practices must meet the Minimum Quality Standards and be working towards the Pause Quality Targets. If a Practice fails to meet one or more Minimum Quality Standards it must put in place a robust plan to raise the quality of its delivery so that the Minimum Quality Standards are met as soon as practicable. Pause Practices will commit to taking part in any national evaluation and will liaise with their Pause National Practice Lead and the Director of Practice and Learning regarding any plans for separate independent evaluation.

206 6766788 v1 9

SCHEDULE 3

Funding Memorandum

The Local Delivery Organisation commits to using the funding set out below for the purposes of delivering the Pause Practice:

Amount Funding start date Funding end date Funding provider

£337,052 April 2019 October 2020 St Helens Council

207 6766788 v1 9

SCHEDULE 4

Membership Fee

Membership Fee: £25,000 plus 5% VAT

Pause will invoice the Local Delivery Organisation for the membership fee on: 23 October 2019 & annually thereafter.

208 6766788 v1 9

SCHEDULE 5

INFORMATION SHARING POLICY

1. POLICY STATEMENT AND PURPOSE

1.1 The purpose of this policy is to enable data and information to be shared between Pause and the Pause Practice to ensure adherence by the Pause Practice to the Pause Monitoring, Evaluation and Learning (MEL) Strategy (which includes using the Pause Quality Assurance System referred to at clause 2.1 below), model fidelity and for performance management information.

2. PAUSE PRACTICE OBLIGATIONS

2.1 The Pause Practice shall capture the Information (as defined below) on the Pause Quality Assurance System. This is a bespoke online system created on Apricot, a product of Gallery Partnership UK. Further information about the Pause Quality Assurance System can be found in the Pause Framework and Pause MEL Strategy. The Pause Practice will obtain all necessary appropriate and valid consents and notices required under the Data Protection Legislation from each woman who engages with the Pause Practice for the processing of her Personal Data in accordance with this Information Sharing Policy at the outset of their working relationship and before uploading her Information to the Pause Quality Assurance System.

3. THE INFORMATION

3.1 The following information comprises the Personal Data that Pause requires the Pause Practice to capture in the Pause Quality Assurance System relating to each woman that the Pause Practice works with:

(a) Name

(b) Database ID

(d) Date of birth

(e) Ethnicity

(f) Number of children removed from, and currently in, the woman’s care

(g) Details of the woman’s current use of long acting reversible contraception

(h) Existence of risk assessments regarding the woman and her address

209 6766788 v1 9

(i) Current status of Pause Practice engagement with the woman

(j) A profile of the woman’s current and past needs (e.g. mental health needs, drug or alcohol use, refugee status)

(k) The woman’s, and the Pause Practitioner’s, assessment of the woman’s goals and needs

(l) The woman’s self-assessment of her current situation and progress in relation to access to fun and leisure, physical health, key relationships, financial and housing situation, access to services and support, contact with the criminal justice system, emotional well-being, self-esteem and access to learning and employment

(m) Records of activities within the Pause Practice for that woman including date, efforts to engage, focus of activity and funds spent

(n) Records of any supervisory or management activity;

(the “Information”).

3.2 If either of the Parties considers that additional information is required to be captured in the Pause Quality Assurance System in order to meet the necessary objectives of the Pause Programme, the Parties will agree in writing that such additional information shall be considered to be “Information” as defined in this Information Sharing Policy.

4. USE OF INFORMATION

4.1 Pause Practices will use the Information to run standardised reports, according to the reporting framework set out in the Pause MEL Strategy. These standardised reports will enable Pause Practices to submit quarterly progress reports to Pause for the purposes of performance management and the identification of the support needs of Pause Practices. No Personal Data or non-anonymised Information will be included in the quarterly reports that are sent to Pause.

4.2 Pause staff will have access to the Information for the purposes of providing technical support and advice to the Pause Practice. Pause staff will only access the Information for the purposes of providing such technical support or advice to the Pause Practice and on the specific instructions of the Pause Practice (Specific Purpose).

4.3 Pause undertakes that the Information will only be used for the Specific Purpose for which it was shared and will not be used for any other purpose or shared with any other party, other than as may be required by law.

210 6766788 v1 9

5. SECURITY MEASURES

5.1 The Pause Quality Assurance System will incorporate appropriate physical and technical and organisational measures to protect against unauthorised or unlawful processing of Personal Data and against accidental loss or destruction of, or damage to, Personal Data, appropriate to the harm that might result from the unauthorised or unlawful processing or accidental loss, destruction or damage and the nature of the data to be protected. Such measures may include, where appropriate, pseudonymising and encrypting Personal Data, ensuring confidentiality, integrity, availability and resilience of its systems and services, ensuring that availability of and access to Personal Data can be restored in a timely manner after an incident, and regularly assessing and evaluating the effectiveness of the technical and organisational measures adopted by it.

5.2 The Pause Practice will ensure that Pause Practice Staff are trained and maintain good habits in preserving the security of the Pause Quality Assurance System, including choosing strong passwords to access the Pause Quality Assurance System and not sharing passwords with others.

5.3 Pause Practice Staff will only be able to access Information within the Quality Assurance System relating to their own Pause Practice. Pause will ensure that access to the Information is limited to those members of Pause staff who need access for the Specific Purpose and any such Pause staff shall only access the part or parts of the Information as is strictly necessary for the performance of that member of staff’s duties.

211 6766788 v1 9

SCHEDULE 6

Media policy and guidance

1. OVERVIEW

1.1 The Pause Programme is highly respected with a good reputation that enjoys strong relationships with key stakeholders such as those in both central and local government and it is important that this is preserved.

1.2 It is anticipated that the news media will become more interested in Pause as the Pause Programme advances. Pause has a responsibility to be open and responsive to information requests from the media as they are among the many ways our key stakeholders, partners and the general public will build their individual perceptions of Pause.

2. PURPOSE

2.1 This policy is designed to ensure the safety of the women who work with Pause and all staff. Information disclosed by Pause must be timely, accurate, comprehensive, authoritative and relevant to all aspects of Pause. Adherence to this policy is intended to provide an effective and efficient framework to facilitate the timely dissemination of information.

3. WHO AND WHAT DOES THIS POLICY APPLY TO?

3.1 This policy and the rules contained in it apply to: all Pause staff, including trustees, employees, directors and officers, consultants and contractors, casual or agency staff, trainees, homeworkers, fixed term staff and volunteers. It also applies to Pause Practices.

3.2 NB Pause Practices should adhere to the policies of their delivery organisation locally and work with this policy and guidance in order to cohere with Pause.

4. WHO IS RESPONSIBLE FOR THIS POLICY?

4.1 The Pause Director of Communications has general responsibility for oversight and updating the media policy. Pause Practice Leads have special responsibility for leading by example, ensuring that members of staff are familiar with this policy and for monitoring and enforcing compliance.

5. DESIGNATION OF PAUSE SPOKESPEOPLE

5.1 Communications about Pause and the Pause Practices are the sole responsibility of Pause. Pause has expertise in media relations and weighs each media enquiry to determine the best way to respond. The Pause Communications Team will convey the

212 6766788 v1 9

official Pause position on issues of significance or situations that are particularly controversial or sensitive in nature.

5.2 Pause spokespeople will be appointed by Pause and have among other responsibilities to:

(a) increase public awareness and understanding of Pause, the services Pause provides and future prospects for growth; and

(b) promote a positive public image of Pause and the work Pause does to audiences that are important to Pause.

6. GUIDANCE FOR INTERACTIONS WITH THE MEDIA

6.1 The Pause Communications Team will always ask first: “Is this in the best interest of the women Pause works with?” when dealing with any media interactions.

6.2 Pause staff who are not authorised by Pause to deal with enquires from the media must in the first instance forward any enquiry to the Pause Communications Team.

6.3 A reporter, producer or other news media may contact you for a number of reasons including but not limited to:

(a) To gain information about any individual working with Pause

(b) To gain information about Pause

(d) To get information or a comment about an action or event

(e) To get general information on a topical story

6.4 In all instances of media contact please pass all enquiries to the Pause Director of Communications. Please do not say you are not allowed to talk to the media or have to get permission to do so or cannot comment. Instead please tell the media enquirer that “Pause policy is to refer all media inquiries to the Press Office. You can reach them on 020 8820 7232”.

6.5 Whenever taking a call from the media the same courtesy and professionalism in which Pause approaches all key stakeholders should be displayed. Please act quickly when approached by the media and inform the Pause Director of Communications in the first instance even if you have already referred the media onto Pause.

213 6766788 v1 9

6.6 Do not let the media compel you to answer questions on the spot. It is always beneficial to refer them to the Pause Director of Communications so accurate and relevant information can be provided.

7. GUIDANCE FOR PHOTOGRAPHS AND FILM

7.1 If someone from the media is requesting to take photographs and film please refer to the bullet points in ‘6. GUIDANCE FOR INTERACTIONS WITH THE MEDIA’ section above.

7.2 No one will be given access to your Pause Practice for photo or filming without approval from Pause, who will always discuss with the relevant Practice and send written confirmation in advance

7.3 If the media show up unannounced without prior written consent from Pause please let the Pause Director of Communications know in the first instance and they will contact the relevant news room for clarification. The media cannot enter a Pause Practice without permission to photograph or film. The media cannot block entrances or prevent business as usual at any facility.

8. GUIDANCE FOR SEEKING MEDIA COVERAGE

8.1 In circumstances in which you believe you have a positive news story to share with the public, contact the Pause Director of Communications before taking any action. All media activity will be managed by Pause. Pause can only authorise and distribute Pause news releases, pitch coverage of particular events or hold news conferences.

8.2 Do not call a reporter or media outlet without directly consulting Pause. You should contact the Pause Director of Communications in the first instance.

8.3 Some news items will be more appropriate for internal publicity and this will be considered by Pause.

9. GUIDANCE FOR PROVIDING CASE STUDIES TO MEDIA

9.1 As a general rule, Pause will not provide case studies of Pause women to press who request them at short notice or for live broadcast.

9.2 Pause is in the process of developing a bank of broadcast quality case studies (anonymised) including audio, photos etc. to use with permission.

9.3 Longer term feature and documentary style pieces will be dealt with on a case by case basis in conjunction with the Director of Communications, Pause Practice Leads and the Director of Practice & Learning, and where appropriate CEO and Board of Trustees.

214 6766788 v1 9

9.4 Safeguards will be put in place for all media work that is agreed. For example, the media team will always be with women and practitioners during interviews and will manage the journalist’s questions etc.

9.5 The communications team will work to ensure that any interviews have a clear lead in time and cooling off period to protect women who may be interviewed from any trauma that may surface as a result of interview. Women will always have the right to change their mind after an interview and their well-being is our paramount concern.

9.6 Advice around being identified (clothing, jewellery etc.) will be provided to anyone being interviewed before the interview takes place.

9.7 All photographs/ images of women for press and social media must be anonymised.

9.8 Photographs / images as well as names of practitioners for press / media may be anonymised, this will be decided on a case by case basis as requested by the practitioner.

215 6766788 v1 This page is intentionally left blank 9

Local authority address

Date

Dear xxx,

Re: Confirmation of funding for [local authority] to deliver a Pause Practice

I am pleased to confirm that Pause Creating Space for Change (referred to as ‘Pause’ hereafter) will provide the funding to [local authority] to deliver a Pause Practice.

The amount of funding will be confirmed once [local authority] has submitted the budget required to deliver the Pause Practice. However, the amount will be equivalent to up to 50% of the cost of delivery for 21 months (estimated at approximately £260,000).

This funding has been granted to Pause by the Department for Education and, as such, the following terms and conditions will apply:  Any publicity activity must be carried out in conjunction with the Pause Director of Communications and Influencing and should include reference to the Department for Education’s Children’s Social Care Innovation Programme grant;  Pause is required to report regularly to the Department for Education and requests that [local authority] assists us with such reporting – during the mobilisation period, Pause may request brief ad-hoc updates from the Council and, once the Pause Practice is operational, it will be required to report quarterly according to the Pause Monitoring, Evaluation & Learning Framework;  [local authority] will be required to invoice Pause for the grant according to a payment schedule – further information will be provided by the Pause Programme Manager.

Pause will send [local authority] a legal agreement (the ‘Practice Agreement’), setting out the parameters of the partnership between both organisations.

Please contact Xenia Lawani, Programme Manager, if you have any queries about this grant ([email protected] / 07881 039 274).

Yours sincerely,

Jules Hillier Chief Executive, Pause

Ground Floor, 209-211 City Road, London EC1V 1JN T.020 3011 1949 E. [email protected] W. www.pause.org.uk

Pause Creating Space for Change is a registered charity in England and Wales (1170310) and Scotland (SC049817). We are a company limited by guarantee, with company number 09703298, and our registered office is Ground Floor, 209-211 City Road, London EC1V 1JN This page is intentionally left blank 10

CABINET

23 September 2020

Report Title Local Plan

Cabinet Portfolio Economic Regeneration & Housing

Cabinet Member Councillor Richard McCauley

Exempt Report? No

Reason for Exemption Open

Key Decision Yes

Public Notice issued General Exception issued

Wards Affected All Wards

Lisa Harris Executive Director – Place Report of [email protected] 01744 676183

Melanie Hale Service Manager – Development & Building Control Contact Officer [email protected] 01744 676115

219 10

NB Use Section 4 - Support a strong, diverse and well-connected local economy x Background Information to explain how Create a green, thriving and vibrant place to be proud of x each selected priority is supported Be a modern, efficient and effective Council

1. Summary

1.1 At the meeting on the 6th March 2020, Cabinet resolved to delay submission of the St Helens Local Plan Submission Draft (2019) to consider the land use planning implications of entering into a strategic partnership with English Cities Fund (ECF). Whilst ECF have ambitious plans, there is not enough evidence at this point that submission of the Local Plan be delayed.

1.2 The Local Development Scheme (LDS) is required to set out the development plan documents that the Council intends to produce and a timescale for their preparation. If Cabinet resolves to submit the Local Plan, it is recommended that the LDS be updated and brought into effect to reflect the timescale.

2. Recommendations for Decision

Cabinet is recommended to:

i) Submit the St Helens Borough Local Plan Submission Draft (2019) as per the resolution of Council at the meeting held on the 19th December 2018; and ii) Bring the Local Development Scheme July 2020 (at appendix two) into immediate effect.

3. Purpose of this Report

3.1 To consider the outcome of discussions with the ECF within the context of the Local Plan, as per the resolution of Cabinet at the meeting held on the 6th March 2020.

3.2 To set out changes to the local development scheme to reflect the submission timescale for the St Helens Local Plan Submission Draft (2019).

4. Background/Reasons for the recommendations

Actions to Date

4.1 The National Planning Policy Framework states that the planning system should be plan led. The local plan is a positive vision of the future that addresses housing need and other 220 10 economic, social and environmental priorities. It sets out future development needs and aspirations and how we will protect and enhance important assets such as parks and open spaces.

4.2 At the meeting held on the 19th December 2018, the Council resolved:

 That the ‘submission draft’ version of the St Helens Borough Local Plan: 2020-2035 be approved;  That the Plan be published with its supporting documents in accordance with Regulation 19 of the Town and Country Planning (Local Planning) (England) Regulations 2012 (as amended);  That the Plan and all relevant supporting documents be submitted, after the end of the publication period, to the Government in accordance with Regulation 22 of the Town and Country Planning (Local Planning) (England) Regulations 2012 (as amended);  That the Strategic Director, Place Services be authorised to make any necessary minor editorial changes to the Plan and supporting documents before they are published and/or submitted in accordance with recommendations above, with any substantive changes to the Plan to be agreed in consultation with the Cabinet Member - Balanced Development, Housing and Economic Opportunity; and  That the St Helens Local Development Scheme 2018 be brought into effect from 1 January 2019.

4.3 The Council published the plan and supporting documents in January 2019. Officers have been analysing the responses as well as preparing background documents to support the submission of the plan.

4.4 At the meeting held on the 6th March 2020, Cabinet resolved to delay submission of the Local Plan in order to determine the land use planning implications of entering into a strategic partnership with ECF. Following this, officers were asked to report to Cabinet with recommendations as to how to go forward.

4.5 Unfortunately, the coronavirus crisis delayed a report coming back to Cabinet in the summer, but this report now sets out the outcome of the discussion and recommends how to proceed.

Discussions with ECF

4.6 Following the Cabinet resolution, officers facilitated a discussion with ECF. ECF is in the process of developing plans for St Helens town centre, they are confident that a mix of uses will be brought forward over the local plan period. In terms of housing development, recognising we are still in the very early stages of the partnership, it is anticipated that in the region of 400 dwellings could be delivered in the town centre. The majority of these would be built from 2030 onwards, with almost 50% of the units being in 2034 and 2035.

4.7 In addition, whilst ECF have ambitions to develop across the Borough, they were explicit that it is too early to come forward with any other meaningful plans at this stage.

4.8 The housing requirement for St Helens is 486 net additional dwellings per year. The number of units proposed in St Helens Town Centre, at 400, is relatively small and less than a years’ worth of housing against the plan requirements. Over the plan period, it is anticipated that Town centre development would contribute an average of approximately 25 units per year. The Local Plan identifies a windfall allowance of 93 dwellings per year, therefore the development of St Helens Town Centre has in general terms already been accommodated and in fact will help to ensure that the windfall allowance is delivered. 221 10

4.9 ECF has not provided any evidence as to the deliverability of the scheme, simply because they are in the early stages of the project. There has not been time to work up the required level of detail to inform the plan that a scheme is both viable and deliverable. This would be looked at very closely by an Inspector at examination particularly if a site currently located in the Green Belt were dropped in favour of allocating land in the town centre. The Council would also face significant challenge by a dropped Green Belt site promoter.

4.10 As stated, approximately half of the residential units are anticipated to be delivered in the final phase, during the last two years of the plan period. Even a small amount of slippage in delivery rates would push delivery of the site beyond the plan period.

4.11 If the Council were to review the plan considering the above, it would need to be informed by all evidence. This would inevitably cause further delay. The risks associated with this delay could include; the potential for developers to submit planning applications and challenge our five year housing land supply; the plan strategy being undermined as the evidence becomes outdated; the potential for Government intervention, or fundamental change of national planning policy.

4.12 On the basis of the risks highlighted in the paragraph above, it is recommended that the Council submit the plan in its current form. It is, of course, appropriate to reference the partnership in the document, this could be achieved through modifications and agreed via delegated authority granted to the Executive Director Place and Portfolio Holder for Economic Development and Housing as per the decision by Council on the 19th December 2018. The suggested, draft modifications to the relevant policies and reasoned justification is attached at appendix three. Changes are also recommended to reference the Town Deal and coronavirus pandemic.

Local Development Scheme 4.13 Section 15 of the Planning and Compulsory Purchase Act (2004) (as amended) requires local planning authorities to prepare and maintain a document known as a Local Development Scheme (LDS). Amongst other matters, an LDS must specify the development plan documents to be produced and the timetable for their preparation. Legislation requires the Council to make information available showing the state of the authority’s compliance (or non- compliance) with the timetable in the LDS.

4.14 The most up-to-date LDS must be provided when the Local Plan is submitted for examination, and the appointed Inspector will consider whether the Local Plan has been prepared in accordance with the timetable set out within it. The current LDS (December 2018) anticipated submission of the Local Plan to the Secretary of State in July 2019, so is now out of date. Therefore, an updated LDS has been prepared to supersede the current 2018 version, and in summary, it anticipates submission of the new Local Plan in October 2020, followed by Examination and then adoption by the end of 2021.

4.15 Should Members agree to submit the Plan, it is also recommended that the updated LDS (Appendix Two) be agreed to reflect this, to ensure that the submission date of the Plan aligns with the latest agreed LDS.

222 10 5. Community Impact Assessment

5.1 A Community Impact Assessment (CIA) was prepared when the Local Plan was considered at the Cabinet/Council meetings in December 2018. The CIA has been updated within the context of the most up to date template for this report.

5.2 The CIA identifies that the the Local Plan contains a comprehensive range of policies which aim to improve quality of life in St Helens. For example, policy LPA11 states that the Council will work with its health and wellbeing partners to promote public health principles, maximise opportunities for people to lead healthy and active lifestyles, and reduce health inequalities for residents within the Borough. The Council will use its planning powers to:

 Encourage improved access to a choice of homes and jobs that meet the needs of the area;  Ensure the provision of easy-to-maintain, safe and attractive public areas and green spaces to serve new development which minimise the opportunity for and fear of crime and which promote social cohesion and mental wellbeing;  Encourage people to be physically active by providing opportunities for walking, cycling, outdoor recreation and sport, including, where appropriate, the provision of opportunities for physical activity within the design of new development;  guide the location of food and drink uses such as hot food takeaways,  drinking establishments, restaurants, cafes and other uses which may have negative health impacts having regard to their impact on other land uses in the local area;  maximise the levels of accessibility between homes, educational establishments, jobs, public transport services, health and other services, recreational opportunities and community, cultural and leisure facilities;  Encourage measures to achieve affordable warmth;  Promote active design principles as established by Sport England; and  Manage air quality and pollution.

6. Consideration of Alternatives

6.1 There is a legal requirement for an up to date local plan to be in place. In developing the St Helens Borough Local Plan Submission Draft, officers have refined a range of options set out in the St Helens Local Plan Preferred Options 2016. This process has taken account of up-to- date evidence, the outcomes of the consultation on the Preferred Options and the requirements of national planning policy .A sustainability appraisal has been undertaken which has robustly assessed the emerging Plan (including alternative policy approaches and sites) against a range of economic, social and environmental objectives. Having regard to all these factors, a number of adjustments have been made to the Plan. These are summarised in section 2 of the report to Cabinet/Council considered at the meetings in December 2018. The report is attached at appendix one.

7. Conclusions

7.1 Cabinet resolved to delay submission of the Local Plan in order to consider the land use implications of entering into a strategic partnership with ECF. Whilst ECF has ambitious plans for St Helens Borough, there is not enough evidence that submission of the Local Plan should be delayed to take account of the proposals at this time. In order to progress and minimize risk, it is recommended that the Local Plan Submission Draft be submitted and that an updated LDS be brought into effect to reflect the change in timescale.

223 10 8. Implications

8.1 Legal Implications - It is a legal requirement to have an up to date Local Plan in place and to keep it under review. The plan must meet ‘soundness’ tests set out in the National Planning Policy Framework, including the need to accommodate objectively assessed need for development. The Government has the right to intervene where there is not an up to date Local Plan and there is a lack of progress to put one in place. The Plan must also satisfy other legal requirements such as the ‘duty to cooperate’ with neighbouring authorities and other public bodies.

8.2 Community Impact Assessment (CIA) Implications

8.2.1 Social Value – The Local Plan will provide opportunities for new employment and housing for all areas of the community. Protection, enhancement and provision of green spaces is a key priority and goes to the heart of the physical and mental health and well-being of residents.

8.2.2 Sustainability and Environment - The Local Plan will determine the future need and pattern of development for St Helens Borough. This will include identifying land for housing and employment. It will also help to deliver much needed affordable and specialist housing. The Local Plan will ensure that important assets such as parks and open spaces, biodiversity and the historic environment are protected and enhanced. It will also assist in the delivery of the new plans for the town centres and encouraging green growth in the Borough.

8.2.3 Health and Wellbeing – The nature of the physical environment is known to have an impact on the health and well being of residents. Adoption of the Local Plan will drive a sustained and effective programme of regeneration across St Helens Borough. There is therefore significant potential to contribute to the health and well-being outcomes. Policy LPA11 ‘Health and Wellbeing’ sets out criteria to ensure that new development protects or enhances health and wellbeing. For example, this includes the provision of safe and attractive green spaces; designing out crime; providing opportunities for physical activity within new development; and controlling the location of hot food takeaways.

8.2.4 Equality and Human Rights - The CIA identifies that the Plan would bring a range of benefits to the community, for example by balancing the needs for new development with the need to preserve and enhance the environment. No adverse impacts on specific population groups, identified by reference to the protected characteristics set by the Equalities Act 2010 (for example race, disability, gender, age, sexual orientation, religion) have been identified. The Plan will also have specific benefits for some groups. For example, by allocating sites for use by gypsies and travellers the Plan will help to meet their specific needs. In addition, the policies concerning housing mix will ensure that some housing is designed or can be readily adapted to meet the needs of the less mobile and older age groups.

8.3 Customer and Residents – The plan will provide certainty as to how St Helens Borough will develop over the next 25 years. The plan will assist in the Council’s aims for economic growth by making land available for new development to provide a wider range of job opportunities and housing, including affordable housing and a wider housing mix.

8.4 Asset and Property – The Council has an ownership interest in all or part of 4 of the sites proposed for housing allocation in the ‘submission draft’ version of the Plan. The Plan will also, through its role as part of the statutory ‘development plan’, guide the future development and use of all Council-owned buildings and sites in the Borough.

224 10 8.5 Staffing and Human Resource - Appropriate human resources are required to take the local plan forward and to participate in the Examination in Public Hearings

8.6 Risks – The risks associated with the decision are as follows:

8.6.1 Risk of Government intervention - The Government requires that local plans must be reviewed as quickly as possible and that it will use statutory powers to intervene where Councils fail to make sufficient progress in this regard. This means that the Government could take over the process of preparing the Plan if it is not progressed sufficiently quickly. The Council would lose control of the process in such circumstances. It is important to progress the plan expediently to minimise any risk of intervention.

8.6.2 The need to provide certainty for local communities - Significant elements of the adopted development plan in St Helens are over 5 years old and/or are out of date. Progressing the local plan within an appropriate timescale is necessary to provide clarity to local communities and developers about where new homes and employment buildings should be located. This is so that development is planned rather than the result of speculative planning applications.

8.6.3 Reputational risk and volume of responses to public consultation – Consultation for the preferred options and submission versions of the plan has given rise to a considerable public response. The issue of Green Belt release, in particular, continues to be controversial. It is important that there is effective communication with the public and other stakeholders. This should ensure that people understand how they may engage with the remainder of the process leading up to adoption of the plan.

8.6.4 Changes to planning legislation and policy - The national planning policy situation (for example in relation to the method by which housing needs are calculated) remains changeable. It will be necessary to address any changes to national policy or legislation as the Plan moves through its remaining stages.

8.6.5 Changes to evidence base - Any further changes which take place to the evidence that underpins the Plan (for example in relation to housing or employment needs or land supply) will need to be taken into account as the Plan progresses. If the plan does not move forward, the evidence base will also become out of date and will need to be reviewed and updated. This may cause even further delay.

8.6.6 Infrastructure: The level of development proposed would generate extra demands on existing infrastructure (e.g. transport, schools, health services, utilities, green infrastructure and recreational facilities). There are also likely to be circumstances in which new infrastructure is required. Whilst substantial work has been undertaken to ensure that the delivery of the Plan proposals would be supported by suitable infrastructure, there will be a need for on-going engagement with infrastructure providers as the Plan is implemented to monitor progress in relation to this issue

8.7 Finance - The forthcoming stages of the Local Plan, particularly the examination in public, will require appropriate funding. Delegated Executive Decision 0034 2019/20 approved the necessary budgetary provision.

8.8 Policy Framework – Once adopted, the Local Plan will be the development plan for St Helens and will be a key element of the Council’s policy framework. The Plan will replace some elements of the current ‘development plan’, namely the St Helens Core Strategy 2012 and the ‘saved’ policies of the St Helens Unitary Development Plan 1998.

225 10 9. Background Papers

9.1 The following documents are relevant:

 St Helens Borough Local Plan 2020-2035 Submission Draft (2019)  St Helens Borough Local Plan Policies Map (2019)  St Helens Borough Local Plan 2020-2035 Submission Draft Sustainability Appraisal (2019)  St Helens Borough Local Plan 2020-2035 Preferred Options Report of Consultation (2018)  St Helens Borough Local Plan 2020-2035 Submission Draft Habitats Regulations Assessment (2018)  St Helens Borough Local Plan 2020-2035 Green Belt Review (2018)

10. Appendices

10.1 Appendix One Report to Cabinet 12th December/Council 19th December 2018 Appendix Two Proposed Development Scheme Appendix Three Suggested modifications

226 10

Cabinet 12 December 2018

KEY DECISION Yes DATE FIRST PUBLISHED 13 November 2018 ST HELENS LOCAL PLAN

WARDS AFFECTED

All

EXEMPT/CONFIDENTIAL ITEM

1. PROPOSED DECISION

1.1 It is recommended that Cabinet make the following recommendations to Council:

(1) approve the ‘submission draft’ version of the St Helens Borough Local Plan: 2020-2035 (the ‘Plan’ - see appendices 1 to 3 of this report);

(2) agree that the Plan be published with its supporting documents (referred to in paragraphs 3.1 to 3.12 of this report) in accordance with Regulation 19 of the Town and Country Planning (Local Planning) (England) Regulations 2012 (as amended);

(3) agree that the Plan and all relevant supporting documents be submitted, after the end of the publication period, to the Government in accordance with Regulation 22 of the Town and Country Planning (Local Planning) (England) Regulations 2012 (as amended);

(4) authorise the Strategic Director (Place Services) to make any necessary minor editorial changes to the Plan and supporting documents before they are published and/or submitted in accordance with recommendations (2) and (3) above, with any substantive changes to the Plan to be agreed in consultation with the Cabinet Member - Balanced Development, Housing and Economic Opportunity; and

(5) resolve to bring the St Helens Local Development Scheme 2018 (see paragraphs 3.11 and 3.12 of this report) into effect from 1 January 2019.

2. RATIONALE FOR THE DECISION

Context

227 10

2.1 National planning policy stresses the role of Local Plans in delivering a vision for the sustainable development and growth of local areas. Local Plans, due to their role as the statutory ‘development plan’ also play a crucial role in the determination of planning applications and in shaping the wider corporate priorities of the Council.

2.2 The existing ‘development plan’ for the Borough of St Helens consists of:

 the ‘saved’ policies of the St Helens Unitary Development Plan (‘UDP’) (1998);  the St Helens Core Strategy (2012);  the Bold Forest Park Area Action Plan (2017); and  the Merseyside and Halton Joint Waste Local Plan (2013).

2.3 The Council’s Cabinet resolved (at its meeting on 18 November 2015) to start the process of preparing a new Local Plan which would entirely replace the ‘saved’ UDP policies and the Core Strategy. The rationale for this decision included that these documents no longer fully reflected the changing requirements of national policy or the up-to-date evidence of needs for housing or employment development, for example the needs of the growing logistics sector.

The process of preparing the new St Helens Borough Local Plan

2.4 The steps which must be undertaken when preparing a new Local Plan are set out in the Town and Country Planning (Local Planning) (England) Regulations 2012 (as amended).

2.5 The Council carried out an initial consultation on the scope of the emerging new Local Plan in early 2016. It then, between November 2016 and January 2017, consulted on the St Helens Local Plan Preferred Options document (see paragraphs 2.14 to 2.22 below for further details).

2.6 The anticipated next steps (subject to the necessary approvals being obtained for this report and with indicative future timescales) are set out below:

1. publication of the Plan and all relevant supporting documents (Regulation 19) (January 2019);

2. period of 8 weeks within which individuals and organisations may submit any representations on the Plan and its supporting documents (January 2019 until early March 2019) (NB whilst the minimum statutory length of this period is 6 weeks it is recommended that an extended period of 8 weeks is given to ensure all parties have a good opportunity to input into the process);

3. submission of the Plan and its supporting documents to the Secretary of State (Regulation 22) (summer 2019);

228 10

4. independent examination by a Government Inspector (this is expected to start in summer 2019 when the Plan is submitted under step 3 and is likely to include extensive public hearings);

5. publication of the Inspectors Report (2020); and

6. adoption of the Plan by the Council (2020).

2.7 The steps and timescales set out above are on the basis that the process will run as currently expected. The detail of the steps to be undertaken may also vary. For example, if modifications are proposed to the Plan after it has been published, such modifications would themselves need to be subject to public consultation. This would normally occur during the examination process i.e. during step 4 above.

National legal and policy requirements

2.8 The new Local Plan must, before being adopted by the Council, be found to be legally compliant and ‘sound’ by the Government Inspector following its independent examination.

2.9 The Inspector will assess the Plan against the ‘soundness’ tests and related requirements set out in the National Planning Policy Framework (NPPF). The NPPF was first introduced in 2012 and substantially revised in July 2018. It requires the Plan to be:

 positively prepared (with regard to evidenced development needs);  justified;  effective; and  consistent with national policy.

2.10 National policy (for example in the Housing White Paper 2017) also urges that local plans are prepared promptly. The Town and Country Planning (Local Planning) (England) (Amendment) Regulations 2017 require the Council to review its adopted local plans no more than 5 years following their adoption.

The ‘duty to cooperate’ with other public bodies

2.11 Section 33A of the Planning and Compulsory Purchase Act 2004 requires the Council to co-operate with other public bodies in relation to strategic matters addressed in the Local Plan, such as housing, employment and infrastructure needs. ‘Other public bodies’ in this context include: the Liverpool City Region Combined Authority; neighbouring local authorities; and various other statutory bodies. Council officers have undertaken extensive work in relation to this duty building upon existing well-established joint working arrangements. This work has included for example the commissioning of joint evidence concerning housing and employment needs and land supply across the Liverpool City Region (see paragraphs 2.30 to 2.39 of this report).

229 10

2.12 The revisions to the NPPF introduced in July 2018, indicate that the Council should publish at least one Statement of Common Ground (SOCG), agreed with relevant neighbouring authorities and/or other public bodies before publishing its Local Plan. The role of SOCGs is to document evidence of cross-boundary matters being addressed in the Plan and current progress in considering these. Officers are currently working to finalise an SOCG between St Helens and Warrington, reflecting for example the strong housing market inter-action between the two authorities and site specific matters (e.g. Parkside and Omega extension). An SOCG is also being prepared for the Liverpool City Region (including West Lancashire).

2.13 Whilst these SOCG documents have yet to be finalised and formally approved by the relevant neighbouring authorities and other bodies, it is considered reasonable (given the strong evidence of joint working that can be demonstrated and that the specific requirements concerning SOCGs are still fairly new) to maintain progress on the Plan pending their finalisation.

Consultation on the Preferred Options (November 2016/January 2017)

2.14 The St Helens Local Plan Preferred Options document 2016 set out a draft strategy including a vision, 7 strategic aims (supported by 14 strategic objectives) and 40 draft policies. Its approach included (amongst other things):

 delivery of 10,830 dwellings from 1 April 2014 until 31 March 2033 at an average of 570 dwelling completions per year;  delivery of 306.9 hectares of employment land up to 2038;  support for the regeneration of St Helens and Earlestown town centres and other smaller centres in the Borough; and  a wide range of other policies covering (for example): the spatial strategy; transport; infrastructure funding; green infrastructure; housing mix (including affordable housing); biodiversity; and various other matters.

2.15 The Preferred Options document aimed to continue the Council’s longstanding commitment to securing regeneration of sites (including ‘brownfield’ sites) in existing urban areas. However, to fully meet housing and employment development needs it also proposed to remove 25 sites from the Green Belt to meet development needs before 2033 (16 of which were for housing; 9 for employment) and a further 26 sites to be removed from the Green Belt but ‘safeguarded’ to meet potential longer term needs (mostly for housing) after 2033.

2.16 Notwithstanding these proposals, most of the Borough’s land area (about 56%) was proposed to remain as Green Belt. About 65% of the Borough currently has this designation (the highest proportion of any district on Merseyside).

2.17 An extensive consultation exercise took place on the Preferred Options document (together with supporting evidence documents) over 8 weeks between 5 December 2016 and 30 January 2017. A total of 5,695 responses were received, of which:

230 10

 5,565 responses were predominantly from the general public; and.  130 responses were received from: statutory bodies; neighbouring authorities; parish councils; landowners and planning agents/site promoters; and from issue-specific stakeholder groups.

2.18 In considering the consultation responses it is important to stress that the Council must consider the issues raised in the context of relevant evidence and the legal and national policy tests referred to earlier.

2.19 The responses to the Preferred Options consultation raised a large variety of points. The St Helens Local Plan Preferred Options: Report of Consultation (attached as appendix 4 to this report) sets out:

 which bodies and persons were invited to make representations;  how those bodies and persons were invited to make such representations;  a summary of the main issues raised by those representations; and  how those main issues have been addressed in the Plan.

2.20 The Report of Consultation addresses the points raised by respondents according to which part of the Preferred Options document they refer to. The points raised fall under the following broad categories:  broad strategic issues including: the general principle of releasing Green Belt to meet development needs; housing; the economy and employment; physical infrastructure; social infrastructure; the built and natural environment; and social and health issues;  Area specific issues relating to: Rainford and Crank; Newton-le-Willows; Eccleston; Billinge and Seneley Green (including Garswood); Haydock; Rainhill; Windle; Bold (including Sutton Manor and Clock Face); Moss Bank; Thatto Heath; West Park; Blackbrook; Sutton; Parr; St. Helens Town Centre; and Earlestown;  Issues concerning individual Plan policies; and  the quality of the Local Plan consultation process.

2.21 Members are advised to view the Report of Consultation for details of the consultation responses. Of the 5,565 responses from the general public, 4,910 respondents gave an address in St Helens Borough. A substantial proportion of the responses related to the issue of Green Belt release. The number of respondents from each part of the Borough (according to the addresses given on the responses, which do not necessarily correspond with ward boundaries) is set out in Appendix 5 to this report.

2.22 To complete the ‘submission draft’ version of the Plan (see paragraphs 2.23 to 2.78 below), officers have carefully weighed the issues raised in response to the consultation (summarised in the Report of Consultation) alongside updated evidence and the changing requirements of Government policy, including the new NPPF published in July 2018.

231 10

The ‘submission draft’ version of the Plan

2.23 Approval is now sought for the ‘submission draft’ version of the Local Plan to be published under the Regulations. The Plan (see appendices 1 to 3 of this report) comprises a written statement and Policies Map (showing proposed site allocations for development and other land use designations). A wide range of supporting documents have also been produced which provide evidence (see section 3 of this report). The following paragraphs summarise key elements of the Plan and how these respond to key issues, including those raised in the Preferred Options consultation.

Plan period

2.24 The revised NPPF (July 2018) requires the Plan to look ahead for at least 15 years from its adoption. For this reason, and as the Plan is now expected to be adopted in 2020, the Plan period extends to 2035 (and not 2033 as previously proposed).

Vision and objectives

2.25 Chapters 1 and 2 set out the role and structure of the Local Plan and key issues, opportunities and challenges facing the Borough. Chapter 3 sets out a vision which describes the type of place that St Helens and its settlements should be at the end of the Plan period (in 2035). Compared to the version consulted upon at Preferred Options stage the vision has been revised to stress the need for a balanced and inclusive approach to regeneration and growth. It also places further emphasis on protecting and enhancing the built heritage and environment of the Borough.

2.26 Chapter 3 also sets out 7 strategic aims and 17 objectives. The aims are as follows:

 Supporting Regeneration and Balanced Growth  Ensuring Quality Development  Promoting Sustainable Transport  Meeting Housing Needs  Ensuring a Strong and Sustainable Economy  Safeguarding and Enhancing Quality of Life  Meeting Resource and Infrastructure Needs.

Spatial strategy and core development principles

2.27 Policy LPA01 of the draft Plan (in line with advice in the NPPF) sets out how the Council will work proactively to secure development that improves the economic, social and environmental conditions in the Borough.

2.28 Policy LPA02 sets out the spatial strategy. This includes (in summary):

 New development to be delivered in sufficient quantities to meet needs and to be distributed in a range of locations across the Borough (appropriate to

232 10

its scale and nature) and which will provide good levels of accessibility between homes, jobs and key services via sustainable modes of transport;  Urban regeneration and the re-use of previously developed (brownfield) land in Key Settlements will remain priorities;  The proportion of housing and employment development needs up to 2035 which cannot be met by developing land in urban areas is to be met by removing selected sites from the Green Belt;  To comply with national Green Belt policy when the Green Belt is being reviewed, some other sites are to be removed from the Green Belt and ‘safeguarded’ to meet potential development needs after 2035; and  Various other provisions linking to other aspects of the Plan.

2.29 Policy LPA03 ‘Core Principles’ requires new development to (in summary): meet the challenges of population growth; improve economic wellbeing; contribute to inclusive communities; contribute to a high quality environment; minimise the need to travel and maximise use of sustainable transport; and minimise St Helens carbon footprint.

Employment development needs and land supply

2.30 Policy LPA04 ‘A strong and sustainable economy’ identifies that at least 215.4 hectares of land should be developed for employment uses in St Helens between 2018 and 2035. This is based on evidence including the St Helens Employment Land Needs Assessment update 2018 and development completions data. The proposed approach will also help meet employment land needs across the City Region and West Lancashire as a whole, as identified in the draft Liverpool City Region Strategic Housing and Employment Land Assessment (SHELMA) 2017.

2.31 The Plan will address an identified shortage of large sites, suitable for the needs of the growing logistics sector and the clear evidence of market demand in the Borough e.g. related to the opportunity at Parkside and recent planning permissions at Florida Farm North and Penny Lane (Haydock). It also takes into account the need for flexibility and choice in site supply and the strategic location of St Helens in relation to the motorway and rail networks.

2.32 To meet the needs identified above the draft Plan (Policy LPA04) proposes to allocate 11 sites for employment development before 2035. These are listed below:

 Site 1EA - Omega South Western Extension;  Sites 2EA, 5EA and 6EA - 3 sites to the west of Haydock Industrial estate (the largest of which is Florida Farm North);  Sites 3EA and 4EA - 2 sites to the north and south of Penny Lane (east of Haydock Industrial Estate);  Sites 7EA and 8EA - 2 sites at Parkside (East and West of the M6);  Site 9EA - Sandwash Close (Rainford);  Site 10EA - Land at Lea Green Farm West, Thatto Heath; and  Site 11EA - Gerards Park (College Street, St Helens).

233 10

2.33 The largest of the proposed site allocations for employment development are at Parkside West and Parkside East. These sites are capable of providing transformational employment opportunities that will make a major contribution to the economic development of St. Helens, the Liverpool City Region and beyond. Parkside West is identified as being suitable for ‘general industrial’ or ‘warehousing and distribution’ uses. Parkside East would be subject to its own policy (LPA10). This establishes firstly that the site is suitable for use as a Strategic Rail Freight Interchange or for other rail enabled employment uses. It also indicates that (to ensure a suitably flexible approach to the delivery of the site) part of it could be developed for non-rail enabled employment uses, provided that at least 60 hectares of the site is reserved for the provision of infrastructure to link to the rail system. This approach is justified by the unique combination of locational advantages of this site, including its ready accessibility to both the West Coast and east-west (‘Chat Moss’) rail lines and to the motorway system.

2.34 Of the sites allocated for employment (see paragraph 2.32), all but the last 3 would be released from current designation as Green Belt. This is justified because of the limited land supply (particularly for large employment sites with good access to transport routes) which exists in urban areas in St Helens and in nearby districts and the opportunity provided at Parkside.

2.35 The land at Omega South Western Extension (site 1EA) has been identified, following discussions with Warrington Council officers carried out under the ‘duty to cooperate’, as being allocated to help meet the employment land needs of Warrington (rather than St Helens). This is due to its location immediately next to, and with its access to be provided through, the existing Omega employment area in Warrington.

2.36 A key change compared to the previous Preferred Options consultation proposals relates to land north east of junction 23 of the M6. Whereas the Preferred Options document proposed that this site be allocated for employment development before 2033, it is now proposed that it be removed from the Green Belt but safeguarded to meet potential employment needs after 2035. This change of approach will have the benefit of avoiding narrowing down the options for the development of a scheme to improve junction 23 of the M6. The significant improvement of this junction is identified as a key infrastructure priority within the Plan, which would bring substantial benefits to the Borough and the wider transport network.

2.37 The need for this new approach is also evidenced by the St Helens Council Transport Impact Assessment 2018. This confirms that junction 23 currently experiences queues and delays during peak periods and that this situation is likely to substantially worsen as the Plan period progresses without effective mitigation being undertaken. It is also not considered essential for the land north east of junction 23 to be developed before 2035 to meet evidenced needs for employment development within that period.

2.38 Several of the sites are (due to their size) designated as ‘Strategic Employment Sites’ by Policy LPA04.1, the development of which will need to meet specified requirements and be informed by a single master plan for each site. The

234 10

development of all the sites would also be subject to consideration of infrastructure impacts at the time of any planning application.

2.39 Policy LPA04 sets out other measures to promote employment including (in summary):

 protecting existing sites and premises from proposals for other uses except where (for example) they are no longer suitable for employment uses;  supporting the re-use and reconfiguration of employment areas and the recycling of land within them for employment use;  supporting diversification of the rural economy; and  supporting (subject to specified criteria) the enhancement and expansion of tourism resources and facilities; and encouraging use of local suppliers and training opportunities.

The Objectively Assessed Need (OAN) for new housing

2.40 A central aim of national planning policy is to boost significantly the supply of housing. Local Plans must:

 identify the scale and mix of housing which is likely to be needed over the Plan period;  identify a sufficient supply and mix of sites to meet needs, taking account of their availability, suitability and likely economic viability for development; and  ensure that a 5 year ‘deliverable’ supply (taking account of factors such as viability, landowner intentions and potential slippage whilst necessary infrastructure is provided) can be provided at all times.

2.41 The revised NPPF (July 2018) requires the Plan to be informed by a nationally set standard method for calculating the Objectively Assessed Needs (OAN) for housing. The figure obtained using the method is to be treated as a minimum unless exceptional circumstances can be demonstrated. The method uses (as its starting point) the projected average household growth (as set out in projections published every 2 years by the Office of National Statistics), to which it applies an ‘uplift’ to account for affordability issues to derive an annual housing need figure for the local authority. This can then be extended to cover the period covered by the Plan

2.42 The 2016 based sub-national household projections published in September 2018 showed a rate of household growth across the country (including in St Helens) which was substantially lower than the rate shown in the previous (2014 based) projections. In response, the Government has issued a consultation document confirming that the 2014 based (and not the 2016 based) projections should be used for the purposes of applying the standard method. Applying the standard method in this way would result in a minimum annual housing need figure for St Helens of 468 new dwellings per annum.

235 10

2.43 However, a key disadvantage of relying on the figure of 468 new dwellings per annum for the Local Plan is that it makes no allowance for increased housing need that is likely to result from accelerated employment growth associated with the development of employment sites allocated in the Plan. In addition the figure does not make any allowance for the risk that affordability data to be published in spring 2019 would, if it continues the long term trend, see a decline in affordability and therefore an increase in the amount of housing required under the standard method.

2.44 For these reasons, the figure of 468 new dwellings per annum is considered to under-estimate housing need.

2.45 The St Helens Strategic Housing Market Assessment (SHMA) Update 2018 assessed different scenarios to identify the realistic level of housing which is likely to be required, taking account of the impact that development of the employment sites proposed to be allocated within the Plan would have on the housing market. Having regard to this evidence, Policy LPA05 ‘Meeting St Helens Housing Needs’ identifies a minimum average housing need figure of 486 net dwelling completions per year (between 2016 and 2035). This equates to a total of 9,234 dwellings within this period.

2.46 The figure of 486 dwellings per annum is substantially less than the figure of 570 dwellings per annum in the Preferred Options consultation document. This reduction is justified by the change of circumstances which has occurred since 2016, including the introduction of the national standard method, the new NPPF and related planning guidance, and the SHMA Update 2018. Whilst (for reasons stated above) it is not appropriate to rely on the standard method output of 468 dwellings per annum, there is now no robust evidential basis to continue with a figure as high as 570 dwellings per annum.

Housing land supply

2.47 In identifying sites, substantial priority has been given to sites within the existing urban areas. However, there remains insufficient capacity within the existing urban areas to meet needs, particularly when the challenging viability of developing some urban sites is taken into account due to factors such as ground conditions. In accordance with the NPPF, the supply also allows for the fact that slippage in delivery of development is likely to occur on some sites. For these reasons several sites – albeit a reduced number compared to those proposed at Preferred Options stage - are proposed to be removed from the Green Belt to meet housing needs.

2.48 The sites to be removed from the Green Belt would, it is estimated, be capable of providing 2,056 dwelling completions before 2035. This would represent 22% of the total of 9,234 dwellings needed between 2016 and 2035 (see paragraph 2.46 above). The remainder of the needs during this period would be met from various sources within the existing urban areas (such as completions from 1 April 2016 until 31 March 2018, extant planning permissions as at 1 April 2018 and other sites identified in the St Helens Strategic Housing Land Availability Assessment).

236 10

2.49 The largest site proposed for removal from the Green Belt to accommodate new housing is at Bold urban extension. This site represents a major growth opportunity, able to accommodate over 2,900 dwellings (with most of these being delivered after 2035). It has the potential to become an attractive new suburb complementing the ‘town in the forest’ principles of the Bold Forest Park Action Plan. Due to the size of the site and number of different land owners involved it is proposed that the Council should lead the preparation of a formal master plan, to be ultimately adopted as a Supplementary Planning Document, to guide its development.

2.50 The full list of sites to be allocated for housing development before 2035 is set out below with estimated capacities. In addition to the sites listed, smaller urban sites will continue to form an important part of the supply. It should also be noted that (since the Preferred Options stage) the assumed density of development on some sites has been increased, to provide for a more efficient use of land in line with the revised NPPF (July 2018).

Site name Potential Potential dwelling dwelling completions – completions – before 31.3.2035 after 31.3.2035 Site allocations from within the current urban area Former Penlake Industrial Estate 337 - Land north of Elton Head Road, 350 - Sutton Heath Moss Nook Urban Village, Watery 800 - Lane, Moss Nook Land east of City Road, Cowley 540 276 Hill Site allocations on land removed from the Green Belt Land South of Billinge Road, 216 - Garswood Bold Forest Garden Suburb 480 2,508 Land South of Gartons Lane, Bold 520 49 Land at Florida Farm (south of 400 122 A580), Slag Lane, Blackbrook Former Red Bank Community 181 - Home, Winwick Road, Newton-le- Willows Land South of Higher Lane and 259 - east of Rookery Lane, Rainford

Sites proposed to be removed from the Green Belt and ‘safeguarded’ to meet development needs after 2035

237 10

2.51 The NPPF requires that, when local authorities are undertaking a Green Belt Review, they must ensure that areas of safeguarded land are identified between the urban area and the new Green Belt boundary, to meet longer term development needs stretching ‘…well beyond the Plan period’. Safeguarded land is not allocated for development and planning permission for its permanent development should only be granted following a future Local Plan review.

2.52 To address these requirements, the Plan safeguards the following sites for potential future employment development after 2035:

 Omega North Western Extension, Bold (29.98 hectares); and  Land north east of junction 23 M6, south of Haydock racecourse, Haydock (55.9 hectares).

2.53 The following sites would be safeguarded for potential housing development after 2035 (the site capacities are indicative only):

 Land North of Billinge Road, Garswood (ca 283 dwellings)  Land between Vista Road and Belvedere Road, Earlestown (ca 178 dwellings)  Eccleston Park Golf Club, Rainhill Road, Eccleston (ca 956 dwellings)  Land east of Newlands Grange, Newton-le-Willows (ca 256 dwellings)  Land west of Winwick Road, Newton-le-Willows (ca 191 dwellings)  Land East of Chapel Lane, Sutton Manor (ca 113 dwellings)  Land south of Elton Head Road, Thatto Heath (ca 84 dwellings)  Land south of A580 between Houghtons Lane and Crantock Grove, Windle (ca 1,027 dwellings).

Summary of changes made to the proposed development requirements and site allocations since the ‘Preferred Options’ stage

2.54 Key changes made to the proposed development requirements and site allocations since the Preferred Options consultation can be summarised as follows:

 the annual minimum housing requirement has reduced from 570 to 486 dwellings per annum;  the employment site to the north east of the M6 junction 23 has been moved back from being an allocated site (for development before 2035) to be safeguarded for potential development after 2035;  there is now a clearer focus on specific growth locations (e.g. the Bold urban extension);  the assumed density of development on some housing sites has been increased;  the overall amount of Green Belt to be lost has been substantially reduced;  the number of sites to be removed from the Green Belt has been substantially reduced (see appendix 6 of this report for site specific details);

238 10

 some housing sites have been moved from being allocated for development before 2035 to being safeguarded for potential development after 2035; and  the Plan proposals have been refined to take account of updated evidence of infrastructure issues.

Transport

2.55 Policy LPA07 ‘Transport and Travel’ promotes the use of sustainable forms of transport (such as walking, cycling and public transport) and requires new development to include suitable provision for vehicle charging points. It also identifies the need to improve linkages between areas of high deprivation and areas of employment growth, the need to secure improved motorway capacity and infrastructure (particularly at the M6 Junction 23 and M62 Junction 7) and new rail infrastructure such as a new station at Carr Mill.

Developer contributions and infrastructure

2.56 Policy LPA08 ‘Developer Contributions’ confirms that (subject to compliance with relevant legislation) development proposals will be expected to contribute to the provision, enhancement or replacement of infrastructure to meet needs arising from the proposal. In this context, infrastructure can include:

 Physical infrastructure such as roads, railways, sewers and water supplies;  Social infrastructure, such as education and health establishments, neighbourhood retail or leisure uses, built sports and recreation facilities, cultural, emergency service and community facilities and institutions;  ‘Green Infrastructure’, such as parks and playing fields; and  ‘Digital infrastructure’, such as telephone and internet facilities.

2.57 Policy LPA08 also recognises the need to be realistic when asking developers to fund infrastructure particularly given the challenging levels of viability on some sites. To address this it sets out the following hierarchy to be used in such circumstances:

1. top priority will be given to contributions which are essential for public safety (for example essential highway works or flood risk mitigation); 2. second priority will be given to contributions to provide affordable housing or to address local infrastructure deficiencies (e.g. in schools or open spaces); and 3. third priority will be given to other contributions which do not fall into these categories.

2.58 The requirements on developers set by Policy LPA08 would (depending on the nature of specific cases) be primarily delivered via agreements entered into under Section 106 of the Planning Act or planning conditions. Both of these mechanisms are subject to limitations. For example, Section 106 obligations must meet the statutory tests of being: necessary to make the development acceptable in planning terms; directly related to the development; and fairly and

239 10

reasonably related in scale and kind to the development. Nevertheless, it is likely that in some cases infrastructure provided within the scope of the policy and of the legal limitations would also deliver wider benefits, for example where a new development triggers a need for a new or improved item of infrastructure which would be available for use by the wider community.

Green Infrastructure

2.59 Policy LPA09: ‘Green Infrastructure’ aims to strengthen and enhance the Borough’s network of urban and rural green spaces, to encourage their use for sport, recreation, and as ‘green lungs’, walking and cycling routes.

2.60 Policy LPC06 ‘Biodiversity and Geological Conservation’ sets out protection for: supporting habitats for European nature conservation sites in the wider City Region; Sites of Special Scientific Interest; Local Wildlife Sites and Priority Habitats. Reference is made to current work to address cumulative effects of development within the Liverpool City Region (due to recreational pressure) on the European-designated wildlife sites in the Mersey Estuary and coast.

2.61 Policy LPC07 ‘Greenways’ requires that greenways will be protected and where possible enhanced. Policy LPC08 ‘Ecological Network’ establishes that the Council will, working where necessary with other organisations, seek to strengthen the role of wildlife corridors and ‘stepping stone’ habitats. It also supports the role of the Liverpool City Region Nature Improvement Area which includes parts of St Helens such as the Sankey Valley and in the Bold area.

2.62 Policy LPC09 ‘Landscape Protection and Enhancement’ requires development as appropriate to conserve, maintain, enhance and/or restore landscape features. Policy LPC10 ‘Trees and Woodland’ sets out measures to increase the tree cover across the Borough and to protect and enhance trees, woodlands and hedgerows. It establishes that where any tree is justifiably lost as a result of new development its replacement will normally be required on at least a 2 for 1 ratio.

Health and wellbeing

2.63 Policy LPA11 ‘Health and Wellbeing’ sets out criteria to ensure that new development protects or enhances health and wellbeing. These include for example the provision of safe and attractive green spaces; designing out crime; providing opportunities for physical activity within new development; and controlling the location of hot food takeaways.

Housing mix and affordable housing

2.64 Policy LPC01 ‘Housing Mix’ requires new housing to include a range of types, tenures and sizes of homes to meet the needs of different population groups. It requires that at least 20% of new dwellings on greenfield sites (of more than 25 dwellings) should (subject to viability) be designed to the ‘accessible and adaptable’ standard set out in Building Regulations, and that at least 5% should be ‘wheelchair accessible’. These requirements (together with a requirement for 5% of new dwellings on such sites to be bungalows) respond to the needs of the Borough’s expanding population of elderly people.

240 10

2.65 Policy LPC01 also sets out controls over proposals for homes in multiple occupation including the need to maintain an adequate mix of different types of housing in the area, provide adequate car parking and protect the amenity of nearby occupiers.

2.66 Policy LPC02 ‘Affordable Housing Provision’ sets targets for the provision of affordable housing within proposals for new open market housing of 11 units or more. In summary:

 at least 30% of new dwellings on greenfield sites in all parts of the Borough apart from those with the lowest viability (the town centre and Parr) must be ‘affordable’; and  at least 10% of new dwellings on brownfield sites in the areas with highest development viability (Eccleston, Rainford and Rainhill) must be ‘affordable’ (these areas are therefore the areas where the highest overall proportion of affordable housing will be sought).

2.67 These targets are subject to consideration of viability in individual cases. In response to the revised NPPF (July 2018) the policy requires that where affordable housing is required at least 10% of the overall number of homes to be provided on the site should be available for affordable home ownership (as opposed to social or affordable rented units).

Retail and town centres

2.68 Policy LPC04 ‘Retail and Town Centres’ identifies a hierarchy of town, district and local centres in the Borough. It also guides proposals for retail, leisure and other main town centre uses towards these centres with a particular focus on St Helens (as the principal town centre) and Earlestown (serving the town of Newton-le-Willows and surrounding areas). In accordance with national policy, proposals for ‘town centre’ uses outside existing centres must demonstrate that any need cannot be more suitably met within or on the edge of an existing centre and that they would not cause substantial harm to any existing centre.

2.69 Policy LPB01 St Helens Town Centre and Central Spatial Area’ encourages new development which will help deliver the Council’s town centre strategy. It also identifies the primary shopping area and scope for future retail, leisure and cultural development in the ‘area of opportunity’ on the southern side of the town centre. In line with national planning guidance, the Policy aims to enable a diverse range of suitable uses within the town centre and immediately surrounding area and also encourages the provision of improved linkages with Ravenhead Retail Park, the Saints Stadium and other key facilities.

2.70 Policy LPB02 ‘Earlestown town centre’ promotes Earlestown (within the town of Newton-le-Willows) as the second town centre in the Borough and supports the delivery of a Council-led strategy to guide its future regeneration and development.

Gypsies and Travellers

241 10

2.71 National planning policy requires the Plan to effectively address the accommodation needs of gypsies and travellers. Policy LPC03 ‘Gypsies, Travellers and Travelling Show People’ therefore allocates 2 sites off Sherdley Road. One of these (with an indicative capacity of 8 pitches) would provide permanent pitches and the other (with an indicative capacity of 3 pitches) would provide for transit (limited length of stay) needs. These sites have been identified for these uses for a substantial period of time and were included in the Preferred Options document.

2.72 This Policy also sets out criteria against which to assess any applications for development of gypsy and traveller facilities.

Historic Environment

2.73 The Local Plan vision recognises and values the Borough’s unique heritage, focused on the glass, rail, and coal mining industries. Policy LPC11 Historic Environment confirms that the Council will promote the conservation and enhancement of heritage assets (such as Listed Buildings and Conservation Areas) and their settings.

Flood risk

2.74 Policy LPC12: ‘Flood Risk and Water Management’ confirms that new development that may cause unacceptable flood risk on the site or elsewhere will not be allowed. The Policy also sets out measures for example to address water quality issues and to help deliver ‘slow the flow’ initiatives set out in the Sankey Valley Catchment Plan (approved by Cabinet on 20 June 2018).

Renewable and low carbon development

2.75 Policy LPC13 ‘Renewable and Low Carbon Energy Development’ sets out criteria against which to assess proposals for low carbon or renewable energy (such as wind farms or solar farms). It encourages new development to use energy efficiently and where feasible incorporate renewable and low carbon energy generation.

Minerals and waste

2.76 Policy LPC14 ‘Minerals’ establishes (in accordance with national policy) that the Borough will contribute where practicable to meeting sub-regional needs for mineral production and processing. It also sets out environmental and other criteria against which to assess proposals for the exploration, extraction, storage, processing and/or distribution of minerals. Proposals for the development of oil and gas resources (including coal bed methane, coal mine methane, shale gas and oil) will be required to demonstrate the highest levels of environmental, health and social protection and benefit consistent with prevailing national policy and regulation.

2.77 Policy LPC15 ‘Waste’ promotes the sustainable management of waste and links to the more detailed requirements set out in the Merseyside and Halton Joint Waste Local Plan 2013 (or any document which may supersede this).

242 10

Other development management policies

2.78 Policies LPD01 to LPD10 (inclusive) set out further criteria covering (for example): design quality; open space requirements; householder developments; barn conversions; digital communications (e.g. mobile telephone antennae); advertisements; air quality; and hot food takeaways. The provisions of the Plan also address other forms of pollution such as noise.

3. FACTS SUPPORTING THE PROPOSED DECISION

3.1 The Local Plan is based upon a comprehensive evidence base, including many documents which were made available at ‘Preferred Options’ stage in 2016 and others which have been progressed subsequently. Subject to approval of this report, all the documents listed below must be made available for the public to view and comment on, along with any other relevant documents, when the Plan itself is published under Regulation 19 of the Town and Country Planning (Local Planning) (England) Regulations 2012.

St Helens Green Belt Review 2018

3.2 This document replaces an earlier draft Green Belt review published with the Preferred Options. It provides a robust justification for the selection of sites to be removed from the Green Belt to meet needs for housing and employment development.

Sustainability Appraisal

3.3 The sustainability appraisal considers the effects of the emerging Plan against a range of economic, social and environmental issues. It also incorporates a Strategic Environmental Assessment, which is a legal requirement and which assesses the impacts of the Plan on the environment, the alternative options which have been assessed in finalising the Plan, and the measures which have been taken to mitigate the impacts.

Habitats Regulations Assessment (HRA)

3.4 The Habitats Regulation Assessment process is also a legal requirement and assesses the impacts of the Plan on biodiversity interests including designated European conservation sites in nearby districts and their supporting habitat. The Plan has been revised in response to the HRA process for example to address cumulative visitor pressure on the coastal European conservation sites, and to control air quality impacts on Manchester Mosses Special Area of Conservation (SAC).

St Helens Employment Land Needs Assessment

243 10

3.5 The St. Helens Employment Land Needs Study 2015 is available to view on the Council’s website. An update to this evidence provides an up-to-date assessment of employment land needs in St Helens and an estimate of potential job generation within the sites allocated for employment development.

St Helens Strategic Housing Market Assessment

3.6 The Mid Mersey Strategic Housing Market Assessment 2016 is available to view on the Council website. An update to this evidence revises the assessment of housing needs in the Borough and examines different scenarios concerning the overall number of new dwellings required, the levels of affordable housing required and the mix of different types and tenures which are required.

St Helens Retail and Leisure Study 2018

3.7 This document assesses the needs for new retail development and other forms of town centre development. It also provides a health check of each of the Borough’s town, district and local centres.

St Helens Local Plan Transport Impact Assessment 2018

3.8 The Transport Impact Assessment assesses the impacts of the site allocations which were proposed at Preferred Options stage on the road network, and in relation to sustainable transport modes (walking, cycling and public transport). Its findings have been used to inform the site allocations and policies of the Plan.

St Helens Local Plan Economic Viability Assessment

3.9 The Economic Viability Assessment considers the impacts of the Plan policies on development viability and the viability of the proposed site allocations. Its findings have been used to ensure that the Plan is effective having regard to these issues.

St Helens Infrastructure Delivery Plan (IDP) 2018

3.10 The IDP identifies key infrastructure implications arising from the Plan proposals and sets out a delivery schedule which identifies (as far as possible at this stage) when key infrastructure items may be delivered. The Infrastructure Delivery Plan is attached as appendix 7 to this report.

Revised St Helens Local Development Scheme (LDS) 2018

3.11 The Planning and Compulsory Purchase Act 2004 requires the Council to prepare and maintain a ‘Local Development Scheme’ (LDS). The LDS must set out: which development plan documents the Council intends to prepare; their subject matter; their geographical coverage; and the timetable for their preparation and revision. The Council’s existing LDS was agreed by Cabinet on 18 November 2015 and covers a period of 3 years. A revised LDS has been prepared (see appendix 8 of this report). This formally sets out the revised timetable for preparation of the new Local Plan summarised in paragraph 2.6 of this report. Whilst there has been some delay in timescales this has enabled the

244 10

Plan to respond to the new NPPF (published in July 2018) and the changing requirements concerning housing need (see paragraphs 2.40 to 2.46 of this report).

3.12 In accordance with the Planning and Compulsory Purchase Act 2004, recommendation 5 of this report seeks approval to bring the revised LDS into effect and states a date from which the new LDS is to be effective (1 January 2019).

4. IMPLICATIONS/RELEVANCE TO MEETING SAVINGS TARGETS/ PLANNING FOR 2020

4.1 The Local Plan has the potential, once adopted, to have significant positive impacts on a number of corporate priorities including planning for 2020. These specific benefits include the potential to:

 support the continued balanced growth of the Borough, both in the short- term and long-term;  enable the delivery of higher levels of economic growth than currently supported under the existing Core Strategy;  create more job opportunities to bring more people of working age back into employment or offer greater choice to the existing workforce, thus reducing the need to travel out of the Borough for work and reduce dependency on benefits;  improve physical and mental health and wellbeing, for example by enabling greater levels of access to suitable housing and job opportunities and improvements in the quality of greenspace;  increase access to affordable housing and specialist housing;  encourage inward investment by providing increased certainty to developers and occupiers of sites;  enable investment in suitable infrastructure linked to the delivery of new development; and  accelerate income to the community and the Council, due to an increase in the supply of sites available for development, which in turn can generate increased New Homes Bonus, Council Tax, and Business Rates.

5. RISKS

5.1 Risks Associated with the Proposed Decision

The following risks have been identified as being associated with the Proposed Decision:

5.2 Risk of Government intervention: The Government has confirmed (for example in a Written Statement made by the Secretary of State for Communities and Local Government to the House of Commons on 16 November 2017) that local plans must be reviewed as quickly as possible and that it will use statutory powers to intervene where Councils fail to make sufficient progress in this regard. This means that the Government could take over the process of preparing the Plan if it

245 10

is not progressed sufficiently quickly. The Council would lose control of the process in such circumstances. It is therefore important to progress the Plan expediently to minimise any risk of intervention.

5.3 Statements of Common Ground with other public bodies: As stated in paragraph 2.12 of this report, the Council has worked extensively on an on-going basis with neighbouring local authorities and other public bodies in compliance with the ‘duty to cooperate’. The revised National Planning Policy Framework (July 2018) introduces a new requirement that plan-making authorities should prepare and maintain one or more Statements of Common Ground documenting the cross- boundary matters being addressed and progress in cooperating to address these. Progress has been made to prepare two Statements of Common Ground affecting St Helens, one covering the Liverpool City Region and one covering cross boundary issues with Warrington. However, these documents remain in draft form at present and it is important (to comply with the NPPF) that progress is maintained to finalise at least one Statement of Common Ground early in 2019.

5.4 The need to provide certainty for local communities - Significant elements of the adopted ‘development plan’ in St Helens are over 5 years old and/or are out of date. The preparation of the Local Plan within an appropriate timescale is therefore necessary to provide clarity to local communities and developers about where new homes and employment buildings should be located, so that development is planned rather than the result of speculative planning applications.

5.5 Reputational Risk and volume of responses to public consultation: The Preferred Options consultation gave rise to a considerable public response and it is anticipated that the next stages could also be contentious. The issue of Green Belt release in particular continues to be controversial and the proposed approach, whilst reducing the level of Green Belt release compared to the proposals in the Preferred Options document, is likely to be met by continued opposition and lobbying against the Plan. It is therefore important that there is effective communication with the public and other stakeholders. This should: set out how the Council has considered the consultation feedback received from earlier stages; ensure that people effectively understand the Plan (including the reasons for the revisions that have been made); and ensure that people understand how they may engage with the remainder of the process leading up to adoption of the Plan.

5.6 Changes to planning legislation and policy: The national planning policy situation (for example in relation to the method by which housing needs are calculated) remains changeable. It will be necessary to address any changes to national policy or legislation as the Plan moves through its remaining stages.

5.7 Changes to evidence base: Any further changes which take place to the evidence which underpins the Plan (for example in relation to housing or employment needs or land supply) will need to be taken into account as the Plan progresses.

5.8 Infrastructure: The level of development proposed would generate extra demands on existing infrastructure (e.g. transport, schools, health services,

246 10

utilities, green infrastructure and recreational facilities). There are also likely to be circumstances in which new infrastructure is required. Whilst substantial work has been undertaken to ensure that the delivery of the Plan proposals would be supported by suitable infrastructure, there will be a need for on-going engagement with infrastructure providers as the Plan is implemented to monitor progress in relation to this issue.

5.9 Should this Risk be added to the Corporate Risk Register?

6. OTHER IMPLICATIONS

6.1 Legal – It is a legal requirement to have a Local Plan in place and to keep it under review. The Plan must meet ‘soundness’ tests set out in the NPPF, including the need to accommodate objectively assessed needs for development. The Plan must also satisfy other legal requirements such as the ‘duty to cooperate’ with neighbouring authorities and other public bodies. Failure to meet these requirements would lead to a high risk that the Council could not adopt the Plan or that any decision to do so would be subject to legal challenge.

6.2 Financial – The forthcoming stages in the preparation of the Local Plan (particularly the examination in public scheduled to take place in 2019) will require suitable funding to cover the cost of staffing, consultancy work, the Inspectors fees etc. A separate delegated executive decision is being prepared to address this matter.

6.3 Human Resources – This report has no implications for human resources. The staffing support for the Development Plans team will be kept under review as the Local Plan progresses through its next stages including the examination in public in 2019 (see paragraph 6.2 above).

6.4 Land and Property (Asset) – The Council has an ownership interest in all or part of 4 of the sites proposed for housing allocation in the ‘submission draft’ version of the Plan. The Plan will also, through its role as part of the statutory ‘development plan’, guide the future development and use of all Council-owned buildings and sites in the Borough.

6.5 Anti-Poverty – The Plan is likely to assist the Council’s aims to address poverty by making available land for new development to provide a wider range of job opportunities and through its requirements concerning affordable housing and housing mix.

6.6 Effects on existing Council Policy – As it would (once adopted) form a new ‘development plan’ document the Local Plan will form a key element of the Council’s policy framework. The Plan will replace some elements of the current ‘development plan’, namely the St Helens Core Strategy 2012 and the ‘saved’ policies of the St Helens Unitary Development Plan 1998.

247 10

6.7 Effects on other Council Activities – The Local Plan will, through its role as the statutory ‘development plan’ guide all Council activities which impact on the use and development of land.

6.8 Human Rights – None.

6.9 Equalities – A Community Impact Assessment of the Plan is attached as appendix 9 to this report. This identifies that the Plan would bring a range of benefits to the community as a whole, for example by balancing the needs for new development with the need to preserve and enhance the environment. No adverse impacts on specific population groups, identified by reference to the protected characteristics set by the Equalities Act 2010 (for example race, disability, gender, age, sexual orientation, religion) have been identified. The Plan will also have specific benefits for some groups. For example, by allocating sites for use by gypsies and travellers the Plan will help meet their specific needs. The policies concerning housing mix will ensure that some housing is designed or can be readily adapted to meet the needs of the less mobile and older age groups (see paragraph 2.64 of this report).

6.10 Asset Management – No implications except those related to land and property (detailed in paragraph 6.4 above).

6.11 Health – The Plan contains a range of policies which will promote better levels of health and well-being, for example by: ensuring that new development is served by a sufficient range and quality of greenspaces; promoting the use of walking and cycling; and ensuring that new development does not cause substantial harm to air quality (particularly in Air Quality Management Areas) or in respect of other forms of pollution. It is also considered likely that the Plan policies which promote the delivery of higher levels of employment development and a better choice of housing will indirectly have a beneficial effect on health.

7. PREVIOUS APPROVAL/CONSULTATION

7.1 The ‘submission draft’ version of the Local Plan has been developed having regard to the feedback from extensive previous public consultation. This feedback is referred to, along with the previous decisions by the Council’s Cabinet in relation to the emerging Plan, in section 2 of this report and summarised in the Report of Consultation (appendix 4 to this report).

8. ALTERNATIVE OPTIONS AND IMPLICATIONS THEREOF

8.1 As the preparation of a revised Local Plan is a statutory duty, it is not a realistic option to substantially delay the preparation of the Plan.

8.2 In preparing the ‘proposed submission’ version of the Local Plan, officers have refined a range of options which were set out in the Preferred Options document 2016. This process has taken account of up-to-date evidence, the outcomes of the consultation on the Preferred Options and the requirements of national policy including the revised NPPF (July 2018). A sustainability appraisal has been undertaken which has robustly assessed the emerging Plan (including alternative policy approaches and sites) against a range of economic, social and

248 10

environmental objectives. Having regard to all these factors, a number of adjustments have been made to the Plan (summarised in section 2 of this report)

8.3 The strategy set out in the ‘proposed submission’ version of the Plan (see appendices 1 to 3 of this report) will meet the substantial development needs of the Borough whilst addressing the resultant pressures on infrastructure and the environment.

9. APPENDICES

Appendix 1 St Helens Local Plan 2020-2035: submission draft version (written statement) Appendix 2 St Helens Local Plan 2020-2035: submission draft version - Policies Map (north) Appendix 3 St Helens Local Plan 2020-2035: submission draft version - Policies Map (south) Appendix 4 St Helens Local Plan: Preferred Options – Report of Consultation - TO FOLLOW Appendix 5 Number of responses to Preferred Options consultation by geographical area Appendix 6 Changes to housing and employment site allocations compared to those in the ‘Preferred Options’ proposals Appendix 7 St Helens Local Plan: Infrastructure Delivery Plan 2018 Appendix 8 St Helens Local Development Scheme 2018 Appendix 9 Communities Impact Assessment

Paul Sanderson Strategic Director of Place Services

The Contact Officer for this report is Jonathan Clarke, Development Plans Manager, Place Services Directorate, Town Hall Annex, St Helens WA10 1HP. Telephone 01744 676198 [email protected]

BACKGROUND PAPERS

The following list of documents was used to complete this report and they are available for public inspection for four years from the date of the meeting, from the Contact Officer named above:

1. St Helens Green Belt Review 2018 2. St Helens Council Transport Impact Assessment 2018 3. St Helens Strategic Housing Market Assessment Update 2018 4. St Helens Employment Land Needs Study Addendum Report 2018

249 This page is intentionally left blank 10

LOCAL DEVELOPMENT SCHEME

September 2020

251 ST.HELENS COUNCIL 10 LOCAL DEVELOPMENT SCHEME (September 2020)

Page left intentionally blank

2 252 ST.HELENS COUNCIL LOCAL DEVELOPMENT SCHEME (September 2020) 10

CONTENTS:

SECTION CHAPTER PAGE

1. Introduction

 Role of the Local Development Scheme (LDS) 4

2. The development plan for St.Helens

 Currently adopted development plan documents 5

 The emerging St.Helens Borough Local Plan 6

 Supporting documents 7

 Joint Working 8

3. Monitoring and Review

 Monitoring and Review 9

 Availability of Published Documents 9

Appendices

 Appendix 1 - St.Helens LDS Programme Summary

3 253 ST.HELENS COUNCIL 10 LOCAL DEVELOPMENT SCHEME (September 2020)

1. INTRODUCTION

Role of the Local Development Scheme (LDS)

1.1 Section 15 of the Planning and Compulsory Purchase Act 2004 requires the Council to prepare and maintain a document known as the Local Development Scheme (LDS).

1.2 The LDS must identify which existing and proposed documents (referred to as development plan documents) are intended to comprise the statutory ‘development plan’ for the Borough. It must also identify:

 the subject matter, geographical coverage and timetable for the preparation of each development plan document; and  any development plan documents which are to be prepared jointly with one or more other planning authorities.

1.3 The legislation requires all local authorities to make their LDS available to the public and to keep it up to date. The previous LDS for St.Helens was prepared and approved in December 2018 and is now considered to be out of date.

4 254 ST.HELENS COUNCIL LOCAL DEVELOPMENT SCHEME (September 2020) 10

2. THE DEVELOPMENT PLAN FOR ST.HELENS

Currently adopted development plan documents

1.1 The following documents make up the current ‘development plan’ for St.Helens and can be viewed at https://www.sthelens.gov.uk/planning-building- control/planning-policy/adopted-local-plans.

 St.Helens Local Plan Core Strategy (adopted in 2012);  ‘Saved Policies’ of the St.Helens Unitary Development Plan (adopted in 1998);  Bold Forest Park Area Action Plan (adopted in 2017); and  Merseyside and Halton Joint Waste Local Plan (adopted in 2013).

1.2 As each of these documents form part of the adopted ‘development plan’ they each play a key role in guiding decisions on planning applications for new development.

St.Helens Local Plan Core Strategy

1.3 The St.Helens Local Plan Core Strategy sets out the overall strategy guiding new development in St.Helens. It identifies how much development is required, broadly where development should be located and how it should be delivered in the period up to 2027. It contains strategic policies for housing, economy and employment, community facilities, quality of life and accessibility.

‘Saved policies’ of the St.Helens Unitary Development Plan

1.4 The St.Helens Unitary Development Plan (UDP) replaced all previous adopted development plans for the Borough when it was adopted on 2 July 1998.

1.5 Several of the policies in the UDP lapsed as a result of a direction issued by the Secretary of State issued in 2007. Some other UDP policies lapsed when the St.Helens Core Strategy was adopted in 2012. Appendix 4 of the Core Strategy identifies which UDP policies continued to be saved beyond 2012 and which were replaced at that point. Two ‘saved policies’ covering waste issues were replaced by the Merseyside and Halton Joint Waste Local Plan in 2013.

Bold Forest Park Area Action Plan

1.6 Area Action Plans (AAPs) are a type of development plan document that provide a planning framework for a specific area of opportunity, change or conservation. They set out specific policies to shape development within that area.

1.7 The Bold Forest Park Area Action Plan was prepared in consultation with local stakeholders including the Mersey Forest and Bold Parish Council and adopted in July 2017. It aims to encourage inward investment via rural entrepreneurship in the visitor economy and provide leisure opportunities for the community.

5 255 ST.HELENS COUNCIL 10 LOCAL DEVELOPMENT SCHEME (September 2020)

1.8 The Plan covers the entire Bold Forest Park area, which covers an area of about 1,808 hectares in size and is strategically situated in the south of the Borough.

Merseyside and Halton Joint Waste Local Plan

1.9 The Merseyside and Halton Joint Waste Local Plan 2013 covers the period from 2013 to 2027. It was prepared jointly by Halton, Knowsley, Liverpool, Sefton, St.Helens and Wirral Councils and covers all 6 of these Council areas.

1.10 The Plan was prepared by the Merseyside Environmental Advisory Service (MEAS) and contains 16 policies and 18 site allocations dealing with all aspects of waste management from waste prevention to energy from waste facilities. Further details can be found via the MEAS website at: http://www.meas.org.uk/1090.

The adopted Policies Map for St.Helens

1.11 The Policies Map is maintained as a separate document and is updated each time a new development plan document which allocates or designates land is adopted. The existing Policies Map for St.Helens is substantially based on the Proposals Map which formed part of the St.Helens UDP. It includes adjustments made as a result of the adoption of policies in the other development plan documents referred to above.

The emerging St.Helens Borough Local Plan

1.12 The Council is currently preparing a new Local Plan which will provide a new spatial strategy for the whole of the Borough. The new Plan will include:

 A vision and objectives setting out what type of place St Helens should be in 2035 and beyond;  strategic policies guiding the future development and use of land (for housing, employment, retail and other uses);  allocations of sites for particular types of development;  areas where development is to be constrained; and  more detailed policies to help guide the determination of planning applications.

1.13 The preparation of local plans must include a number of stages as set out in the Town and Country Planning (Local Planning) (England) Regulations 2012 (as amended). These include:

 Regulation 18 – initial consultation and preparation;  Regulation 19 – publication of the local plan;  Regulation 20 – representations relating to the local plan;  Regulation 22 – submission of documents and information to the Secretary of State;  Regulation 24 – independent examination by an appointed person

6 256 ST.HELENS COUNCIL LOCAL DEVELOPMENT SCHEME (September 2020) 10

 Regulation 25 – publication of the recommendations of the appointed person; and  Regulation 26 – adoption of the local plan.

1.14 The emerging St.Helens Borough Local Plan will replace the St.Helens Core Strategy and the currently remaining ‘saved policies’ of the UDP.

1.15 The preparation of the new St.Helens Borough Local Plan is a key priority for the Council. The key public consultation stages in the preparation of the Local Plan to date have been:

 Local Plan Scoping consultation (Regulation 18) – January to March 2016  Local Plan Preferred Options consultation – December 2016 – January 2017  Local Plan Submission Draft consultation (Regulation 19) – January to May 2019

1.16 The following table sets out the remaining expected steps and timescales leading up to adoption of the Plan. Further details are set out in the programme in Appendix 1 to this document.

Stage (Regulation) Stage (Description) Stage / Milestone (Date)

Regulation 22 Submission of documents and October 2020 information to the Secretary of State

Regulation 24 Examination in Public Hearing March-April 2021 Sessions

Regulation 25 Publication of the Inspector’s Autumn 2021 Report

Regulation 26 Adoption of the Local Plan Winter 2021-22

1.17 A revised version of the adopted Policies Map will be prepared as part the Local Plan and will illustrate the proposed site allocations and land designations.

Supporting documents

1.18 The Council has prepared or commissioned a number of other documents which support its existing and emerging development plan documents. These include:

7 257 ST.HELENS COUNCIL 10 LOCAL DEVELOPMENT SCHEME (September 2020)

 The St.Helens Statement of Community Involvement – this sets out how the Council will consult the community and stakeholders during the production of the Local Plan.  Evidence base documents – these cover a wide range of topics and provide evidence to underpin the policies of the emerging Local Plan.  Sustainability and other appraisal documents – these must be prepared to inform any new Local Plan document which is being prepared.

Joint working

1.19 The Council has a legal duty (under the Localism Act 2011) to cooperate with a wide range of statutory bodies when preparing the Local Plan. The Council works closely with a wide range of bodies in compliance with this duty.

1.20 The Council is not currently preparing any development plan document jointly with any other local planning authority. It has also not agreed to establish any joint committee under section 29 of the Planning and Compulsory Purchase Act 2004 to formulate such a joint plan. It should be noted however that the Liverpool City Region Combined Authority proposes to prepare a Spatial Development Strategy including strategic policies covering the whole City Region (including St.Helens). This work is currently at an early stage.

1.21 MEAS is starting to undertake a very high-level review of the Merseyside and Halton Joint Waste Local Plan. Any decision to update or replace the Merseyside and Halton Joint Waste Local Plan (in whole or in part) will be reflected in a future review of this LDS.

8 258 ST.HELENS COUNCIL LOCAL DEVELOPMENT SCHEME (September 2020) 10

2 MONITORING AND REVIEW

Monitoring and Review

3.1 The Council has a legal duty, under Section 15 of the Planning and Compulsory Purchase Act 2004 to provide up-to-date information to the public showing the state of the authority's compliance with its timetable for the preparation of development plan documents. In accordance with this duty the Council will publish regular updates concerning the progress in preparing its new Local Plan on its website. Further details will also be set out in its Authority Monitoring Reports, which must be published each year.

Availability of Published Documents

3.2 Further details concerning the emerging St.Helens Borough Local Plan, and the other matters set out in this document, are available on the Council website at www.sthelens.gov.uk/localplan. You may also request to see hard copies at Planning Reception, Town Hall, Victoria Square, St. Helens (when the Council Offices are open).

9 259 10

APPENDIX 1 - ST.HELENS LDS PROGRAMME SUMMARY

2020 2021 2022 Local Plan Stage September October November December January February March April May June July August September October November December January February Preparation of Plan prior to submission Submission to Secretary of State (Regulation 22) H H Examination in Public

260 (H = hearing sessions) Inspectors Report Adoption Draft Proposed Modifications 10 Chapter 2, p10:

2.8 Town Centres 2.8.1 St.Helens Town Centre plays an important sub-regional role as the Borough’s principal town centre providing a range of retail and other services for the Borough. This is complemented by the roles played by Earlestown Town Centre (within the town of Newton-le-Willows) and a range of smaller district and local centres. A key challenge is for the town and other centres to diversify their role in response to changing economic circumstances, including competition from retail parks and internet shopping. The Council has successfully secured an initial £173,029 capacity funding grant to support the development of a Town Deal Board and Investment Plan from the Governments Town Deal fund to help with projects around land use and regeneration, connectivity, skills and employment for St Helens Town Centre.

2.8.2 In addition, the Council is entering into a strategic partnership agreement with the English Cities Fund (ECF) to ensure the delivery of a Borough wide regeneration strategy initially starting with St Helens Town Centre.

LPA02 - Policy Amendments, p17-78: Policy LPA02 Policy LPA02: Spatial Strategy

1. The sustainable regeneration and growth of St.Helens Borough through to 2035 and beyond will be focussed (as far as practicable, having regard to the availability of suitable sites) on the Key Settlements, namely St.Helens Core Area, Blackbrook and Haydock, Newton-le-Willows and Earlestown, Rainford, Billinge, Garswood and Rainhill.

2. New development will be directed to sustainable locations that are appropriate to its scale and nature and that will enable movements between homes, jobs and key services and facilities to be made by sustainable non-car modes of transport.

3. The re-use of previously developed land in Key Settlements will remain a key priority. A substantial proportion of new housing throughout the Plan period will be on such sites. This will be encouraged by setting lower thresholds for developer contributions on previously developed sites to reflect the higher costs and lower sales values typically associated with redeveloping such sites.

261 10 4. Comprehensive regeneration of the wider Borough will be delivered by the English Cities Fund Regeneration Partnership, through the provision of quality housing, new commercial activity, upgraded infrastructure and the overall improvement of the social and economic viability of the Borough on a phased basis.

54. This Plan releases land from the Green Belt to enable the needs for housing and employment development to be met in full over the Plan period from 1 April 2020 until 31 March 2035, in the most sustainable locations. Other land is removed from the Green Belt and safeguarded to allow for longer term housing and / or employment needs to be met after 31 March 2035. Such Safeguarded Land is not allocated for development in the Plan period and planning permission for permanent development should only be granted following a full review of this Plan. Within the remaining areas of Green Belt (shown on the Policies Map) new development shall be regarded as inappropriate unless it falls within one of the exceptions set out in the National Planning Policy Framework (or any successor document). Inappropriate development in the Green Belt shall not be approved except in very special circumstances.

65. Substantial new employment development (set out in Policy LPA04 and excluding town centre uses) will take place on large sites that are capable of accommodating large employment buildings (over 9,000m2) and are close to the M6 and M62. High quality road, public transport and active travel links will be required between existing and proposed residential areas, particularly those with high deprivation levels, and areas of employment growth. Existing employment areas will be retained where they are suitable and viable for this use in order to maintain a diverse portfolio of accessible employment opportunities across the Borough. Suitable development that would diversify the rural economy will also be supported.

76. Parkside West and Parkside East form transformational employment opportunity sites that will make a major contribution to the economic development of St.Helens Borough, the Liverpool City Region and beyond. Development that prejudices their development in accordance with Policies LPA04 and LPA10 will not be allowed.

87. The preferred locations for new town centre development shall be within St.Helens Town Centre (as the Borough’s principal town centre), Earlestown Town Centre, and the Borough’s network of district and local centres, in line with Policies LPB01, LPB02 and LPC04.

98. The quality of life, health and wellbeing of St.Helens Borough’s residents,

262 workers and visitors and the quality of the natural environment will be 10 supported by: a) taking steps to maintain, enhance, connect and / or expand the Borough’s network of ecological, open space and recreational sites and greenways in accordance with Policy LPA09; b) seeking improvements to the quality of open space within and around new development; c) requiring new development proposals to mitigate their contribution to climate change and to adapt to its impacts; d) supporting the delivery of landscape reclamation and improvement projects in locations such as the Bold Forest Park and Sankey Valley Park; and e) requiring development to support healthy lifestyles in accordance with Policy LPD11.

109. The provision of a convenient, safe and sustainable transport network, and the delivery of improvements to the network, will be required in line with Policy LPA07.

1110. New development that would deliver regeneration within the key settlements and accord with other Plan policies will be supported. Regeneration in these settlements will also be promoted by (in addition to the measures set out above) focussing available resources on its effective delivery and preventing development that would adversely impact upon or jeopardise the delivery of regeneration proposals.

LPA02 – Reasoned Justification Amendments, p24: Supporting regeneration 4.6.19 As a priority, the Council will continue to work to support the redevelopment of brownfield sites in the urban area. It is also pursuing opportunities to enhance town centres in the Borough, for example through the creation of the St.Helens Town Centre Strategy. In addition, the Council intends to work pro-actively with partner organisations where necessary to secure the suitable regeneration of other town, district and local centres and of existing housing and employment areas, particularly in less affluent areas. The Council will prepare Supplementary Planning Documents covering specific areas

263 10 where this is considered necessary to help implement their regeneration.

4.6.20 The Council is entering into a formal partnership agreement with the English Cities Fund as the Council’s preferred strategic partner to ensure the delivery of a Borough wide regeneration strategy, including economic regeneration and housing. The Council has recognised that a new approach to growing the economy of the Borough is required that seeks to work proactively with the private sector and establish a strategic partnership maximising the opportunities presented to deliver significant future growth in St. Helens and deliver key priorities including Town Centre regeneration, social wellbeing and providing appropriate infrastructure to support future development.

4.6.21 Furthermore, as part of the ‘Town Deal’ initiative established by the Government in 2019, the Council are seeking to secure significant investment of up to £25 million. This funding will be used to help increase economic growth with a focus on land use and regeneration, improved connectivity (both transport and better broadband connectivity), skills and employment, and heritage, arts and culture for St. Helens Town Centre.

4.6.22 The Council will prepare Supplementary Planning Documents covering specific areas to help implement regeneration where this is considered necessary.

LPA04 – Policy Amendments: p29

Policy LPA04: A Strong and Sustainable Economy 1. The Council will work with partner organisations to: a) help meet the Liverpool City Region’s needs for economic growth, job creation and skills development; b) maximise the economic opportunities presented by St.Helens Borough’s location in relation to strategic road and rail routes; c) ensure the necessary infrastructure is provided to support business needs (see Policy LPA _08); and d) support the creation of and expansion of small businesses.; and e) support businesses and organisations in the economic recovery and renewal from the COVID-19 pandemic.

LPA04 – Reasoned Justification Amendments, p32:

4.12 Reasoned Justification 4.12.1 The Council’s City Growth Strategy (2008-18) and Council Plan 2017-2020 recognise the need to work in partnership with local communities and businesses to deliver economic growth, to strengthen the local business base, and to increase aspiration, skills and employment in the Borough.

264 4.12.2 The Local Plan’s vision, still stands true as we plan for recovery from 10 the COVID-19 pandemic: By 2035, St. Helens Borough will provide through the balanced regeneration and sustainable growth of its built-up areas, a range of attractive, healthy, safe, inclusive and accessible places in which to live, work, visit and invest. Key to this is a continued focus on the economy, so that St. Helens residents can access good quality jobs that raise their living standards, whilst also improving physical and mental health.

4.12.3 It is anticipated that the English Cities Fund Regeneration Partnership and the Council’s successful Town Deal funding bid will also assist in the post COVID-19 economic recovery.

4.12.24 The provision of new well-located employment land and floorspace is essential to the Borough's future economic prosperity. Policy LPA04 therefore allocates sufficient land to meet anticipated development needs within the B1 (business), B2 (general industrial) and B8 (storage and distribution) use classes during the Plan period. The NPPF requires the Council to plan for and accommodate all foreseeable types of economic growth. Policy LPA04 therefore identifies a range of locations, types and sizes of employment sites to meet the needs of specific sectors of the business community and to protect existing areas where employment continues to be the most appropriate use.

LPB01 – Policy Amendments, p73:

Policy LPB01: St.Helens Town Centre and Central Spatial Area

1. The Council will promote the Central Spatial Area as an accessible and welcoming destination for new development that accords with paragraphs 2 to 9 of this Policy and that would help create a high-quality built environment. Development that would support the delivery and implementation of the Council-led strategy for the future regeneration and development of St.Helens Town Centre will be supported.

2. The English Cities Fund Regeneration Partnership will help deliver a comprehensive redevelopment of the Town Centre and Central Spatial Area, including new commercial activity, upgraded infrastructure, the provision of quality housing, and the overall improvement of the social and economic viability of the area.

32. Proposals for retail and leisure development will be directed to suitable locations within the Town Centre and then other sequentially preferable sites in line with Policy LPC04 and national policy. A town centre ‘area of opportunity’ for future retail, leisure and cultural development is shown indicatively on the Policies Map. Development that would result in significant harm to the Town Centre’s vitality and viability or prejudice planned investment within it will be resisted.

43. Proposals for change of use of units in the Primary Retail Frontages in

265 10 St.Helens Town Centre will be refused unless they would be to Class A145 retail use or another main town centre use or uses that would contribute positively to the overall vitality and viability of the centre. Development proposals within the Primary and Secondary Frontages that would not result in an active ground floor use with a window display frontage will be refused.

54. New development proposals will be required, where appropriate having regard to their location, nature and scale, to facilitate linked trips between the Primary Shopping Area and other existing and proposed developments within the St.Helens Central Spatial Area, including Asda on Kirkland Street; The Range on Chalon Way; St.Helens and Ravenhead Retail Parks; Linkway West; Tesco Extra on Linkway; and St.Helens RLFC Stadium.

65. Regular health checks will be undertaken to monitor the vitality and viability of St.Helens Town Centre.

76. Proposals for housing or a mix of housing and other suitable use(s) within or on the edge of the Town Centre will be supported where they would avoid prejudicing the retail and service role of the Town Centre.

87. New development in the vicinity of St.Helens Canal will be required to, as appropriate, improve the public realm by retaining and enhancing the existing waterway, positively integrating with the canal and securing improvements to Green Infrastructure in line with Policy LPA09.

98. Pedestrian and vehicular accessibility within and around the Town Centre will be managed in line with the road-user hierarchy set out in the Liverpool City Region: Transport Plan for Growth in order to: a) maintain pedestrian priority within the Town Centre and extend pedestrian links to adjacent areas; b) make suitable provision for cyclists; c) support the Town Centre as the hub of the public transport network in St.Helens Borough; and d) make appropriate provision for cars and service vehicles.

LPB01 – Reasoned Justification Amendments, p75:

5.3 Reasoned Justification

5.3.6 A Town Centre Strategy46 to provide a comprehensive approach to the future of St.Helens Town Centre underwent public consultation during August – October 2017. The Strategy set out a vision for the future of the town centre detailing thematic initiatives to deliver this. In January 2020 the Council successfully received an initial £173,029 capacity fund as part of the Governments Town Deal initiative. The Council are now seeking to secure significant investment of up to £25 million. This funding will be used to help increase economic growth with a focus on land use and regeneration, improved connectivity (both transport and better broadband connectivity), skills and employment, and heritage, arts and culture. A Town Investment Plan will be developed and will sit alongside the Town Centre Strategy.

266 10 5.3.7 The Council’s future aspirations to improve the offer of St.Helens Town Centre as set out within the Strategy include the provision of new retail and leisure floorspace, subject to the appropriate policy tests. It is considered that this approach, along with steps to encourage the reuse of vacant floorspace, will address the identified quantitative and qualitative needs of residents in the Borough.

5.3.8 The Council will support initiatives and schemes that will help to implement the Strategy by revitalising and enhancing the Town Centre’s retail, leisure and cultural offer. The 'Area of Opportunity', referred to in the Strategy, has been identified due to the potential to reconfigure and / or redevelop land and premises close to Church Square and Chalon Way for suitable town centre uses. To support this initiative and to assist in the regeneration of the area, the Council is entering into a regeneration partnership with the English Cities Fund to deliver a comprehensive redevelopment of the Town Centre (and wider borough on a phased basis).

LPB02 – Policy Amendments, p77:

Policy LPB02: Earlestown Town Centre

1. The Council will seek to safeguard and enhance the function and role of Earlestown Town Centre as the second town centre within the Borough.

2. Main town centre uses will be directed to suitable locations within the defined Town Centre first and then other sites in accordance with the sequential approach set out in Policy LPC04 and national policy. The preferred location for new retail development shall be within the defined Primary Shopping Area.

3. Development that would result in a significant adverse impact on the Town Centre’s vitality and viability or planned investment within it will be resisted in accordance with Policy LPC04 and national policy.

4. The delivery and implementation of a Council-led strategy to provide a framework for the future regeneration and development of the town centre will be supported. The English Cities Fund Regeneration Partnership will help deliver a mix of residential, leisure, business and retail development all centred around the Town Centre.

Reasoned Justification Amendments, p78:

5.6 Reasoned Justification

5.6.3 The Council will seek to safeguard and build upon this important role and function by applying the 'town centre first' approach to ensure that Earlestown remains the Borough's second centre providing a highly sustainable location

267 10 for retail and other services. Through its partnership with the English Cities Fund the Council will work towards creating a mix of residential, leisure, business and retail development all centred around the Town Centre.

5.6.8 To provide a focus for future development of the town centre and positively promote Earlestown as a location to live, through the English Cities Fund Regeneration Partnership the Council, intend to bring forward a dedicated Town Centre strategy, which may form the basis for a Supplementary Planning Document. This will include initiatives to: • enhance the Town Centre as a shopping destination and increase the vibrancy of the town's market; • protect and enhance the town’s-built heritage; • promote Earlestown as a key commuter settlement with direct rail connectivity to Liverpool, Manchester and Chester; • increase the number and variety of residential units by encouraging mixed use development that makes a positive contribution to the economic role of the town centre; and • link the town centre with the new homes to be provided through the residential redevelopment of Deacon Trading Estate and other housing developments.

Glossary – Add

Covid19

The Coronavirus disease (COVID19) is an infectious disease caused by a newly discovered coronavirus. The disease became a global pandemic and led to a complete lockdown for many countries in 2020. The outbreak of COVID-19 had a significant impact on businesses, leading to the onset of a recession and affecting the economic and social lives of the entire nation.

English Cities Fund (ECF)

The English Cities Fund (ECF) is a joint venture development company, set up by three partners – Homes England, Legal & General and Muse Developments. ECF was originally established by the Labour Government in 2001 to drive greater institutional and private investment in English towns and cities. The ECF work with councils, landowners and communities to regenerate areas, typically where there has been market failure in the past.

Town Deals

The Town Deals initiative was established by the Government in 2019 and saw the launch of a £3.6 billion Towns Fund. It allows communities, businesses and local leaders to develop their own ambitious proposals for growth through the creation of a Town Deal Board. Boards can submit bids for funding up to £25 million. The funding is intended to help increase economic growth with a

268 focus on regeneration, improved transport, better broadband connectivity, 10 skills and culture.

269 This page is intentionally left blank 11

Cabinet

23 September 2020

Report Title: Highways Programme 2020/21

Cabinet Portfolio Cabinet Member - Environmental Services

Cabinet Member Councillor Andy Bowden

Exempt Report No

Reason for Exemption Open

Yes Key Decision

Public Notice issued Yes 25 August 2020

Wards Affected (All Wards);

Lisa Harris Executive Director of Place Services Report of [email protected] 07968 616638

Contact Officer Steve Walker

271 11

Senior Manager Engineering Services [email protected] 07968 616618

NB Use Section 4 - Support a strong, diverse and well-connected local economy X Background Information to explain how Create a green, thriving and vibrant place to be proud of X each selected priority is supported Be a modern, efficient and effective Council

1. Summary

1.1 To approve the Engineering Capital and Revenue Programme for 2020/21.

2. Recommendations for Decision

Cabinet is recommended to:

i) Accept the Transport Single Investment Capital Pot Allocation of £2.213m, from the Liverpool City Region Combined Authority. Comprising £1.573m for Highway Maintenance and £0.640m for Integrated Transport.

ii) Accept the Transport Single Investment Pot Key Route Network allocation of £0.751m from the Liverpool City Region Combined Authority.

iii) Accept the Highways Pothole and Challenge Fund Part 1 of £1.668m from Liverpool City Region Combined Authority allocated to them by the Department for Transport.

iv) Accept the Highways Pothole and Challenge Fund Part 1 of £0.140m from the Liverpool City Region Combined Authority allocated to them by the Department for Transport.

v) Accept the Highway Maintenance Challenge Fund Part 2 capital funding of £0.742m from the Liverpool City Region Combined Authority allocation.

272 11

3. Purpose of this Report

3.1 This report seeks approval to accept grant funding from the Combined Authority to support the recovery from COVID-19 restrictions and to facilitate maintenance and improvement to the highway infrastructure that includes the delivery of walking and cycling measures in the financial year 2020/21.

4. Background /Reasons for the recommendations

4.1 The Council’s highway infrastructure assets have a total value of around £ 1.8bn (Gross Replacement Costs) primarily forming 780km of adopted highway network. This report outlines a major programme of investment in developing its highway network to support economic, social and environmental renewal. The report details the Council’s continued investment and improvement in the Borough’s Highway Infrastructure as outlined below:

Table 1 - HIGHWAYS INVESTMENT PROGRAMME SUMMARY 2020/21

Programme Investment £ (000) Highway Maintenance Fund 3.241 Integrated Transport Block 0.640 Key Route Network 1.493 Pothole Fund 0.140 Revenue Works 3,351

Total Highway Programme 2020/21 £ 8.865

Highway Maintenance Funding, Integrated Transport Block (ITB) and Incentive Fund

4.2 In April 2016, the Government confirmed the level of transport capital funding that would be allocated to the Liverpool City Region Combined Authority (LCRCA). This single transport budget forms part of the Single Investment Fund and includes all existing capital maintenance funding streams, including:

 Integrated Transport Block funding  Highways Maintenance funding  Highways Maintenance incentive funding

4.3 The funding allocation includes highway maintenance “Incentive Funding” which the Department for Transport (DFT) invited highway authorities to bid for in January 2016. The LCRCA has been granted a level 3 status (the highest) as part of its devolution deal. The Government’s expectation is that the performance requirements for this level of funding is met by each local authority and this will need to be will be demonstrated. The LCRCA are working with all highway authorities within the region to ensure that level 3 status will be achieved. St Helens Borough Council is currently working towards the continued improvement of our highway asset management plan and associated policies, these will be presented to Cabinet for consideration later in the year. This will ensure that we fulfil the eligibility criteria for Incentive funding.

4.4 The LCRCA will receive £132.5m between 2016/17 and 2020/21, this equates to £26.5m per annum. All funds will from part of the Single Investment Fund which is governed by an

273 11 Assurance Framework and therefore provision was made for £26.5m of transport funds to be detached from the main Single Investment allocation. Allocations in all previous years has been based on a historic formula split between Highway Maintenance block and the Integrated Transport Block.

4.5 A proportion of the funding is retained by the Combined Authority in order to provide financial support to City region wide projects. The table below details the allocation of the retained funds of the transport block.

Table Allocation of Retained Transport Funding

Allocation (£000) Building and Maintaining a City-Wide Evidence base 1.000 Bus Alliance Support 0.500 Rail Enhancement Support 0.500 Mayoral Combined Authority Priorities 2.500 Key Route Network 5.500 Total 10.000

4.6 The remaining funds of £11m are to be used for Highway Maintenance and are allocated to each of the member highway authorities of the Combined Authority. These allocations were approved as part of the Liverpool City Region Combined Authority budget on 24th January 2020. The St Helens allocation for Highways Maintenance is £1.573m.

4.7 Central Government requires that the Liverpool City Region identify a Key Route Network (KRN) of locally significant roads and that appropriate maintenance and investment be directed to support this Network, to provide the infrastructure to support the economic growth of the region. This work is overseen by the Merseytravel Committee, an evidence base to support a prioritised investment approach has been put in place. The Combined Authority have agreed that a portion of the capital maintenance allocation is targeted to the Liverpool City Regions KRN.

4.8 In October 2018, members for the Liverpool City Region Combined Authority received a report on an important component of the evidence base, in the form of a Highways Infrastructure Asset Management Plan (HIAMP). This assessed the condition of the KRN’s carriageway on a consistent basis the principle conclusion was that the condition of the highway network is degrading, and the current funding is not at a level to address the maintenance backlog. 16% of the KRN requires structural maintenance and 39% needs preventative maintenance. Analysis shows that to maintain a steady state (be that its current condition) the following is required:

 £12 million is required per annum for Structural Maintenance  £2.5 million is required for Preventative Maintenance  The current maintenance ‘’backlog’’ is approximately £56.8 million

4.9 At its meeting on 5th June 2020, the Liverpool City Region Combined Authority approved the disbursement of £5.5m that had been allocated to support the maintenance of the KRN. The approval funding for St Helens was £0.751m which will focus on those parts of the KRN located within the Borough and being in the poorest condition. This will inevitably reduce funding available for the remaining local network given this is the only external capital available to local authorities for highway maintenance. It should be noted that St Helens has the lowest proportion of KRN within the City Region.

274 11 4.10 An evidence led approach to the allocation of Capital Maintenance funding across the City Region will continue. Emerging data suggests that significant investment is required to bring the KRN up to an acceptable and consistent standard. This will inevitably reduce funding available for the remaining local network as this is the only source of external capital available to local authorities for highway maintenance. To support this recommendation each partner authority must submit a proposed programme based on road hierarchy for approval with an emphasis to deliver interventions which support the Mayoral and Liverpool City Regions priorities and strategies. Regular updates on scheme progress will be provided to the Combined Authority.

Integrated Transport Block (ITB) Allocation

4.11 After allocations to Capital Maintenance and KRN the remaining balance of the “Transport Investment” pot, is £10m this forms the Integrated Transport Block. The Combined Authority have agreed that this funding is allocated to support the Mayoral Combined Authority priorities and the City Regions key strategic themes. At its meeting on 24th January 2020, the Combined Authority agreed to retain a formulaic allocation (based on population) in 2020/21. Each partner was required to submit a programme of schemes for approval. The allocation of ITB for St Helens is £0.640m we will provide regular updates on scheme progress to the portfolio and Combined Authority.

Highways Pothole and Challenge Fund – Part 1.

4.12 In Autumn of 2019 the Combined Authority responded to an opportunity to bid for a share of the national Highway Maintenance Challenge Fund. On the 14th May 2020, in light of the COVID-19 emergency and the pressures on resources locally and nationally, the Department for Transport wrote to all local authorities to advise that it would be making a proportion of the fund available on a formula basis. This was to ensure that funding reaches each Combined Authority as quickly as possible. The Department for Transport also advised that it supplement this funding from the existing Pothole Action Fund and funding committed in the 2020/21 Budget to help repair potholes and maintain local roads. The Liverpool City region were allocated £12.662m.

4.13 At its meeting on the 5th June 2020, the Combined Authority chose to split its funding between a £1m pothole fund and £11.662m Highways Challenge Fund – Part 1. These allocations were then apportioned on a formulaic basis to each partner authority.

4.14 The Department of Transport have a preset formula to distribution money on the basis of potholes, this has been used to allocate the £1m bespoke pothole fund received in May 2020 to each local authority. St Helens allocation of £0.140m will fund a dedicated Pothole Repair Team that will be able to respond in times of adverse weather. This approach will ensure a speedy pothole repair service with a collaborative approach between Highways and Customer Services to provide a more efficient and effective service for our customers.

4.15 The £11.662m Highway challenge Fund part 1 was as also allocated as per the Department of Transport Formula, St Helens will receive £1.668m which will go to address highway priorities in the Borough.

Highways Challenge Fund – Part 2

4.16 As part of the Prime Minister’s “build, build, build” speech in Dudley on the 30th June 2020, the Liverpool City Region Combined Authority received confirmation of an additional £5m to support highway maintenance works on the Key Route Network. This followed a bid for £5m into the Highways Maintenance Challenge Fund in October 2019, which was originally not supported by Department for Transport (DfT), as the fund was significantly oversubscribed. This funding is in 275 11 addition to the funds outlined above and must be expended in the financial year 2020/21. At its meeting on the 1st July 2020, the Combined Authority agreed to distribute the additional Highway Maintenance Challenge fund – part 2 as per its original bid proposal. St Helens will receive £0.742m.

Revenue Allocation

4.17 St Helens Cabinet at its meeting of the 26 February 2020, allocated £21m to the Environmental Services Portfolio revenue budget for 2020/21. Within this figure the Highways, Roads and Transport Services Budget of £10.9m was approved. This figure includes Road Safety and Capital Charges.

4.18 The Proposed Revenue Expenditure Profile for 2020/21 is £3,351m. This revenue budget will fund routine carriageway, footway and cycle way maintenance, maintenance of verges and trees, sweeping and cleaning, gully emptying, street lighting energy and maintenance, winter salting and design and supervision.

Capital Allocations

4.19 Integrated Transport Block

Traffic Schemes

4.20 Within the transport plan the Authority aims to improve road safety for vehicles, pedestrians, cyclists and other vulnerable road users by reducing the number of accidents and the severity of injury caused. In 2018/19, a skid resistance survey was undertaken on the Borough’s roads and this identified areas where the skid resistance of the carriage way should be improved as it will in time pose a threat to vehicle movements.

Structural Maintenance Allocation

4.21 For 2020/21 the Structural Maintenance allocation funded is £3.241m. This allocation funds the major structural maintenance programme to improve the condition of the Borough’s Highway Infrastructure.

Carriageway Resurfacing Schemes

4.22 The Highways Act 1980 places a duty of care on the Highway Authority to provide a safe network and the proposed programme of work reflects the need to maintain the highway and meet the Borough’s legal obligations. The proposed carriageway resurfacing programme is based on road hierarchy and need and will be funded from the Structural Maintenance Allocation. The physical condition of the main roads in the Borough (the classified principal and non-principal roads) is surveyed every year which assists to identify those areas in most need and thereby identifies the appropriate projects to address the needs. A combination of patching, reconstruction, resurfacing and preventative maintenance will be required in order to prevent the potential failure of parts of the network. The proposed allocation for carriageway resurfacing schemes (non KRN) is £0.790m Street Lighting Schemes

4.23 Since completion of the schemes in Better Lighting in Sustainable Streets (BLISS), the annual programme of works has been targeted at replacing older obsolete street lighting, primarily on district and local distribution roads in the Borough. For 2020/21 it is proposed that this programme should continue by using more energy efficient lanterns and replacing lighting 276 11 columns and lanterns which have exceeded their design life. The proposed allocation for street lighting to replace obsolete concrete columns is £0.500m

Bridges

4.24 The Bridges programme is based on condition surveys which is judged against the national assessment criteria to identify those structures which require remedial action to maintain their structural integrity. The Council is responsible for the maintenance of 275 bridges across the borough. The estimated cost of carrying out the proposed Bridges programme is £0.460m

CARRIAGEWAYS AND FOOTWAYS REVENUE PROGRAMME

4.25 The Council, as the Highway Authority, has a statutory duty to maintain the highway network in a condition to enable the safe passage of the travelling public. The borough’s highway network comprises many diverse assets. It is therefore essential that we continue to develop the existing Highway Asset Management Plan which sets out how the Council will best manage its highway infrastructure asset and network taking into consideration customer needs, local priorities, asset condition and best use of available resources. The Strategy will be used to inform priorities in the Business Planning process and will be used to support the continuous improvement of our highway asset managed by capturing the outcome of using the optimum treatment or interventions and the whole life cycle of different asset groups. The estimated cost of carrying out condition survey’s and developing the Highway Asset Management Strategy is £0.101m.

4.26 The Carriageway and Footway Programme deals with the unclassified roads in the Borough which make up approximately 80% of the highway network. Proposed schemes will be prioritised in accordance with the strategy detailed in the Highways Asset Management Plan. This Plan is based on a national code of practice and is linked with the Transport Asset Management Plan. It considers detailed visual inspections, mechanical surveys, together with reports gathered from Highways Inspectors, Members and residents, which enables priorities to be determined as indicated in the list of schemes. The proposed allocation for Footway repairs / reconstruction is £0.500m

Highway Drainage Repairs.

4.27 The Highway Drainage system in St Helens is designed to take water away from the highway surface, even with a well-maintained highway system, problems can arise during periods of heavy or prolonged rainfall. There is a total of 33,000 gully assets in the Borough. We operate a cleaning schedule to routinely clean the gullies throughout the Borough. In addition to a routine cleaning schedule, ad-hoc cleaning operations take place in targeted locations based on risk assessed often required to resolve locations at risk of flooding. The estimated cost of carrying out additional targeted risk assessed priority for Highway Drainage repairs is £0.490m

277 11 4.28 The programme also includes an allocation for the following areas:

Allocation £(000) Road Markings 0.100m Funding only allows road marking’s classified as a “priority” to be addressed

Safety Fence Repair. 0.100m This funding will supplement the revenue budget to maintain the integrity of Safety fences located in the central reservation of high-speed roads.

Street Furniture. 0.200m Street Furniture refers to items installed on roads or pavement to help keep drivers, cyclists and pedestrians safe. This funding will address the most serious and potentially dangerous defects.

5. Community Impact Assessment

The Community Impact Assessment identified the following key implications

5.1 The programme is designed to provide safe access to all road users and specifically caters for vulnerable road users.

5.2 The CIA found that the programme will deliver a broadly positive benefit. At present, no adverse impacts are expected to result from the programme.

6 Consideration of Alternatives

6.1 The Funding awards are targeted to specific areas and therefore the degree of flexibility in the use of the allocation is restrictive. Given financial allocations fail to meet the Borough’s substantial asset base requirements there is a need to have a robust and evidence method of identifying and prioritising need. The continued development of the Highway Asset Management Plan will be used to inform priorities in the Business Planning process and will support the continuous improvement of our highway asset managed by capturing the outcome of using the optimum treatment or interventions and the whole life cycle of different asset groups.

7 Conclusions

7.1 Cabinet is recommended to accept a series of measures within its overall budget of 2020/21 and identified in the report to undertake its asset management function in respect of Highway assets and encourage cycling / walking. More specifically, to support recovery from COVID-19 restrictions. The effective maintenance and improvement of the local highway network will support and strengthen the opportunities for growth within the Borough and the City Region.

8. Implications

8.1 Legal Implications

8.1.1 The capital grant requires approval from the Council’s S151 Officer and will require that a grant agreement be put in place due to the short timescales for delivery the Combined 278 11 authority have chosen to make the allocation and approve spend whilst the legal agreements are being finalised.

8.2 Community Impact Assessment (CIA) Implications

What are the implications for the following areas identified from the CIA?

8.2.1 Social Value - How does the proposal support employing local people, spending in the local economy, and local procurement?

8.2.1.1 Full details can be found in the Community impact assessment. Most contractors on the Council framework contract are local to the City region and employ a local workforce.

8.2.2 Sustainability and Environment - How does the proposal impact on sustainability and the environment?

8.2.2.1The programme includes significant investment into cycling and walking provision in order to help residents and businesses in the transition from car borne journeys to a more carbon neutral approach. Materials used in the construction and maintenance of road will where possible be recycled materials.

8.2.3 Health and Wellbeing - How does the proposal support and promote public health and wellbeing?

8.2.3.1 The programme includes significant investment into cycling and walking provision in order to help residents and businesses make healthier lifestyle choices. Less cars also helps the Council to address air quality issues experienced in parts of the borough.

8.2.4 Equality and Human Rights – What are the Equality and Human Rights implications? If there is an adverse impact what mitigation has been put in place?

8.2.4.1 Officers will ensure that the Council adheres to Government guidance to make provision for people with physical disabilities, such as crossing points and reducing street clutter.

8.3 Customers and Resident - What are the implications for our customers/residents?

8.3.1 Residents and businesses in locations that will be disturbed by works to the highways will be kept informed of the start and end dates and will be provided with a contact number in case of any emergency. We utilise Customer feedback and calls for service as part of the Highway Asset Management Plan to define the programme using technology to evaluate the success of programmes and this will be fed back to customers in time.

8.4 Asset and Property - What are the issues? Does the report propose and reduction, addition or change to the council’s asset base or its occupation?

8.4.1 The Council, as the Highway Authority, has a statutory duty to maintain the highway network in a condition to enable the safe passage of the travelling public. The borough’s highway network comprises many diverse assets. It is therefore essential that we continue to develop the existing Highway Asset Management Plan and to invest in the maintenance and development of this important asset. This report provides resources to enable the Council to undertake its physical asset management function.

279 11 8.5 Staffing and Human Resource - What are the workforce implications? Have Senior HR Officers been consulted?

8.5.1 To deliver the capital and revenue projects associated with the financial allocations within this report will require enough human resource within the Engineering service. The majority of the programme will be delivered in-house with the assistance of external consultancy support when required.

8.6 Risks - What are the issues? How are we mitigating them?

8.6.1 The programmes will necessitate works being carried out on the live highway and contractors must comply with Chapter 8 of the Traffic Signs Manual. Contractors will be required to develop a Health and Safety Plan and the contractors’ method statements for the construction of the works will be examined.

8.6.2 The proposed works will help to limit the Council’s risk from claims relating to highways.

8.6.3 The ‘Well Managed Highway Infrastructure’’ code implemented in October 2018 supersedes the previous codes ‘’Well-maintained Highways, Well-lit Highways’’ and ‘’Management of Highway Structures’’. Changing from the reliance on specific guidance and recommendation in the previous codes to a risk-based approach will involve appropriate analysis, development and gaining approval through the Authority’s executive process. Officers will adhere to the Borough’s Code of Practice for Highway Safety Inspections and we will collaborate with our insurance provider, Liverpool City Region and neighbouring Highway Authorities in determining levels of service.

8.6.4 Risk of failing to expend the funding in the required timescales has been included in the Risk Register. Any risk of challenge is considered to be low due to the national context and the desire of the Council to support the delivery of walking and cycling and the enhancement of the highway network. There are considered greater risks associated with delaying the delivery of the measures set out in this report, and which need to be delivered quickly to support the sustainable recovery from COVID-19 restrictions for the reasons cited.

8.7.1 The allocations of Structural Maintenance and Integrated Transport block funding are detailed within this report. The revenue implications are as the budget provision made at Cabinet on 26 February 2020 and approved by council.

8.8 Policy Framework Implications Are the recommendations within this report in line with existing council policies? If not, how is this to be addressed?

8.8.1 Recommendations within this report in line with existing council policies

9. Background papers 9.1 None.

10. Appendices 10.1 None.

280 12

Cabinet

23 September 2020

Report Title: Town Deal Accelerated Fund and LCR Town Centre Fund Update

Cabinet Portfolio Cabinet Member - Economic Regeneration & Housing

Cabinet Member Councillor Richard McCauley

Exempt Report No

Reason for Exemption Open

Yes Any decision of the Cabinet incurring expenditure or making savings in excess of 10% of the relevant portfolio or £250,000, whichever is the smaller, unless Key Decision (i) the specific expenditure or saving has been previously agreed by full Council; or (ii) it is a decision taken in accordance with the Council's Treasury Management Policy.

Public Notice issued Yes 25 August 2020

Wards Affected Earlestown; Town Centre;

Lisa Harris - Executive Director Place Report of [email protected] 07968 616638

281 12

Roy Benyon Contact Officer [email protected] 07500 786358

1. Summary

1.1 This report brings forward an opportunity for the investment of £2m into St Helens and Earlestown Town Centres to recognise the impact that covid pandemic has had one our town centre and to help and assist local businesses and the St Helens Economy to recover. It is anticipated that this significant level of investment will act as a catalyst for future investment and to accelerate delivery of the Council’s regeneration programmes.

2. Recommendations for Decision

Cabinet is recommended to:

i) Approve the acceptance of the £1m Liverpool City Region (LCR) Town Centre Fund to support the recovery of Earlestown and St Helens Town Centres and to approve the associated action plan for implementation.

ii) Approve the acceptance of the £1m Town Deal Accelerated Fund from Central Government to accelerate a key component of the Town Deal, for the demolition of Chalon Way Car Park to unlock a future development site in the St Helens Town Centre.

iii) Approve that in the event of the demolition costs exceeding the award of £1m, any gap in funding, up to a maximum of £100,000, to be funded from the Growth Reserve.

282 12 3. Purpose of this Report

3.1 The purpose of this report is to highlight two significant funding opportunities that have been secured for the Borough’s Town centres. The funding streams are the Liverpool City Region Combined Authority Town Centre Fund and the Government’s Town Deal Accelerated Fund both of which will provide much needed financial support to aid the recovery of Town Centres and to unlock development potential.

3.2 The report seeks Cabinet approval to the re-purposed action plan for the £1m Town Centre Fund to support the recovery of the Town Centres post Covid requiring projects to be completed by October 2021 and to allocate the £1m Town Deal Accelerated Fund to proceed with the demolition of Chalon Way Car Park to unlock future development potential. The proposed capital grant fund is to be spent by March 2021.

4. Background /Reasons for the recommendations

LCR Town Centre Fund

4.1 On 29th January 2020 Cabinet agreed to accept grant funding of £1 million provided by the Liverpool City Region Combined Authority for investment in St Helens and Earlestown Town Centres with an agreed action plan.

4.2 The proposed action plan at that time focused heavily on grants to support the occupation of vacant units, completion of a Town Centre masterplan, public realm improvements and Town Centre events.

4.3 The Council has executed a Grant Funding Agreement with the Combined Authority to secure the funding. In the light of the unprecedented challenge facing town centres in the post Covid recovery the previously approved action plan is no longer appropriate. As part of its Economic recovery plan the Combined Authority have asked Local Authorities to propose amendments to better support existing businesses. It is proposed to facilitate proposed changes with an addendum to the grant funding agreement.

4.4 The fund was originally designed to enable local authorities to reimagine and reshape town Centre’s. However, the impact of Covid19 has provided a huge challenge to the viability of Centres, and many existing businesses now need help and support. The re-purposing of the Town Centre Fund is designed to offer such assistance.

4.5 The re-purposed action plan was derived following consultation with Town Centre business owners and retailers. The Proposals will form a key part of the St Helens Economic Recovery Plan which is currently in development.

4.6 The projects proposed for the £1m LCR Town Centre grant funding are: -

 Project 1 - Small Business Grant Scheme - Suggested allocation £500,000. (minimum 100 businesses assisted)

This scheme is aimed at providing grants of up to £5,000 to support businesses to diversify, grow and make necessary adaptive changes to continue to trade through the Covid pandemic including the introduction of covid ssafe environments and physical improvements

 Project 2 - St Helens and Earlestown Centre Hubs - Suggested allocation £60,000. 283 12

An innovative hub created and maintained for communities and business to use as a shared space. The proposal aims to provide Wi-Fi and broadband enabled, have communication lines, businesses will be able to access, business advice, research facilities, and there will be facilities for community use for recreational/leisure activities, meeting rooms.

 Project 3 - Place Marketing and Public Engagement - Suggested allocation £100,000.

Place marketing & PR that promotes town centres and encourages residents to think and act local will support economic recovery, the sustainability of existing businesses and encourage new development.

 Project 4 - Introduction of Quality Accredited Schemes – Suggested allocation £20,000.

Relaunch of improving standards scheme with assistance from scheme organisers. Establishment of the new badge for quality establishments in the borough focused on the visitor experience. Providing opportunity to shape the future evening economy.

 Project 5 - Town Centre Animation – Suggested allocation £120,000.

This project will look at a key part of the recovery process where there is an increasing need for towns and cities to set themselves apart and present their urban centres as attractive places to visit. I light of covid safety we will need to improve the visitor experience of our town centres, develop cultural activities and art installations, making the best use of outdoor spaces within the town centres to attract an increased level of footfall, spend and profile. We will work with across the Council and with our cultural and town centre partners to ensure we maximise the monies available. This will complement existing events & activities in the town centre.

 Project 6 - Council Support / Ways to Work Hub - Suggested allocation £60,000.

Suggested combined with project 2 above - Proposal is to create a high-profile hub, located in vacant retail unit in Church Square, providing drop-in employment advice / guidance and access to vacancies. Branded as and staffed by Ways to Work. This opportunity will provide a gateway to wider Council services. Service will include one-to- one interviews, registrations for employers, and desk space for employment providers and recruitment. The intention is to provide additional drop in, community outreach sessions in Earlestown at a location, to be determined.

 Project 7 - Digital High Streets – Suggested allocation £140,000.

Project aims to provide for a well-established online marketplace with a digital place- based platform offering single click ordering, bookings and delivery across multiple businesses and business types. The Digital High Street will support businesses, self- employed people, hospitality and retail to continue to trade during these unprecedented times with online access and home delivery. It will build on the entrepreneurship of businesses demonstrated during the lockdown period. This will help local, independent businesses in local high streets and markets, return to trade and be more resilient and compete with larger global companies.

4.7 The funding is time limited and must be expended by October 2021. These projects will be 284 12 delivered within this timescale across both St Helens and Earlestown Town Centres.

Towns Fund – Accelerated Fund Grant

4.8 On 30th June Government announced that it would bring forward £5bn of capital investment projects, supporting jobs and the economic recovery. St Helens was identified as a qualifying town; with the support of the Town Deal Board we are currently preparing a bid submission. The Towns Fund aim is to create jobs and build stronger and more resilient local economies and communities. The Council has received confirmation from MHCLG that we are to receive a £1m Accelerated Town Deal fund grant. This is in advance of the Town Deal Fund bid which will be applying to access funding of up to £25 million.

4.9 The grant is for capital projects that can be delivered this financial year, as the funds must be expended by 31st March 2021. Government are particularly encouraging projects that lay the foundation for future investment, the guidance stated: -

 Demolition or site remediation where this will have benefit.  Improvement to, or new parks and green spaces and sustainable transport links.  Improvements to town centres including repurposing empty commercial properties.

4.10 The requirement to deliver projects this financial year presents significant challenge and narrows the field of deliverable projects. To be successful, projects must have indicative costs identified and an achievable delivery programme.

4.11 Officers conducted a review of a number of Town Centre projects and assessed them against the funding criteria. The demolition of the Chalon Way Car park has been assessed as meeting the guidance criteria and being deliverable within the budget and timescales.

Demolition of Chalon Way Car Park

4.12 The Chalon Way car park acts as a barrier to the Town Centre and conceals the Canal which is a key feature in the Towns heritage, this area has the potential to be enhanced as part of future regeneration proposals. The demolition of the car park would act as a “statement of intent” and would create a future development opportunity, in the interim it could, provide a platform for other meanwhile uses.

4.13 The future use of the car park site will be established through the Town Centre masterplan which is currently under development and will be made available for public consultation later this year. The loss of car parking may be a concern to users and the general public however, a recent car parking study has identified that there is sufficient capacity on all other Town Centre Car Parks to facilitate the displacement of vehicles and meet anticipated demand.

4.14 An initial feasibility study has been undertaken to establish the construction detail of the car park and to provide a cost estimate for the demolition. The initial estimate for the cost of demolition is £921,000 however, due to the absence of detailed information at this stage, this single point estimate has also been presented as a low and high range cost to reflect the degree of cost variance as the design detail is developed and the scope is refined. The low cost is £830,000 and the high cost would be £1,013,000 (inclusive of fees).

4.15 There is the potential that the demolition costs could exceed the £1m award of accelerated funding and it is therefore recommended that a further contingency sum of £100,000 be

285 12 earmarked from the Growth Reserve to cover any cost increase and risks associated with the project.

4.16. An essential element of qualifying for the grant is the ability to demonstrate how the Council will build on this initial accelerated fund within its future submission of a Town Investment Plan which is due for submission in January 2021. The proximity of the car park site to both the Canal and the Town Centre provides a significant development opportunity that could see a mixture of commercial, leisure and housing uses coming forward within an overall Town Centre masterplan.

4.17 This project aligns with the guidance and demolition could commence early 2021. This project will be subject to submission and subsequent approval by MHCLG to allow a release of Accelerated Capital funding allocation

5. Community Impact Assessment

The Community Impact Assessment identified the following key implications

 To ensure a fair and transparent allocation of business grants  To promote walking and cycling  To promote a key site for green space, links with heritage and community engagement  To be a catalyst for the regeneration of the Town Centre  To remove a site that has been associated with previous suicide attempts resulting in fatalities.

6. Consideration of Alternatives

6.1 There is an option to continue with the previous plan however given the significant changes and threats to existing businesses this was discounted as it was clear that support for the existing business base was required if they are to survive the dramatic change in the trading environment. Officers have reviewed best practice and consulted with national trade bodies and local businesses to identify the preferred approach.

6.2 The requirements of the Town Deal Accelerated Fund is specific in its request for projects and more so in delivering capital spend this financial year. Officers considered several options including CCTV and Improvements to the Gamble building to deliver the capital spend however, these were discounted as the specialist nature of the projects meant that anticipated delivery programme exceeded the available timescales.

7. Conclusions

7.1 This report seeks approval to accept the Liverpool City Region Town Centre Fund and the Town Deal Accelerated Fund and to use these funds to commission the demolition of Chalon Way Car Park and provide a package of support for existing businesses.

7.2 These funds offer an excellent and timely opportunity to support the economic recovery in our Town Centres and to demonstrate our commitment to future regeneration. The long-term effects of the pandemic are as yet are unknown, but the proposed use of the Town Centre Fund will provide much needed support and opportunity for businesses to adapt to this changing environment.

286 12 7.3 The projects will be delivered across St Helens and Earlestown Town Centres and will help businesses to begin to build back better providing them with the support and facilities to innovate and adapt.

8. Implications

8.1 Legal Implications - What are the legal implications? Has the relevant Legal Officer confirmed that the recommendations within this report are lawful and comply with the Council’s Constitution?

8.1.1 The repurposed action plan for the Town Centre Fund, once approved will become an addendum to the existing Grant funding agreement which has been agreed with the Combined Authority.

8.2 Community Impact Assessment (CIA) Implications

What are the implications for the following areas identified from the CIA?

The Community Impact Assessment identified the following key implications. There are key aspects focused on ensuring this investment creates opportunity for growth, the unlocking of key heritage assets, the promotion of a key area for regeneration. Other aspects raised cover the need for fairness on the allocation of business grants and ensuring the eligibility criteria is checked and monitored for allocation of grants. It is also to be noted that Chalon Way Car park is used to accommodate match day parking during the rugby season with on average 200 additional vehicles using the venue. Alternative parking provision currently exists within the Town Centre to meet this level of match day parking and to hopefully encourage linked trips.

8.2.1 Social Value - How does the proposal support employing local people, spending in the local economy, and local procurement?

8.2.1.1 The aim of the funds is to sustain and secure local businesses, to provide facilities and encourage new local business ventures. This will help to safeguard local employment and develop new employment opportunities. The Town Centre hub is aimed to link residents to these opportunities. It is intended the projects will also encourage footfall to support the local economy.

8.2.2 Sustainability and Environment - How does the proposal impact on sustainability and the environment?

8.2.2.1 The chosen option for the accelerated fund will be the demolition of the car park. The car park demolition process will have to comply with all environmental requirements for dust, noise and contamination both in the process of demolition and the removal of debris from the site in a controlled and regulated manner. The removal of the car park will also reduce the Council’s energy costs by £30,000.

8.2.3 Health and Wellbeing - How does the proposal support and promote public health and wellbeing?

8.2.3.1 Helping to mitigate the economic impacts will help to improve the health and well-being of our citizens. In providing advice and support for business adaptation local businesses can trade whilst adhering to social distancing and Covid guidelines which will also help to minimise infection rates. Providing a more welcoming environment will also help to support the wellbeing aim of addressing mental health. 287 12

8.2.4 Equality and Human Rights – What are the Equality and Human Rights implications? If there is an adverse impact what mitigation has been put in place?

8.2.4.1 Within the Community Impact assessment the fairness and transparency of the allocation of business grants within the Town Centre Fund has been highlighted as a key consideration which will be monitored as part of the grant application process.

8.3 Customers and Resident - What are the implications for our customers/residents?

8.3.1 The businesses and residents will benefit from the investment of the Town Centre Fund. Support to businesses will be given for recovery. There will be a need to ensure that residents and visitors to the Town Centre are fully informed of these changes and the availability of parking provision is appropriately signposted and promoted health protection with the use of cycling and walking.

8.4 Asset and Property - What are the issues? Does the report propose and reduction, addition or change to the council’s asset base or its occupation?

8.4.1 Chalon Way is a council owned asset and due to its age has significant maintenance liabilities which will be offset by the need to utilise the site for regeneration purposes. Current liabilities include annual maintenance and utility costs of £36,872 per year. The removal of the car park will unlock land with a potential elevated land value that will be advantageous to the Council in promoting investment and regeneration to the key location.

8.5 Staffing and Human Resource - What are the workforce implications? Have Senior HR Officers been consulted?

8.5.1 Several of the projects are cross cutting with existing Council programmes or officer roles and therefore the expenditure can be accommodated with no need for additional human resource, there may be a need to reprioritise existing work programmes to accommodate the delivery timescales. The Place Directorate is currently recruiting project support to help deliver the town deal programme and this resource will be utilised to monitor progress and ensure key milestones are achieved. Chalon Way car park is predominately used for permitted council staff parking, there will be a need to relocate this to other Town Centre locations. Given the new flexible way of working the need will be reduced and therefore there will still allow capacity for public use on the remaining car parks.

8.6 Risks - What are the issues? How are we mitigating them?

8.6.1 The delivery of projects within the funding timescales is identified as a key risk. Consideration will need to be given to prioritisation of internal resources and additional external resource to add capacity.

8.6.2 Delivery and implementation of projects could be impacted upon by any future Covid outbreaks.

8.6.3 The costs of the car park demolition in relation to the allocated grant figure. Additional costs up to a further £100,000 will be covered in a contingency from the Growth Reserve.

8.6.4 Procurement of the projects for the Town Centre Fund will need to comply with procurement requirements but there will be a need to ensure the outputs from the projects assist and deliver as early as possible to assist in the economic recovery from the pandemic. The car park 288 12 demolition contract will need to be executed in a timely manner to ensure project timescales are met.

8.7.1 The grant allocations require no match funding and can be added to the Council’s revenue and capital budgets. Both projects are fully grant supported, subject to the confirmed demolition costs of Chalon Way Car Park.

8.7.2 The £1m LCR Town Centre Fund will be allocated to projects as identified in para 4.6.

8.7.3 The estimate for the demolition of Chalon Way Car Park is between £0.83m and £1.013m. It is requested that a contingency of up to £100,000 be earmarked to fund any additional costs over the £1m Accelerated Towns Fund, to be funded from the Growth Reserve. Chalon Way Car Park generated income of £219,000 in 2019/20. The budgeted net surplus in 2020/21 is £116,000. It is anticipated at this stage, that existing users of Chalon Way will take up capacity on other car parks in the Town Centre thereby minimising any loss of income. There is sufficient capacity in other existing Town Centre car parks to absorb demand resulting from the loss of Chalon Way car park.

8.8 Policy Framework Implications Are the recommendations within this report in line with existing council policies? If not, how is this to be addressed?

8.8.1 There are no implications in respect of the Policy framework.

9. Background papers

9.1 29th January 2020 Cabinet report - Liverpool City Region Combined Authority investment in St. Helens and Earlestown Town Centres

10. Appendices

10.1 None.

289 This page is intentionally left blank 13 Cabinet

23rd September 2020

Report Title: Ofsted Monitoring Report

Cabinet Portfolio Children and Young People

Cabinet Member Cllr Nova Charlton

Exempt Report No

Reason for Exemption N/A

Key Decision No

Public Notice issued N/A

Wards Affected All

Jim Leivers Director of Children and Young People Services Report of E. [email protected] T. 01744 671802

Jim Leivers Director of Children and Young People Services Contact Officer E. [email protected] T. 01744 671802

1 291 13 1. Summary

1.1 As a consequence of the 2019 Ofsted ILAC, which judged Children’s Services to be Inadequate, a series of monitoring visits are required prior to a full reinspection. In addition, as a consequence of this judgement the Department for Education (DfE) has made St Helens Council the subject of formal intervention.

1.2 The first of the Ofsted monitoring visits were conducted in early August, the outcome of which is attached as Appendix 1. The department has identified a number of areas requiring improvement. They have been developed as part of the wider improvement plan.

1.3 Further to this the Department is to be subject to a detailed Focused Visit between January and March 2021. The subject of the visit will be to review the ‘the quality of decision making in social care practice’.

2. Recommendations for Decision

Cabinet is recommended to:

i) To note the findings of the Ofsted Report

ii) To comment upon the planned actions of the Children’s Improvement Board (CIB) and the department

iii) To receive further reports on the progress of the department in addressing the areas identified in the Monitoring letter that require improvement

3. Purpose of this Report

3.1 To provide feedback to Cabinet following Ofsted’s Monitoring Visit.

3.2 To update on progress being taken in relation to required improvements arising from the Ofsted Monitoring Report.

3.3 To share the work of the Council and the Children’s Improvement Board in preparing for future Ofsted engagement.

4. Background /Reasons for the recommendations

4.1 The findings from the 2019 ILACS were:

 The impact of leaders on social work practice with children and families - Required improvement to be good  The experiences and progress of children who need help and protection - Required improvement to be good  The experiences and progress of children in care and care leavers - Inadequate

Due to the judgement of inadequate for the experiences and progress of children in care and care leavers (Permanence) the overall effectiveness was judged to be inadequate. Consequently, the DfE has made the authority the subject of formal intervention. This has required the Council to establish an Improvement Board and for its work to be overseen by Intervention Managers from the DfE. In addition, Ofsted are required as part of the ILAC

2 292 13 process to undertake Monitoring Visits to ascertain progress. The first of these visits were undertaken between 10th and 12th August 2020.

4.2 The visit was conducted virtually without any face to face contact with social workers or their managers. Extensive information was provided as part of the preparation arrangements. This was the first remote inspection undertaken by Ofsted nationally and provided a good opportunity for future learning.

4.3 The attached letter identifies that considerable progress has been made by the service. It is pleasing to note that both frontline practice and leadership have been identified positively. There are however as with all inspection reports areas that require improvement. These include:

 Challenge Whilst progress has been made in this area the lack of challenge by managers in relation to practice is still a concern.

 Supervision This is now occurring in nearly all cases however there is a need to move beyond a ‘tick box approach’ in a number of areas.

 Recording Most case records are up to date however there are several cases that need to improve quality

 Improving consistency There remains a concern that practice is still too variable and common standards need to be addressed

 Compliance Historically the lack of compliance in social work practice continues to be a hurdle to improvement

4.4 The above issues require significant hands on ‘practical improvement’. As part of the priorities of the Children’s Improvement Board these are issues at the forefront of future work. A detailed action plan will be prepared as part of the department’s Principal Social Worker brief and will be reported monthly to the Children’s Improvement Board.

4.5 In addition to the required improvements to practice the Monitoring Visit along with the DfE review identified several wider strategic/policy initiatives. These include:

 The future shape of Early Help and Child in Need services.  Improvements in the development of alternative to care initiatives.  The creation and implementation of a placement sufficiency strategy.

These matters are currently being addressed either as part of the wider Council’s reorganisation arrangements or a dedicated project development plan as part of the placement strategy. These matters are however complex and have proven to be difficult to implement.

4.6 As part of the ongoing inspection regime Ofsted are to introduce over the Autumn and Winter period a series of Focused Inspections. The theme of these is to review the quality of decision making in Children’s Social Care. It is likely to concentrate on three major areas: 3 293 13

Help & Protection

 Effectiveness of front door, with reference to any rise in & response to referrals, S47 enquiries & strategy discussions.

 Progress of children subject to CP and CIN plans.

 Progress of those recently stepped up or stepped down to early help & the exercise of thresholds. Children in Care & Care Leavers

 Edge of care/pre-proceedings.

 Focus on physical & mental health of children in care & care leavers, including how LA has maintained contact with them & facilitated contact with families.

 Placement decisions, including quality of matching, particularly where sufficiency is a challenge.

Impact of Leaders

 The quality assurance of practice & “line of sight” to the quality & impact of practice with children & families.

 Management & workforce capacity, including responses to staff wellbeing.

 Effectiveness of leaders in leading & contributing to multi-agency working that leads to effective social work practice.

The intention of Ofsted is to evaluate a range of key issues in relation to ‘quality of decision making’. Further detail in relation to this is shown in Appendix 2.

5 Consideration of Alternatives

5.1 Not Applicable.

6 Conclusions

6.1 The Ofsted Monitoring letter in Appendix 1 provides the authority with its first opportunity to have independently assessed its progress in improving practice since the ILAC inspection of 2019. There is much to be positive about. The service is now clear as to its priorities and has a clear understanding of what it needs to do to be judged as good. The Monitoring letter is essentially a progress report on the work that has been undertaken over the last six months. Whilst more is needed, this is a good beginning. The service now needs a step change in its improvement journey. Whilst Ofsted recognised the emphasis placed upon being child focused; this now needs to be sustained.

4 294 13 7 Implications

7.1 Financial Implications

There are no direct financial implications arising from the Ofsted Monitoring report. The consequences of delivering a service improvement agenda however requires significant additionality. In setting the 2020/21 Revenue Budget the need for improvement was recognised. In delivering the future placement strategy there will be a significant Capital requirement. This will be addressed separately.

7.2 Legal Implications

Not Applicable.

7.3 Staffing/HR Implications

In delivering the required improvement agenda significant training and staff development arrangements have been identified. In the medium term there will be a need to change the ways in which staff are currently working.

7.4 Impact on our customers/residents

Not Applicable.

7.5 Community Impact Assessment

Not required

7.6 Asset / Property Implications

Not Applicable.

7.7 Environmental implications

Not Applicable.

7.8 Policy Framework Implications

Not Applicable.

7.9 Risks

Not Applicable.

7.10 Link to council’s priorities

Improvement to Children’s Services accords with the delivery of wider Council priorities.

8. Background papers  ILAC Report 23rd September – 4th October 2019  Revised Ofsted Focus Visit Regulations 5 295 13  Priorities and Terms of Reference of Children’s Improvement Board

9. Appendices Appendix One: Ofsted Monitoring Report August 2020 Appendix Two: Ofsted Focused Inspection Key Areas of Work

6 296

13 Ofsted Piccadilly Gate T 0300 123 1231 Store Street Textphone 0161 618 8524 Manchester [email protected] M1 2WD www.gov.uk/ofsted

2 September 2020

Jim Leivers Interim Director of Children’s Services St Helens Council Atlas House Corporation Street St Helens WA9 1LD

Dear Mr Leivers

Monitoring visit of St Helens children’s services

This letter summarises the findings of the monitoring visit to St Helens children’s services on 11 and 12 August 2020. The visit was the first monitoring visit since the local authority was judged inadequate in September 2019. The inspectors were Mandy Nightingale and Diane Partridge, Her Majesty's Inspectors.

Her Majesty’s Chief Inspector of Education, Children’s Services and Skills is leading Ofsted’s work into how England’s social care system has delivered child-centred practice and care within the context of the restrictions placed on society during the COVID-19 (coronavirus) pandemic.

The methodology for the monitoring visit was in line with the ILACS framework, however, the delivery model was different. This inspection was undertaken off site and made use of information technology and video conferencing to facilitate discussions between inspectors and local authority social workers, managers and leaders. This model was agreed by the Interim Director of Children’s Services and Ofsted to deliver this visit effectively while also working within national and local arrangements during the coronavirus pandemic and meeting the needs of the workforce in St Helens.

Areas covered by the visit

This first monitoring visit focused on early permanence planning, to evaluate the extent to which the full range of permanence options are achieved in a timely way for children, and the level of IROs’ challenge in relation to the quality of permanence planning, to ensure that more robust oversight promotes practice effectiveness. Inspectors also focused on the impact of leaders and managers on social work practice, and the accuracy of the local authority’s own evaluation of the quality of social work practice with children and families.

Ofsted is proud to use recycled paper 297

Inspectors considered a wide range of evidence during this monitoring visit, including electronic case records, supervision notes and other key documents provided by the local authority. In addition, inspectors spoke with a range of staff, including social workers and managers.

Overview

The local authority’s focus on achieving early permanence for children and the challenge and oversight by the independent reviewing officers (IROs) are starting to lead to some positive impact on children’s experiences and progress. The local authority is aware that there is more to do to achieve consistent improvements in practice that result in positive impact for all children in St Helens who require permanence.

Since the last inspection in September 2019, when the local authority services for children were judged inadequate, the council has continued to invest substantial funds into children’s services. This has enabled the local authority to increase the number of social workers and social work teams, and to create a dedicated director of children’s services post.

Under the leadership of the interim director of children’s services and assistant director, the local authority has sustained and further developed the early changes that were made following the inspection in September 2019 and has reviewed its priorities for continued improvement.

Leaders have implemented enhanced systems and processes for quality assurance and the tracking of children who require permanence, and they have strengthened the effectiveness of oversight by IROs. These changes are starting to improve the response to most children who have recently come into care or whose families require support through pre-proceedings.

Findings and evaluation of progress

The local authority’s ‘achieving permanence self-assessment’, dated July 2020, is accurate and provides a good overview of leaders’ understanding of the impact of services on children’s experiences and progress. Leaders recognised that the initial improvement plan was not delivering the changes they envisaged and they, therefore, revised this in early 2020. The new plan provides leaders with an effective monitoring tool and supports them in measuring the impact of improved services on children’s experiences and progress.

The financial investment, which increased the funding to children’s services by nearly 30%, has led to increased capacity across children’s services. This has helped to reduce some social workers’ caseloads, giving them more time to work directly with children to understand their needs and improve their outcomes.

298

Quality assurance, through audit activity, has increased. A more robust moderation of case audits is now in place, but the audit methodology is too focused on compliance and processes, rather than on the quality of social work practice and its impact on the experience and progress of children. While this provides some assurance to leaders and managers about compliance with processes, audit activity is not effective enough in improving social workers’ learning and practice. A revised audit methodology, which appropriately aims to improve the engagement of social workers and has a stronger focus on the quality of practice, was introduced in July 2020. It is too soon to see the impact of this.

Thorough tracking and monitoring processes for achieving early permanence are now in place, and these are helping to improve management oversight and the timeliness of securing permanence for children who have more recently come into care. Although oversight has been strengthened, there is still some inconsistency in senior management decision-making and, for some children, the right decisions are not being made to safeguard them through escalation to pre-proceedings at the earliest opportunity. Furthermore, not all decisions are uploaded to the child’s electronic record or clearly recorded.

When decisions are made to manage concerns for children under the pre- proceedings’ framework, or to make an application to the court for care proceedings, the newly implemented processes to support management oversight and grip are increasingly effective. Social workers told inspectors that the new framework supports them to maintain a focus on achieving early permanence for children. This aligns with the findings from this monitoring visit. The identified risks for children are regularly reviewed by first-line, middle and senior managers and this means that when the risks reduce, so does the level of intervention. For some children this has positively meant a step away from pre-proceedings work.

Letters are promptly sent to parents when a decision to enter pre-proceedings is made. These letters clearly set out the formal steps required for parents to comply with the pre-proceedings. However, the letters to parents do not clearly set out the local authority’s concerns or previous interventions, so they are not advised in writing in a way that helps them to understand what this means for them and their children.

Action plans arising from the pre-proceedings meeting between the local authority and children’s parents state clearly what the expectations are of parents to improve their children’s circumstances and reduce risk. These are mostly aligned to the child in need or child protection plan. However, the pre-proceedings plans contain too many actions with no timescales and, therefore, parents are not provided with a clear timeframe in which to address the actions.

Leaders have appropriately reviewed the IRO role and its effectiveness in improving practice. This has enabled the local authority to set clear and achievable priorities for the next 12 months. There are early signs that the IROs’ improved oversight and challenge are beginning to impact on social work practice. There is evidence of increasingly timely planning and achievement of early permanence for children newly

299

coming into care, particularly for younger children and those not previously known to the local authority. A greater focus on practice to improve the experiences and progress of children, rather than compliance to processes, is now being appropriately planned.

Children’s looked-after review meetings take place regularly and mostly involve the relevant professionals. The child’s voice is clear in most review records and, for some children, they are actively engaged in planning and leading their reviews. For most children, the options for permanence are considered in their first- and four-month review records. It is often not clear, though, what the preferred permanence option is, the legal orders being considered or the timeframe for achieving a permanence decision. This means that, for children, their families, carers and other professionals, there is not a clearly written record stating what the permanence plan is for the child.

Some children have been known to St Helens Council for a long period of time and there have been missed opportunities to take decisive action at an earlier point in time when concerns first emerged. In some cases, this is making it difficult for social workers to engage with children and families. For a small number of children, the lack of earlier intervention causes delay to securing permanence for children when the local authority’s care plan for their removal from their parents’ care is not agreed and endorsed by the child’s guardian and the courts. Increased oversight, scrutiny of social work practice and review of children’s circumstances by managers are starting to improve the quality of social work practice with children and their families. However, the pace of this improvement is not rapid enough across the service.

A strength in St Helens is that social workers know the children they work with well. Most social work practice is child-focused, with social workers engaging children in meaningful and creative direct work. Social workers have a good understanding of the risks and challenges facing children and their families. The increased prevalence of the child’s voice within case records is beginning to inform care planning effectively.

Reports and minutes are written directly to children, and this means that they are given an explanation of what is being planned for them and why. However, too many of these include social work jargon and they are not written in child-friendly language.

Some children’s records are not up to date or are incomplete; they do not provide a rationale for the intervention and are not always detailed enough to demonstrate good practice and planning for children. Assessments of children’s needs do not all contain historical information, engage fathers and other significant males, review mothers’ relationship history or provide an analysis that identifies risk and what this means for children. When children’s written records do not contain enough detail, this was found to impact on managers’ and leaders’ ability to make informed decisions for children.

300

Management oversight and supervision have improved in regularity, but the quality of these does not always support social workers to make timely decisions for children. The written records of supervision contain limited evidence of a reflective discussion or a rationale for decision-making. They mostly contain information copied and pasted from other key documents, and some include actions to complete tasks that are not routinely reviewed.

This first post-inspection monitoring visit letter will not be published. I am copying this letter to the Department for Education.

Yours sincerely

Mandy Nightingale Her Majesty's Inspector

301 This page is intentionally left blank 13

APPENDIX 2 Restarting Routine Inspections (COVID-19) August 2020 Following the suspension of routine inspections in March 2020 due to COVID-19, Her Majesty’s Chief Inspector (HMCI) have now outlined their interim plans for a phased return to routine inspections. These interim arrangements will run initially from late September until the end of December 2020. There is potential to extend this if measures for responding to and recovering from COVID-19 continue into 2021. Focused visits have been identified as an appropriate way to hold local authority Children's Services to account but will not make a graded judgement. These visits differ slightly from usual focused visit arrangements in that they will have a broader scope, with a particular focus on the quality of decision-making; fieldwork will take place over three days; and the size of the inspection team is increased, including one schools HMI. Scope – Focused visits will evaluate the quality and impact of decision making in three areas:  Help and Protection

 Children in Care and Care Leavers

 Impact of Leaders

As part of the Focus Visit the role of the Schools HMI will be to evaluate:  The educational progress of children in care  Children missing in education  Electively home-schooled children  How the local authority has promoted school attendance  Partnership working between schools and the local authority  The effectiveness of the virtual school

303 13

 The experiences of car leavers not in education, employment or training (NEET)

Across all areas Inspectors will be looking at:  What has happened for children & families in the 6 months before the visit – their experiences  Child-centres practice that has been carefully risk assessed to result in best possible decisions for children in the context of the pandemic locally  Evaluating & seeking assurance about quality & impact of practice within a challenging content, when circumstances may have resulted in decisions that may have been difference to those taken in normal times  Give credit to evidence of practitioners & managers doing the right thing for children in the circumstances  Understand how any of the changes to regulation set out in The Adoption and Children (Coronavirus) (Amendment) Regulations 2020have impacted on the experiences of children and families Further details of the Focused Visit Inspection along with indicative timetabling can be found in the Ofsted guidance note.

https://www.gov.uk/government/publications/inspecting-local-authority-childrens- services-from-2018/inspecting-local-authority-childrens-services

304 14 CABINET

Wednesday, 23 September 2020

Development of the Red Bank Educational Unit and Report Title: Relocation of Penkford Special School

Cabinet Portfolio Cabinet Member – Developing Young People

Cabinet Member Councillor Sue Murphy

Report – not exempt Exempt Report Appendix 1 – exempt by virtue of paragraph 3 of Part 1 of Schedule12A of the Local Government Act 1972

Appendix 1 – information relating to the financial or business Reason for Exemption affairs of any particular person (including the authority holding the information.

Key Decision Yes

Public Notice issued Yes 25 August 2020

Wards Affected (All Wards);

Jim Leivers Interim Director of Children’s Services Report of [email protected] 01744 671802

Sharon Fryer Assistant Director - Integrated Children's Health, CCG Contact Officer [email protected] 01744671812

305 14

Borough Ensure children and young people have a positive start in life x priorities Please mark X Promote good health, independence and care across our communities for any priority supported by this report Create safe and strong communities for our residents

1. Summary

Summary of key issues in the report:

1.1 Penkford Special School buildings have exceeded their life expectancy and there is a need to consider how pupils can be accommodated within a fit for purpose building.

1.2 There is an increasing pressure on the high needs budget of the Dedicated Schools Grant due to increasing demand for specialist provision for pupils with special educational needs and disability. This proposal is part of a range of initiatives to develop more cost-effective quality provision for pupils with Social, Emotional and/or Mental Health needs and reduce the reliance on independent non maintained special schools.

1.3 A feasibility study on whether the Red Bank educational unit could be re-purposed has established the building could provide a suitable alternative for Penkford School, at an approximate cost of £6.806 million.

1.4 Alternative options to have been considered including alternative sites or rebuilding Penkford School on its current site. However, the development of the Red Bank educational unit is considered to represent a better option for the children and young people and delivers better value for money.

1.5 The relocation of Penkford School to Red Bank educational unit is still subject to Charity Commission approval.

2. Recommendations for Decision

Cabinet is recommended to:

i) Approve the development of the former Red Bank educational unit and the relocation of Penkford School; and, subject to Charity Commission approval of the proposed development, to enter into a lease with the Company on the terms set out at Appendix 1 of this report. 306 14 ii) Approve the overall project costs associated with the development of the educational unit, estimated as £6.806m. iii) Approve the allocation of funding for the project as being £1.393m that is already earmarked in respect of Penkford School, with an additional £0.5m from currently uncommitted funding within the Children’s Services capital programme, and £4.913m from Council capital receipts. iv) Approve the submission of a planning application in respect of the proposed works at the Red Bank site. v) Approve that, subject to tender costs being within approved budget levels, the appointment of a constructor is approved by Delegated Executive Decision following a competitive tender process via the North West Construction Hub.

3. Purpose of this Report

3.1 To inform Cabinet of the condition and suitability issues that need to be addressed in respect of the current Penkford School building and site.

3.2 To identify current and future placement needs for children and young people with Education, Health and Care Plans.

3.3 To receive relevant information in relation to the number of Special Educational Needs and Disabilities (SEND) type placements planned for future provision.

3.4 To recommend alternative arrangements including the use of the former Red Bank secure children’s home.

3.5 To give consideration to increasing the numbers of young people to be educated in the new provision.

4. Background /Reasons for the recommendations

Special Educational Needs and Disabilities Context

4.1 In 2015 the Children and Families Act introduced a new system of assessment, planning and support for children with special educational needs and/or disability, which has created demand pressures across the system. Since 2015 requests for statutory assessment of children with complex needs has increased annually. During 2017/18 there were a total of 165 requests for assessment; in 2018/19 there were 325 requests - an increase of 97%. As a result, the number of children in the borough supported with an Education Health and Care Plan (EHCP) has more than doubled from 490 to 1150. In July 2019 Cabinet approved additional investment in a range of services to meet new statutory burdens to ensure that children’s needs are identified, assessed, planned for and met.

4.2 The growth in demand for specialist assessment has led to an increased demand for special school places, particularly in respect of pupils with anxiety or mental health issues. St Helens has a growing number of young people experiencing poor mental health, and it has some of the highest rates of hospital admissions for self-harm or mental health crisis in the UK. Typically, pupils with social, emotional and mental health (SEMH) needs will experience a range of issues such as attachment disorders, attention deficit hyperactivity disorder (ADHD) and autism spectrum disorder (ASD). Children with SEMH needs will often find it difficult to 307 14 maintain emotional well-being in all aspects of their lives and are often unable to sustain learning within a mainstream educational environment. Consequently, there are a number of pupils who currently attend in-borough Pupil Referral Units who require a specialist SEMH placement.

4.3 Analysis of the current placement profile shows that there has been a 35% increase in numbers placed in independent non-maintained special schools (INMSS) since 2015 as demand exceeds supply, with particularly high demand for SEMH placements. Penkford School provides for a maximum of 55 pupils and, alongside this, the Council commissions approximately 50 SEMH places from the INMSS. Almost half of these placements are for children who are in the care of the Council and, as a consequence, some of our most vulnerable young people are further disadvantaged as they may not benefit from wrap around support from local services.

4.4 In addition to an increase in the number of INMSS placements in recent years, the average placement cost has risen significantly. The average annual cost of a placement is £56k, whereas the Penkford average cost per place is £26k. Furthermore, the value for money provided by independent settings is not consistent across all settings. Analysis of costs indicates that the greatest impact in terms of cost efficiencies is in secondary-age placements, as the highest per-pupil costs tend to be at Key Stage 3. In many cases, these high-cost independent sector placements are necessitated by a lack of in-borough capacity rather than the complexity of pupils’ needs.

4.5 Costs in respect of INMSS placements are funded from the ring-fenced Dedicated Schools Grant (DSG). Expenditure on placements has increased significantly in recent years (see table below). It is estimated that expenditure in the current financial year will be approximately £5.5m (a further increase when compared with 2019/20), which will result in a budget pressure against the DSG of £2.8m. In addition, there are usually significant transport costs associated with pupils attending out of borough educational settings. The further development of in- borough provision would enable more cost-effective transport arrangements to be put in place.

Independent Non-Maintained Special Schools – Costs and Placements

2017/18 2018/19 2019/20

Total expenditure £2.8m £3.5m £4.8m

Number of placements 97 111 119

4.6 St Helens Council is committed to ensuring that all children can have their needs met in cost effective educational settings - in their local communities wherever possible. The proposed redevelopment and relocation of Penkford will complement a range of measures being taken to improve the quality and sufficiency of provision; respond to demand increases; and reduce spending on independent non-maintained special schools. These measures include a successful bid for the development of a special free school, in collaboration with Halton Council, that will provide an additional 25 places; a new specialist unit within Ashurst Primary; and strengthening the capacity within mainstream schools to manage pupils with SEMH. These developments aim to reduce the reliance on commissioning high cost placements from the independent non maintained sector (INMSS) and invest in our local education system.

308 14 4.7 The Red Bank site offers the opportunity to increase places (from 55 to 65) and create a more therapeutic learning environment to support young people to improve their emotional wellbeing, promote independent self-regulation, and build relationships and positive social interaction. Importantly, this will include a cohort of girls to ensure equity of places and the provision of a co-educational facility.

4.8 The site has the potential to offer flexible spaces and a more bespoke curriculum as well as safe spaces for young people in crisis, ensuring that they receive an appropriate level of care within a modern, fit-for-purpose facility.

Penkford Special School

4.9 Penkford Special School is a single-storey system-built school which, together with the supplementary modular buildings on site, has exceeded its life expectancy (being approximately 50 years old). The existing school site is adjacent to a number of sub-ground pipelines which would significantly reduce the opportunity to add further buildings or redevelop the site in the future (based on advice from the Health & Safety Executive). It is unlikely that any proposal to provide the future flexibility to accommodate additional students would be granted planning consent. Alternatively, consideration could be given to rebuilding a “like for like” replacement on the existing Penkford site. Logistically, this would probably require a closure and temporary relocation, which is unlikely to be financially viable. In addition, the underground site services restrict the development of a suitable on-site replacement. Relocation and re-provision on an alternative site is therefore, considered the most viable solution to the continued provision of the school.

4.10 The school was earmarked for a complete rebuild under the national Building Schools for the Future (BSF) programme and, as a result, only emergency and maintenance repairs have subsequently been undertaken. Due to the termination of the BSF programme the rebuilding of the school did not proceed.

4.11 The Council has been working with the Education and Skills Funding Agency (ESFA) to address the condition issues at Penkford. The school is included in the national Priority Schools Building Programme (PSBP) and money has been allocated through this programme to address some of the repair issues. The amount of funding available through the PSBP is £530k, which is not sufficient to make a significant difference to the overall fabric and suitability of the building. The ESFA has, however, confirmed that this grant could contribute to a relocated provision on an alternative site. A condition of the funding that is available through the PSBP is that projects should be completed by December 2021. Funding is likely to be withdrawn if projects are not completed by that date. The PSBP allocation of £530k represents less than 10% of the total cost of the proposed redevelopment of the Red Bank educational unit and, subject to the appropriate Council and Charity Commission approvals being in place, it is likely to be the case that a substantial proportion of the construction work will have been undertaken by December 2021. Discussions with the ESFA have indicated that this level of progress would reduce the risk of the PSBP funding being withdrawn.

4.12 The fire risk assessment for the building has recommended that a number of safety measures are required. The risk assessment is made more complex due to the unknown fire resistance of the original internal wall construction, which would need to be addressed throughout the school. The roof, external fabric and windows are in poor condition. The estimated cost of essential maintenance that is required at the school for it to remain safely operational for the next two years is currently being assessed.

309 14 4.13 Upgrades to the fire alarm system and the internal lighting have been completed during the summer 2020 holiday period.

The Former Red Bank Community Home

4.14 The former Red Bank Community Home was closed in June 2014, which has left Red Bank Schools Limited with a large, redundant, purpose-built facility with potentially significant associated liabilities.

4.15 In May 2014 Cabinet delegated to the Director of Urban Regeneration, Housing and Culture, in consultation with the Leader of the Council, all powers to manage the property upon the closure of Red Bank and progress the site to a future use.

4.16 The former Red Bank Community Home site is owned by Red Bank Schools Limited, with the Council having been responsible for the management and operation of the facility.

4.17 In 2010 approximately £4m was provided by the Department for Education to build a new educational unit. Whilst this building has been decommissioned following the closure of the site, it is feasible that this building could be reused for educational purposes. All other buildings on the site are no longer considered viable for re-use and therefore represent a liability to both the Council and the Company.

4.18 The Department for Education may require local authorities to repay (in full or in part) capital grants that have been provided for the construction of assets where those assets cease to be used for the intended purposes or where the asset is sold by the local authority. In 2011 the DfE issued specific guidance in respect of the recovery of grants in relation to secure accommodation for children, such as Red Bank. The Council has sought specific advice from the DfE in respect of the possible redevelopment of Red Bank for use as a special school and has received confirmation that no recovery of grant monies would be imposed.

4.19 In January 2019 Cabinet approved the following measures in relation to the potential development of the Red Bank site and relocation of Penkford School:

 to earmark the use of the former educational unit at Red Bank for the relocation of Penkford School (subject to the formal approval of Red Bank Schools Limited);  to proceed with a detailed design for the refurbishment and extension of the Red Bank educational unit in consultation with Penkford School;  to proceed with the demolition of all other buildings on the former Red Bank site (subject to assurances regarding reimbursement from any proceeds of sale from disposal by Red Bank Schools Limited).

4.20 An initial feasibility study was undertaken to establish whether the redundant educational unit could be re-purposed to allow the relocation of Penkford School. This study concluded that the building could provide a suitable alternative for Penkford School at an approximate cost of £3.6 million.

The Charity Commission and Red Bank Schools Limited

4.21 Red Bank Schools Limited is a registered charity and it is not possible to purchase or lease any land owned by it at a price which is less than market value without the consent of the Charity Commission. As a residential allocation has been sought for the land as part of the 310 14 Local Plan process, the potential open market value of the land could be significant. Hence the Charity Commission will need to carefully consider any proposal to transfer the land at an undervalue.

4.22 In March 2018 the Council made a formal request to the company directors of Red Bank Schools Limited to permit the relocation of Penkford School to the former educational unit located on the Red Bank site. The Company was agreeable in principle to the proposal, however, formal approval by the Charities Commission would also be required to be sought once details of the development were finalised, and the terms of the lease from the Company agreed. In addition, the company would be required to consult and get the consent of Legh Family Estate who have a legal interest in the site.

4.23 As the proposals for the site have evolved the Company has continued to liaise with the Charity Commission with the aim of achieving consent to the proposed relocation of Penkford School. However, the speed of progress is determined by the Charity Commission and the Council has only been in a position to seek formal approval on the matter once the proposals for the re-siting of Penkford school had been finalised.

4.24 A formal application to the Charity Commission for consent was made on 30th March 2020. After initially considering the application, the Commission raised a number of detailed questions of the Company. Subsequently the Company has worked with the Council to seek to obtain full answers to the questions raised. On 17th July the Company provided a substantive response to the Commission and is now awaiting the further view of the Commission.

Development of Proposals

Estimated Cost of Red Bank Redevelopment

4.25 Galiford Try was appointed in March 2019, following a competitive tender process via the North West Construction Hub, to undertake the pre-construction phase of the project which would result in a fully developed design and costed scheme.

4.26 The overall projected costs for the scheme are as follows:

£m Estimated build costs including preliminaries 5.728 Risk register allowance 0.400 Contingency 0.150

Sub-total 6.278

Professional fees (net of fees previously claimed) 0.428 COVID risk allowance 0.100

Total Estimated Cost 6.806

4.27 The estimated costs referred to above are prior to undertaking a competitive tender process for the construction phase. In addition, non-recoverable VAT would be payable on all works procured on the project until such time that the Council has a confirmed legal interest in the property. This matter is currently being progressed by the Council’s legal department. The costs referred to above are exclusive of VAT, loose furniture and ICT equipment. Without the confirmed legal interest referred to above, the estimated total scheme cost would increase by 311 14 approximately £1.3m due to non-recoverable VAT. There is not considered to be any impediment to obtaining the appropriate legal interest in the property. However, should this prove not to be possible, the development of the Red Bank educational unit will be subject to review.

4.28 The latest estimated scheme costs are significantly higher than previous desk-top based estimates. This is due to a number of factors:

 the original estimate was based on a direct re-provision of the current school – the latest design incorporates revised accommodation requirements that improve the internal organisation of the school;  the proposed design creates three wings of similar provision with the shared specialist accommodation within the central core areas. This ensures that students mostly do not cross into other key stage zones when accessing specialist areas. These changes result in a more substantial internal reconfiguration of the building. Also incorporated into the design are the DfE recommended minimum room areas of 46 square metres – the existing rooms in the secure accommodation unit are smaller than this. This change has a consequential impact on the potential to retain existing internal walls and building services elements, the majority of which would be replaced;  due to the presence of great crested newt DNA on the site (being a protected species), design changes have been included to provide for alterations to the pond and Multi Use Games Area;  the development of an access road and pedestrian footpath (including street lighting, as the current access is an unadopted road) from the main road adjacent to the Red Bank site;  the re-provision of statutory utility services (eg gas, electricity) including the mains cables that have been stolen, and CCTV provision;  the pupil capacity has been increased from 55 places (which is the current Penkford capacity) to 65 places. The increase in places will enable female pupils to be accommodated. The expansion in places is part of a package of measures to increase the capacity of specialist provision to reduce the need for relatively expensive out of borough educational placements (see paragraph 4.7).

4.29 The option to extend the site to accommodate up to 100 pupils has been assessed. Although detailed design changes have not been undertaken, it would be feasible to add a fourth educational wing to the site. It is estimated that the total cost of the scheme would increase by £1.5m to £2m as a result of such an expansion.

4.30 Children and young people who have difficulties with their emotional and social development will often present with challenging, disruptive or disturbing behaviour. Pupils may also experience anxiety or depression, problems of conduct, self-harming, substance abuse, etc. A significant proportion of pupils have recognised disorders such as attention deficit disorder (ADD), or attention deficit hyperactive disorder (ADHD). In addition, pupils may have autistic spectrum disorder (ASD) as a secondary diagnosis. In order to break the negative cycles that can limit life chances, pupils with SEMH require a calm and nurturing environment that supports a more personalised approach. For this reason, it is recommended that the development of the Red Bank educational unit is limited to 65 places.

5. Community Impact Assessment

312 14 The Community Impact Assessment identified the following key implications

5.1 The proposal seeks to improve the educational experience of vulnerable young people with social emotional or mental health issues, improving their chances of developing protective friendships, training and employment opportunities which will support them in managing their emotional health and wellbeing as adults.

5.2 The proposed expansion of Penkford provision will enable female pupils to receive education and support in their local community.

6 Consideration of Alternatives

6.1 The option to construct a new special school on an alternative site has been considered and four potential sites have been identified: Carr Mill, Wynne Road, Parr Street and Simms Avenue (adjacent to Mill Green special school).

6.2 The use of the Wynne Road site would be subject to confirmation by the Department for Education because of its status as a former school playing field. Parr Street is contained within the geographical area of the potential town centre redevelopment and, as such, the use of the site upon which to construct a new school would need to be considered in the context the wider redevelopment plans.

6.3 Preliminary advice from the Council’s Planning Section is that the Carr Mill and Simms Avenue locations would be considered appropriate school sites in terms of planning regulations. Both sites are smaller in area than the Penkford site, although initial indications are that they could accommodate the preferred design of a new special school. Detailed feasibility assessments would need to be undertaken in respect of both sites to ascertain their suitability.

6.4 An assessment of the cost of a new-build option on an alternative site has been undertaken based on the current proposed scheme, specification and floor area. The estimated cost is summarised below and does not include site-specific abnormal costs, statutory utility services costs, and potential demolition or site preparation costs.

£m Overall build costs 6.680 External works and drainage 1.159 Contingency 0.150 Professional fees (10%) 0.790

Total Estimated Cost 8.779

6.5 The estimated cost of the development of an alternative site for the potential relocation of Penkford School is significantly higher (approximately £2m) than the proposed refurbishment of the Red Bank site. In addition, it is likely to be the case that the development of a new-build school on an alternative site to Red Bank would take longer to complete.

Estimated Cost of Rebuilding Penkford on the Existing Site

6.6 The estimated cost of rebuilding Penkford School on the existing site is summarised below. The costs are based on rebuilding to the same floor area and consideration has not been given 313 14 to which area of the site the new build could be located (see comments in respect of sub- ground pipelines in paragraph 2.9 above). No allowance has been made for potential decant accommodation.

£m Main construction works (including demolition / 3.526 segregation) External works and drainage 0.300 Preliminaries 0.556 Insurance, overhead and profit 0.189

Sub-total 4.571

Risk allowance, utilities, groundworks 0.250 Contingency 0.200

Sub-total 5.021

Professional fees (10%) 0.502 Specialist surveys and COVID risk allowance 0.150

Total Estimated Cost 5.673

6.7 Due to the site access constraints, construction work would be required to take place over a number of holiday periods. The alternative would require the extensive use of temporary accommodation which would incur significant additional cost. The reconstruction of the school on the existing site would not change the existing suitability shortcomings at the school particularly in respect of the creation of separate areas for individual key stage groups, and the potential for the school to provide for additional pupil numbers.

7 Conclusions

7.1 The estimated cost of the development of an alternative site for the potential relocation of Penkford School is significantly higher (approximately £2m) than the proposed refurbishment of the Red Bank site. In addition, it is likely to be the case that the development of a new-build school on an alternative site to Red Bank would take longer to complete.

7.2 Although the rebuilding of Penkford School on the existing site is a potentially lower cost option than developing the education unit at Red Bank (the difference in estimated costs being approximately £1.1m), the existing shortcomings would not be fully addressed and additional significant costs may be incurred in respect of, for example, decant accommodation.

7.3 The development of the Red Bank educational unit is, therefore, considered to represent better value for money.

8. Implications

8.1 Legal Implications

314 14 8.1.1 Any approval to proceed with the relocation which involve a transfer at an undervalue would be subject to the directors of Red Bank Schools Limited obtaining Charity Commission approval. Further details on this aspect of the matter are set out at paras 4.21 – 4.24 above. The proposed heads of terms of the lease between the Council and the Company are set out at Appendix 1.

8.1.2 Red Bank Schools Limited is additionally in the process of seeking freeholder consent from the Legh Family Estate for the proposed works to be carried out.

8.2 Community Impact Assessment (CIA) Implications

8.2.1 Social Value

8.2.1 Contractors at tender stage will be asked to outline within their submission Social Value targets including education/ employment opportunities.

8.2.2 Sustainability and Environment

8.2.2.1 The original Penkford school building is circa 50 years old, whilst the current Red Bank school was designed to higher stands as relevant at 2010 with the extensions proposed being delivered to meet the current building regulation requirements for thermal and energy in use performance. The new school is expected to perform more efficiently than the current school.

8.2.2.2 An ecologist has undertaken site surveys to assess species present on site. Initially the presence of great crested newts was identified through DNA testing and subsequent surveys have now identified that this is not the case. An existing area of the proposed school site is unaffected by the works and is available for development as a habitat area.

8.2.3 Health and Wellbeing

8.2.3.1The Red Bank site offers the opportunity to increase places and create a more therapeutic learning environment to support young people to improve their emotional well-being, promote independent self-regulation, and build relationships and positive social interaction. The site has the potential to offer flexible spaces and a more bespoke curriculum as well as safe spaces for young people in crisis, ensuring that they receive an appropriate level of care within a modern, fit-for-purpose facility.

8.2.4 Equality and Human Rights

8.2.4.1 Access to good quality education in an appropriate environment is essential to raise achievement and address inequality.

8.3 Customers and Resident

8.3.1 The proposal seeks to improve the educational experience of vulnerable young people with social emotional or mental health issues. An expansion in pupil numbers will allow more pupils to go to school close to their communities.

8.4 Asset and Property

8.4.1 The report proposes a redevelopment of the existing Red Bank site to allow for the re-location of Penkford School. 315 14

8.5 Staffing and Human Resource

8.5.1 None.

8.6 Risks

8.6.1 The existing facilities at Penkford school are in poor condition. Remedial work needs to be undertaken to maintain the school in a safe condition if the school were to remain operational for a further two years. A detailed review of required has been undertaken and work has been undertaken over the summer as set out in para 4.12 – 4.13.

8.7 Finance

8.7.1 The Children’s Services capital programme includes earmarked but currently uncommitted funding of £863k in respect of refurbishment works associated with Penkford School (professional fees totaling £143k have previously been incurred). Prior to this report, no formal decision has been taken by the Council to rebuild or relocate Penkford. As such, the departmental capital programme does not contain funding to rebuild the school. The £863k of available funding referred to above comprises money that was previously allocated for necessary maintenance works at the school, in addition to grant funding provided by the Department for Education to enable local authorities to undertake capital investment in provision for pupils with special educational needs and disabilities:

 £422k SEND capital grant;  £441k previously committed for refurbishment work.

8.7.2 The Education Skills and Funding Agency (ESAF) has confirmed that £530k has been earmarked within the Priority Schools Building Programme (PSBP) in respect of Penkford. It has also confirmed that the funding would be available as a contribution towards a larger value scheme eg rebuild, and that the contribution would also be available as part of works that involved the relocation of Penkford school to the Red Bank site. However, the funding is time- limited and PSBP projects need to be completed by December 2021 (see paragraph 2.11). Discussions with the ESFA have indicated that, as the PSBP funding represents less than 10% of the total cost of the scheme, the likely progress that will have been made on the project by December 2021 would reduce the risk of the PSBP monies being withdrawn.

8.7.3 The SEND capital grant referred to above (£422k) is part of a three-year funding allocation that covers the period 2018-19 to 2020-21. Local authorities are required to develop a special provision plan, which is subject to consultation with parents and carers, and are required to regularly update the plan to demonstrate progress achieved. The redevelopment of Penkford forms part of the current special provision plan for St Helens.

8.7.4 Based on the funding that is currently allocated within the capital programme and the money provided through the PSBP, a total of £1.393m is available in respect of the refurbishment / relocation of Penkford. However, due to the poor condition of the existing facilities at Penkford it is likely that significant expenditure will need to be incurred to maintain the school in a safe condition prior to any relocation or rebuild. Approximately £50k has been incurred in the previous 18 months in respect of essential safety work. A detailed review of required works would need to be undertaken if the school were to remain operational for a further two years.

8.7.5 The Children’s Services capital programme includes uncommitted capital funding for the current financial year as follows: 316 14

 £1.785m in respect of School Condition funding. This funding is provided to local authorities to help maintain and improve the condition of school buildings and grounds;  £99k in respect of Basic Need funding. This funding is provided to local authorities to assist them in fulfilling their duty to ensure there are enough school places for children in their local area.

8.7.6 In addition to the uncommitted monies that are available in the current financial year, local authority Basic Need allocations for the financial year 2021-22 have been published. The allocation for St Helens is £2.818m and is intended to create the school places that may be needed for September 2022. At the current time, local authority School Condition allocations for the financial year 2021-22 have not been published.

8.7.7 The extent of any capital works that may be needed to ensure sufficient school places are available locally for September 2021 and September 2022 is not yet known. In addition, there is a continuous programme of work required to maintain and improve the condition of all schools. Furthermore, although costs are yet to be determined, it is likely that significant expenditure will need to be incurred to maintain the existing Penkford school in a safe and operational condition prior to any relocation to the Red Bank site. For these reasons it is not considered prudent to allocate all currently uncommitted monies to meet the funding gap in respect of the proposed development of the Red Bank educational unit. It is therefore proposed that £0.5m is allocated from the currently uncommitted funding within the Children’s Services capital programme towards the cost of the educational unit. It is also requested that the residual funding gap of £4.913m is met from the Council’s capital receipts. The estimated scheme cost and proposed funding are summarised below.

£m Estimated cost of developing the Red Bank educational 6.806 unit (as per paragraph 2.24 above)

Proposed funding:

Existing funding contained within the Children’s Services 0.863 capital programme intended for Penkford refurbishment works (see paragraph 3.1 above)

Funding available from the Department for Education 0.530 through the Priority Schools Building Programme (see paragraph 3.2 above)

Existing School Condition funding within the Children’s 0.500 Services capital programme that is currently uncommitted

Contribution from Council capital receipts 4.913

Total funding 6.806

8.7.8 As stated in paragraph 4.27 above, the estimated scheme costs are prior to undertaking a competitive tender process for the construction phase. In addition, non-recoverable VAT would 317 14 be payable on all works procured on the project until such time that the Council has a confirmed legal interest in the property. This matter is currently being progressed by the Council’s legal department. Without the confirmed legal interest referred to above, the estimated total scheme cost would increase by approximately £1.3m due to non-recoverable VAT. There is not considered to be any impediment to obtaining the appropriate legal interest in the property. However, should this prove not to be possible, the development of the Red Bank educational unit will be subject to review.

8.8 Policy Framework Implications

8.8.1 The recommendations in this report are in line with existing Council policies.

9. Background papers

9.1 Scheme designs and cost plans.

9.2 Ecology Surveys

10. Appendices

10.1 Draft Heads of Terms

318 By virtue of paragraph(s) 3 of Part 1 of Schedule 12A 16 of the Local Government Act 1972.

Document is Restricted

319 This page is intentionally left blank