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E20: Renewing the Eastenders Set A picture of the National Audit Office logo Report by the Comptroller and Auditor General BBC E20: renewing the EastEnders set HC 1782 SESSION 2017–2019 13 DECEMBER 2018 Our vision is to help the nation spend wisely. Our public audit perspective helps Parliament hold government to account and improve public services. The National Audit Office scrutinises public spending for Parliament and is independent of government. The Comptroller and Auditor General (C&AG), Sir Amyas Morse KCB, is an Officer of the House of Commons and leads the NAO. The C&AG certifies the accounts of all government departments and many other public sector bodies. He has statutory authority to examine and report to Parliament on whether departments and the bodies they fund, nationally and locally, have used their resources efficiently, effectively, and with economy. The C&AG does this through a range of outputs including value-for-money reports on matters of public interest; investigations to establish the underlying facts in circumstances where concerns have been raised by others or observed through our wider work; landscape reviews to aid transparency; and good-practice guides. Our work ensures that those responsible for the use of public money are held to account and helps government to improve public services, leading to audited savings of £741 million in 2017. BBC E20: renewing the EastEnders set Report by the Comptroller and Auditor General Ordered by the House of Commons to be printed on 11 December 2018 This report has been prepared under Section 6 of the National Audit Act 1983 for presentation to the House of Commons in accordance with Section 9 of the Act Sir Amyas Morse KCB Comptroller and Auditor General National Audit Office 10 December 2018 HC 1782 | £10.00 This report examines whether the BBC has managed its E20 programme – to replace and enlarge the external EastEnders set (including ‘Albert Square’) and related infrastructure at BBC Elstree Centre – in a way that is likely to achieve value for money. © National Audit Office 2018 The material featured in this document is subject to National Audit Office (NAO) copyright. The material may be copied or reproduced for non-commercial purposes only, namely reproduction for research, private study or for limited internal circulation within an organisation for the purpose of review. Copying for non-commercial purposes is subject to the material being accompanied by a sufficient acknowledgement, reproduced accurately, and not being used in a misleading context. To reproduce NAO copyright material for any other use, you must contact [email protected]. Please tell us who you are, the organisation you represent (if any) and how and why you wish to use our material. Please include your full contact details: name, address, telephone number and email. Please note that the material featured in this document may not be reproduced for commercial gain without the NAO’s express and direct permission and that the NAO reserves its right to pursue copyright infringement proceedings against individuals or companies who reproduce material for commercial gain without our permission. Links to external websites were valid at the time of publication of this report. The National Audit Office is not responsible for the future validity of the links. 005006-001 12/18 NAO Contents Key facts 4 Summary 5 Part One Introduction to E20 and the early stages of the programme 12 Part Two The costs and progress of E20 19 Part Three What went wrong with the programme and how the BBC has responded 29 Appendix One Our audit approach 37 Appendix Two Our evidence base 40 Appendix Three The National Audit Office study team The National Audit Office’s Framework consisted of: to review programmes 43 Adil Jamil, Ollie Martin, Alex Quick, Appendix Four Nigel Terrington and Freddie Wong, The National Audit Office’s commercial under the direction of Louise Bladen and Tim Phillips. assessment framework 45 This report can be found on the National Audit Office website at www.nao.org.uk For further information about the National Audit Office please contact: National Audit Office Press Office 157–197 Buckingham Palace Road Victoria London SW1W 9SP Tel: 020 7798 7400 Enquiries: www.nao.org.uk/contact-us Website: www.nao.org.uk Twitter: @NAOorguk If you are reading this document with a screen reader you may wish to use the bookmarks option to navigate through the parts. 4 Key facts E20: renewing the EastEnders set Key facts £59.7m £86.7m 31 months BBC’s budget for revised programme estimated delay in the BBC the E20 programme budget approved in completing the programme in its October 2015 May 2018 (compared with October 2015 business case plans) – from October 2020 to May 2023 45% increase between the BBC’s original E20 budget (£59.7 million) – subsequently increased to £62.1 million to account for some new activity – and the current budget (£86.7 million) March 2021 date the BBC now plans for the ‘Front Lot’ (which is predominantly a replacement for the existing external set) to be ready for fi lming, 22 months later than planned in 2015 May 2023 date the BBC now plans for the ‘Back Lot’ (the site of new locations), and the overall programme, to be complete £54.7 million BBC’s latest budget for the Front Lot, up £23.5 million (75%) compared with its 2015 plans 11 months time taken for the BBC and Wates, appointed to construct the Front Lot, to negotiate and agree the contract for this work £28.2 million BBC spending on E20 up to the end of September 2018 – with some elements of the programme already completed E20: renewing the EastEnders set Summary 5 Summary 1 The BBC is the UK’s main public service broadcaster. It is responsible for serving audiences with impartial, high-quality and distinctive output and services that inform, educate and entertain.1 In 2017-18, the BBC spent around £2 billion of its licence fee income on television, including £1.3 billion on BBC One. One of the BBC’s flagship TV programmes is EastEnders, which has been broadcast since February 1985. EastEnders had an average audience of 6.6 million in 2017 and is currently broadcast four times a week. The external filming set for EastEnders, including ‘Albert Square’, was built in 1984 with the original intention that it would be used for two years. However, it has never been rebuilt and is in poor condition, requiring ongoing maintenance. 2 The BBC is replacing the external filming set for EastEnders and the core infrastructure at BBC Elstree Centre (BBC Elstree) as part of a programme of activity (the programme) called ‘E20’ which, among other objectives, aims to enable improved audience engagement with EastEnders. A new external filming set will be built (on the ‘Front Lot’) near to the current site. It is being rebuilt and improved, using brick structures rather than the existing facades, as the current external set is in poor condition, which means EastEnders cannot be filmed in high-definition and there are increasing filming delays owing to stoppages in production due to health and safety concerns. The BBC also plans to enlarge the existing filming site, with the current external set being demolished to provide new locations (on the ‘Back Lot’) that better reflect modern East-End London. E20 is a complex and bespoke programme as, for example, the BBC needs to replicate the existing external set to an exact specification on the Front Lot to maintain continuity on-screen. Furthermore, both Lots border residential areas and production studios, meaning that construction works need to be coordinated with live filming. 3 E20 comprises other components at BBC Elstree. These include: the construction of two TV production control rooms (galleries); new edit suites; the installation and commissioning of more efficient boilers and upgraded facilities to house them (in the ‘Boiler House’); new electrical infrastructure; and works to prepare the Front Lot site for construction (Front Lot enabling works), for example, by clearing underground obstructions. These works are now complete. 1 Department for Culture, Media & Sport, Royal Charter for the continuance of the British Broadcasting Corporation, Cm 9365, December 2016, p.5. 6 Summary E20: renewing the EastEnders set 4 E20 is one of the BBC’s nine Tier One (particularly complex) projects within its Critical Projects Portfolio. In 2016, we examined the performance of the BBC’s critical projects, which are subject to additional corporate and executive scrutiny. We concluded the BBC had strengthened oversight of its critical projects, but further action was required.2 In 2016 we reported that E20 was forecast to complete 26 months later than originally planned owing to a substantial change in scope. At that time, the BBC considered that successful delivery of the project appeared probable. Subsequently, for E20, the BBC has taken action in response to our relevant 2016 recommendations. Focus of our report 5 This report examines whether the BBC has managed E20 in a way that is likely to achieve value for money. Owing to a significant scope change, the report uses the programme’s 2015 business case as the baseline to assess value for money. However, we report on the programme from 2013 when the first E20 business case was developed. This report focuses on: • the early stages of the programme, including significant changes in scope in 2015 (Part One); • the progress and costs of the programme (Part Two); and • what went wrong with the programme and how the BBC has responded (Part Three). Key findings The BBC’s revised approach to E20 6 The case for the programme, and the rationale for the current approach, is clear.
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