www.devon.gov.uk

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon”

September 2008

Improving life for all Contents

Contents

Summary 1

1. Introduction 3

2. Draft proposal for unitary local government in Devon: Devon County Council’s 4 responses to the key questions identified by the Boundary Committee 2.1 Boundary Committee question 1 4 “Our view on the necessary inclusion of Exeter in a county-wide authority, particularly whether it will support the city’s economic growth and promote the growth of the county.”

2.2 Boundary Committee question 2 8 “Whether there is a need to extend the membership of the Devon Strategic Partnership to reflect more fully Exeter’s key role in the county.” 2.3 Boundary Committee question 3 9 “Further information on the community governance model envisaged for the city of Exeter as part of a county unitary authority.” 2.4 Boundary Committee question 4 10 “Further evidence that a county-wide unitary authority has a broad cross-section of support from a range of key partners, stakeholders and service users/citizens.” 2.5 Boundary Committee question 5 13 “Considered views from parish and town councils in regard to their envisaged role in the proposed Community Board arrangements.” 2.6 Boundary Committee question 6 16 “The roles and responsibilities of the proposed Community Boards, particularly as they are perceived by parish and town councils and other groups likely to be involved as Board representatives.” 2.7 Boundary Committee question 7 23 “How the County Council’s proposed community governance structures will be constituted by the new authority in order to ensure clear accountability for matters such as service delivery.”

3. Two Unitary Authority Pattern 25 4. Conclusion 33 Appendix 1: Political governance and democratic structures 34 Appendix 2: Key facts and figures 36

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” Summary

Summary

We share the Boundary Committee’s view that a single number of local authority members and strengthened to unitary authority for Devon would be the best pattern of local reflect Exeter’s key role in the county. government for the county, its people and communities and has the capacity to meet the five criteria set by the Secretary Boundary Committee question 3: Governance model of State. Our response to the consultation on the draft for Exeter proposal answers the seven key questions posed by the Exeter has a thriving network of neighbourhood and Committee and explains why the two unitary pattern fails to voluntary organisations. meet the five criteria Unlike the rest of Devon, it has no elected third tier (parish and town council) representatives. A community governance Boundary Committee question 1: Inclusion of Exeter in review for the current Exeter City Council area would be a county-wide authority initiated to establish the needs and wishes of the people of The inclusion of Exeter is critical to the county's Exeter. The outcomes might be the establishment of urban economy; vital for future transport, housing and parishes based on Exeter’s neighbourhoods and/or the employment development and essential to the development of neighbourhood partnerships. provision of value for money services. Exeter is not just a city by itself: it is an integral part of a much Boundary Committee question 4: Broad cross-section larger community reaching out into a wide sub-region. of support Exeter’s success is built on its strategic location and its future The response to the consultation on the draft proposal prospects are crucially dependent on the economic health of demonstrates that a change to a single unitary council Devon as a whole. Exeter cannot afford not to be part of for Devon would, if it were to be made, have a county-wide systems and structures for economic and land measure of support from a range of key partners, use planning. The inclusion of Exeter as part of a county-wide stakeholders and service users/citizens. unitary authority is essential for the delivery of effective and The level of support is in general at least that enjoyed by the efficient services which provide value for money. shire county unitary bids that were approved by the Secretary of State in July 2007. Boundary Committee question 2: Membership of the Devon Strategic Partnership Boundary Committee question 5: Role of parish and The Devon Strategic Partnership would be integral to town councils in the proposed Community Board the unitary authority's governance arrangements and arrangements enable partners to direct public resources towards the Community Boards would provide opportunities for priorities for Devon. parish and town councils to influence and participate in The Devon Strategic Partnership’s leadership role would be local decision making. enhanced by the creation of a unitary authority for Devon. Its Devon benefits from vibrant parish and town councils that membership would be reduced to match the reduction in the lead and represent their local communities. A single unitary

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 1 Summary

authority for Devon would provide support and advice to Two unitary authority pattern parish and town councils and give them the opportunity to The two unitary pattern would increase complexity and take responsibility for local services where they wished to do require the dismantling of integrated service delivery and so. management arrangements. It is unclear how a coherent set of community engagement and neighbourhood Boundary Committee question 6: Roles and empowerment structures would be achieved for residual responsibilities of the proposed Community Boards Devon and the Exeter/Exmouth area. There does not seem Community Boards would provide a single channel for to be the prospect of this model commanding support. the unitary authority to organise its community engagement, consultation and decision-making in a Summary of the financial assessments submitted to the local area. Boundary Committee on 12 September 2008 The unitary authority would establish a framework for the accountabilities of the Boards. They would have a community Single unitary authority for Devon development budget and delegated decision-making ● Saving of £28million over five years responsibility for key service areas. The unitary authority, ● Transition costs paid in three years and eight months town/parish councils and their partners would jointly ● £19million year on year savings establish the exact area to be covered by each Board. ● Community leadership costs included ● Reducing council tax to lowest rate Boundary Committee question 7: Accountability for service delivery Exeter and Exmouth unitary A single unitary authority for Devon would provide ● Saving of £100,000 over five years services and exercise its responsibilities in a coherent ● Transition costs paid in four years and ten months and efficient way. ● £3.1million year on year savings Services would be delivered through area based structures ● Does not include community leadership proposals and teams. Area planning/licensing committees and sub- ● Reducing council tax to lowest rate committees based on the footprint of the three Spatial and Economic Boards would make decisions on planning Residual Devon unitary applications. ● Saving of £1.2million over five years ● Transitions costs paid in four years and 11 months ● £10million year on year savings ● Community leadership costs included ● Reducing council tax to lowest rate

2 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 1. Introduction

1. Introduction

We share the Boundary Committee’s view that a single We focus in this response on answering the seven key unitary authority for Devon would be the best pattern of local questions posed by the Committee (as set out inside the government for the county, its people and communities and cover of this document) in relation to our initial concept for has the capacity to meet the five criteria set by the Secretary a single unitary authority for Devon (“Flying the Flag for of State that a proposal should: Devon: Strong Leadership and Local Focus”: April 2008). We also explain why the alternative pattern of two unitary 1. Attract a broad cross-section of support. authorities would not have the capacity, if implemented, to 2. Provide for strong, effective and accountable strategic meet the Secretary of State’s five criteria. Finally, we have leadership. include appendices which make initial suggestions about 3. Deliver the empowerment of citizens and governance and democratic structures and provide key facts communities, so that all communities have power and and figures. resources to influence the decisions that affect them in their localities. A single unitary authority for Devon would be able to 4. Provide value-for-money services – services should be respond to challenges and capitalise on opportunities provided effectively, efficiently and in an integrated and in ways that the current structure of local government coherent way, ultimately driving up customer satisfaction. sometimes serves to prevent or frustrate. Restructuring 5. Be affordable – the change to a unitary structure should Devon’s county and district councils into one new, deliver value for money and be self-financing, with efficient and responsive local authority would create transitional costs being capable of being paid back within the capacity to enable Devon to punch its weight at a five year period. regional, national and European levels. It would unlock the potential of the town and parish tier of local We believe that the alternative idea of a two unitary pattern: government and provide the structures to reinvigorate a residual Devon and an Exeter/Exmouth unitary authority both representative and participative democracy at the would fail to meet all five criteria – particularly the crucial local level. test of affordability.

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 3 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

2. Devon County Council’s responses to the key questions identified by the Boundary Committee’s “Draft proposal for unitary local government in Devon”

2.1 Boundary Committee question 1

“Our view on the necessary inclusion of Exeter in a county-wide authority, particularly whether it will support the city’s economic growth and promote the growth of the county.”

Other consultees have presented the Boundary Committee The Local Government Commission assessed the case for a with information describing the differences between the separate unitary authority for Exeter in 1995 and was of the social and economic characteristics of Exeter and the rest of view that “Exeter does not have the same size, strength or Devon. We submitted evidence to the Committee at stage 2 wider influence of Plymouth or Bristol and it is debatable as of the review that demonstrated that those differences are to whether unitary status would in practice bring the marginal. Their existence does not mean that separation is investment opportunities that have been suggested.” The the correct response or that the city functions in isolation. Commission concluded that “The interests of Exeter are inter- Exeter is not just a city by itself: it is an integral part of a much dependent with those of the rest of the county. The larger community reaching out into a wide sub-region. Commission remains convinced that Exeter’s centrality within Devon is of critical importance to the decision on structure, The benefits of the economic, planning and transportation and it further believes that inter-dependence is a stronger links and interdependencies between Exeter, the city’s sub- principle than separation.” (Sir David Cooksey, Chairman of region and Devon as a whole would be lost if the city were the Local Government Commission, December 1995) not to be included in a single unitary authority for Devon. The inclusion of Exeter is essential for the delivery of effective The Draft Revised Regional Spatial Strategy for the South and efficient services which provide value for money. We West (RSS) identifies Exeter as one of 21 strategically describe, in section 3 below, the diseconomies, inefficiencies significant cities and towns that play a critical strategic and complexities for public service delivery that would arise regional or sub-regional role. Exeter is a focal point for should Exeter not be included in a county-wide authority. economic activity, cultural facilities and a wide range of services. The city is at the centre of a hub of strategic road Exeter is a small city with a wide influence: over 40% of the and rail networks and has a growing economic influence. people employed in Exeter live outside the city. Exeter’s The presence within the sub-region of Exeter International success is built on its strategic location and its future Airport and the University of Exeter, together with the city’s prospects are crucially dependent on the economic health of cultural and retail strengths have encouraged strong Devon as a whole. Exeter cannot afford not to be part of economic growth over the last 20 years. This success has county wide systems and structures for economic and land been underpinned by positive joint working between the use planning. county, city and district councils.

4 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

Workers travelling to Exeter & Exmouth

Legend

Exeter-Exmouth Proposal Workers travelling to Exeter (2001 Census) 4 - 50 51 - 100 101 - 250

This map is reproduced from Ordnance Survey material with the permission of 251 - 500 Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown copyright. Unauthorised reproduction infringes Crown copyright and may 501 + lead to prosecution or civil proceedings. 100019783. 2008

The continuing growth of Exeter and Devon is dependent an increasing number of its working residents working upon a number of factors: outside the City’s boundaries. In 2001 over 29,000 workers travelled daily into the city to work, while 9,000 travelled out ● Transport links to work. ● Inward investment ● Housing for working families Inward investment ● Brand recognition Devon’s current capacity to compete on a national and ● Skills international stage for new business is limited by its location ● Funding and by the dissipation of effort across the authorities involved. The separation of Exeter from the rest of Devon Transport links would lead to unhelpful competition in attracting new Exeter’s travel to work area stretches as far as Axminster to businesses and hinder the development of the city and the east, Okehampton to the west, Teignmouth/Newton county’s economy. The potential for the growth of existing Abbot to the south and Tiverton to the north. This area not small businesses, such as food producers and rurally based only reflects the travelling distance for those working in industries, spread out across the county would also be Exeter, but also the city’s cultural, retail and further and jeopardised. Exeter provides a focus for enterprises to come higher education catchment areas. together under the Devon brand to gain recognition that far exceeds anything that could be done by smaller groups. In an Proportionately more people travel to work in Exeter from already small market, a further dilution of this capacity would Crediton than from Exmouth. Conversely, census data shows not assist any of the businesses involved that gain benefit that Exeter has become less self-contained since 1991, with from the cross county branding.

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 5 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

Exeter is the county’s hub for professional services such as and Exmouth unitary authority. “Raising Expectations”, accountancy and law. These services rely on customers not published by DIUS/DCSF in March 2008 proposes to transfer just from Exeter or its sub-region but also from across the the Learning and Skills Council’s responsibilities and funding county. This focus serves to emphasise the symbiotic to a number of agencies including first tier local authorities relationship between the city and the county that would be working in sub-regional groups reflecting ‘travel to learn’ harmed by splitting the effort and having drivers of change patterns. pulling in different directions. Funding Housing for working families The reforms in government’s July 2007 “Review of Sub- A successful and growing economy needs to have additional National Economic Development and Regeneration (SNR)” housing for those working within the city area. As Exeter’s strengthen local authorities’ role in economic development travel to work area covers such a wide region, it is essential through a new statutory economic assessment duty and that economic development is linked to housing strategies support local authorities in working together at the sub- that can provide the workforce from across Devon. The Met regional level. It is difficult to envisage how these additional Office’s move to Exeter resulted in much of the incoming responsibilities could be better discharged by two unitary workforce opting to live well outside Exeter’s boundaries and authorities rather than one. Central and regional government this is likely to be repeated in new developments. funding is increasingly being allocated on the basis of larger groupings to enable resources to be allocated in the most Exeter’s Housing Market Area extends across Teignbridge, effective way. The Department for Communities and Local East Devon, Mid-Devon and into west Dorset and south Government is proposing changes to the Local Authority Somerset. The Exeter Housing Strategy 2008-2012 (Exeter Business Growth Incentives Scheme that emphasise sub- City Council, August 2008) highlights that “the full housing regional government and groupings of councils in economic requirement cannot be met within local government development. The changes recognise the contribution that administrative boundaries” and that boundaries which imply county and unitary councils make to economic development a rural/urban split do not work when considering the way in and will give them more responsibility. which people live and work in Devon. A single unitary authority covering the majority of this functional area would Links between rural and urban areas ensure coherence, economies of scale and a strategic Research by the University of the West of England in 2005 approach. It would also implement an integrated planning examined the economic productivity of the South West policy and avoid conflicting priorities. region and the causes of its variation. Among the influencing factors, workforce skills, especially at the basic and high ends, Brand recognition were of particular significance. The maps which we Devon has a profile that is perceived as a destination of submitted with our answers to the Committee’s May 2008 choice to live, work, invest and learn. Research and survey questions showed that there is a complex distribution of results demonstrate that Devon has a strong brand image workforce skills, with some north-south contrast, across the which is recognised by those who are not familiar with the county. The pattern for Exeter-Exmouth is not distinct or county, and that this is higher than Cornwall’s and nearly different from the remainder of the county. Another factor twice as high as that for Exeter. The view is that potential was distance from national urban centres, which again is businesses choose the whole package provided by Devon in clearly not one that affects Exeter-Exmouth any differently terms of countryside, coasts and lifestyle choice as well as from other parts of Devon. the opportunities offered to businesses in the region. The interdependence of Exeter-Exmouth and the remainder Skills of the county is most clearly expressed in the travel-to-work Growth in Exeter and Devon as a whole relies on having the patterns described above. Whilst the Exeter-Exmouth area appropriate skills available to support businesses. Workforce shows a degree of self-containment, this is only a reflection skills are spread across the county, with Exeter as an of the truism that people tend to live near to their work, and educational hub. The designated area of Exeter College similar levels can be constructed on different boundaries. extends well beyond the boundary suggested for an Exeter

6 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

The work commissioned from the Centre for Urban and The Board would build on the experience that has already Regional Development Studies at Newcastle University by been gained by the Exeter and Eastern Devon Sub-Regional Exeter City Council demonstrated that the wards closest to Spatial Strategy Steering Group and the Exeter and East Exeter had the strongest interaction with the city, and that Devon Growth Point Strategic Board. The latter has the level of interaction declined with distance. This is membership made up of representatives from the business unsurprising and does not provide compelling evidence to sector, the Highways Agency, Government Office South suggest that the boundary be drawn as Exeter City Council West, the Regional Development Agency, the Environment suggested in their submission, nor that it should follow the Agency and Natural England as well as members and officers. boundary of the suggested Exeter-Exmouth unitary authority. This membership would also form the basis of the Spatial Both of those boundaries can be considered arbitrary, and and Economic Board. represent neither a tight delimitation of urban Exeter, nor the full extent of the city’s economic role which spreads far wider. Bringing the two Growth Point Boards under the management of the Spatial and Economic Board, along with Exeter’s central role in the county is, of course, closely related oversight of the major developments for the East of Exeter to its geographical position. Comparisons have been made including the Science Park and Sky Park, would provide between Exeter and other unitary authorities such as Telford leadership and connections and a greater integration of and Wrekin, Swindon, Nottingham, Bournemouth and Poole. economic, transportation, planning and infrastructure across Those are unitary authorities which are on, or close to, the the sub-region. Strong links would also be provided to the peripheries of their former counties. Bournemouth is more Regional Spatial Strategy (RSS) and the Local Development closely linked to Hampshire than Dorset and despite its Framework (LDF). proximity to the thriving M4 corridor, Swindon was, until One of the expectations of the July 2007 Sub-National recently, a poorly performing council subject to government Review is that local authorities must have the capability to intervention. deliver before responsibility can be delegated from the Exeter City Council cites research that demonstrates that Regional Development Agency. The capacity of the unitary where urban unitary authorities were created in the 1990s authority for managing major projects would be reinforced in Durham, Wiltshire, Leicestershire, Dorset, Staffordshire and through the management of major developments across the Shropshire the economic performance of the remaining area county and expertise would be shared to benefit of all the was better than the unitary urban area. If this is correct, it partners involved. A unitary authority for Devon which suggests an even stronger case for Exeter being included in included Exeter would be in a position to forward fund key a county-wide authority for Devon. elements of the East of Exeter infrastructure which will not be progressed by developers given the current economic Spatial and Economic Board for the Exeter Sub-Region climate. Without this capacity there is a real risk that Our concept for unitary local government across Devon developments such as the Science Park and Sky Park will not envisages the establishment of three Spatial and Economic proceed which would have a damaging effect on both Exeter Boards based on the county’s functional economic and travel and wider Devon. to work areas. The Spatial and Economic Board for the Exeter The Board would have responsibility for the delivery of Sub-Region would have a key role in providing the leadership integrated regional and sub regional plans relating to for the economic growth of the sub-region and influencing strategic planning, the economy, housing, development the growth in the rest of Devon. It would be responsible for management, skills, transportation, the environment, two Growth Points and a number of other major flooding and other key spatial activities. The membership developments that would impact on the whole of the South including the unitary council, the business sector, the RDA, West region. bodies such as the Environment Agency, English Heritage and English Nature, learning and skills sector and Exeter University, will ensure that all stakeholders that have a part to play and a key interest will be able to contribute to the future of the sub region.

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 7 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

2.2 Boundary Committee question 2

“Whether there is a need to extend the membership of the Devon Strategic Partnership to reflect more fully Exeter’s key role in the county.”

The Devon Strategic Partnership’s (DSP) strategic leadership There is a network of partnerships and groups underpinning role would be strengthened by the creation of a unitary the DSP and our concept for a single unitary authority for authority for Devon. It would be integral to the unitary Devon is for a strengthening and simplification of their authority’s governance arrangements and bring public sector connections with the DSP. Each of those partnerships and bodies and agencies together in order to achieve the vision groups would therefore review their membership to ensure and long-term priorities set out in the Devon Sustainable effective and proportionate representation for Exeter. Community Strategy. It would enable partners to address problems and challenges for Devon in a regional and national These new arrangements would enable the DSP to achieve context. The DSP would continue to be the forum for better outcomes for people and communities in Devon. They collectively reviewing and steering public resources and the would support the delivery of the Devon Sustainable focus for managing the Devon Local Area Agreement. Community Strategy 2008-2018 and the LAA and remove the complexities associated with the present district local The Partnership’s membership would be reduced to match strategic partnerships. the reduction in the number of local authority members and strengthened to reflect Exeter’s key role in the county. The DSP Partnership Board would include the chairman of the City Board for Exeter, reflecting Exeter’s importance as the capital of the county. The DSP Delivery Board would include unitary council officers with responsibility for Exeter and representatives of the Strategic Boards.

8 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

2.3 Boundary Committee question 3

“Further information on the community governance model envisaged for the city of Exeter as part of a county unitary authority.”

Community Governance in Exeter A further option for community governance might be the Exeter has a thriving network of neighbourhood, voluntary development of semi-formal neighbourhood partnerships, and community groups and organisations but, unlike the rest chaired by a local unitary councillor and based on ‘natural’ of Devon, no elected third tier (parish and town council) community areas, determined by local people. This could be representatives. The unitary authority would build on the achieved by building on the work of the current City Council strengths of the third sector and also offer the opportunity to through their four neighbourhood engagement pilot establish an elected tier of local government at local level. projects. These are beginning to devolve power and funding Both community participation and elected representation are down to community level, and we would envisage this being vital to support genuine empowerment and engagement. extended as the partnerships mature, with resources and Our model for the city would ensure that they complement decision-making being devolved to neighbourhood level. one another in the same way that parish/town councils and Street scene, community safety, parking, play provision and Community Boards would work in the rest of the county. youth activities are among the services which might be devolved to neighbourhood level. As with parishes, The unitary authority would initiate a community governance mechanisms would be put in place to ensure that review for the current Exeter City Council area drawing on neighbourhood partnerships were able to articulate their the guidance published jointly by the Department for views and issues to the City Board. Communities and Local Government and the Electoral Commission earlier this year. The review would establish the We would learn from the experience of the work of the needs and wishes of the people of Exeter including those of Transform Neighbourhood Management Programme for the many local community groups, residents and tenants North Devon in Ilfracombe, Bratton Fleming and Combe associations and the emerging pilot neighbourhood Martin. Our experience of working in Exeter with local partnerships. Whilst the unitary authority would set the terms communities/groups in developing school travel plans, the of reference of the review, we envisage that the key Exeter Cycle Development Town project and the Wonford objectives would be to develop structures to enable local Home Zone demonstrates the County Council’s track record people to have a real voice in the design and delivery of local of working locally at neighbourhood level. This experience services, and conduits through which they can bring issues to would inform neighbourhood work, whether parishes are the authority’s attention. Improving access to services and created or neighbourhood structures are developed. information would be a key factor, as would mechanisms to improve community cohesion. There are strong links between neighbourhood engagement and neighbourhood policing. Our proposal would deliver the One of the outcomes of the review could be the aspirations in the July 2008 policing green paper “From the establishment of urban parishes based on Exeter’s natural neighbourhood to the national: policing our communities neighbourhoods. Alternatively, and possibly less likely, together” (Home Office) to bring together local policing with another could be the establishment of a town council for services provided by local authorities, housing associations Exeter. This is a model which we believe would work well and others to contribute to community safety by tackling and would combine the advantages of democratically elected crime and anti-social behaviour. representation with the opportunity for all citizens to become involved in community governance at a very local level. Parishes could adopt the terminology of ‘community councils’. Should this model be adopted, then elected representatives of these councils would be able to participate as voting members of the City Board as described below.

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 9 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

2.4 Boundary Committee question 4

“Further evidence that a county-wide unitary authority has a broad cross-section of support from a range of key partners, stakeholders and service users/citizens.”

The Boundary Committee’s draft proposal satisfies the criterion that the change to a unitary structure, if it were to “This council broadly supports the concept of be made, should at least have a measure of support from a community boards consisting of Town/Parish councils, range of key partners, stakeholders and service users/citizens. the unitary authority and representatives of Previous experience shows that many people find the community interest groups to help reinforce decision prospect of a change to a unitary structure unwelcome. making at the local level” Many of the responses to the consultation reflect the Dawlish Town Council uncertainties and doubts that people understandably have about such a significant change. “After deliberations my Council feel it makes sense to support the Boundary Committee’s proposals to The Boundary Committee’s website has published letters replace all of the existing 8 district councils and the from members of the public who oppose the draft proposal, Devon county council with a single unitary council for with the majority favouring the retention of the current three Devon” tier structure of local government in Devon. We believe that Heanton Punchardon Parish Council this response is the result of negative publicity and misinformation about the draft proposal; nor have their “The Council unanimously agreed to respond to the responses had the benefit of being able to take account of consultation by indicating that the Town Council the results of the financial assessments submitted to the strongly supported the proposal for a single unitary Committee on 12 September 2008. authority, which included Exeter within it…” Despite the impact of negative campaigning by some district Crediton Town Council local authorities, a cross section of town and parish councils is enthusiastic about the possibilities and opportunities that a single unitary authority for Devon has to There is support for the draft proposal from all areas of the offer. Discussions with councils to explore issues in depth, education and skills sector where many organisations have particularly about Community Boards, have shown that those concerns that the disaggregation of education services in the who were initially doubtful are keen to investigate the county would lead to unnecessary duplication and a loss of opportunities and some of them propose to test the concept economies of scale. in their areas.

We consider that the level of support for the draft proposal is in general at least that enjoyed by the shire county unitary bids which were approved by the Secretary of State in July “… ultimately it must cost more to deliver services 2007. across two new structures than one. For this reason, of the two proposals, the Devon Unitary Authority comprising of the existing county of Devon, with no “Our principal concern is that the efficient large scale changes to Plymouth and Torbay would, in our view, services of education and social services provided by be the one that would best serve the people of the county should not be broken up. We also consider Devon.” that three or four Unitaries in Devon (plus Plymouth Connexions and Torbay) would be too small to be truly viable, again for reasons previously stated. To this extent we “We are opposed to any proposal that might lead to support the proposal.” the break up of state education structures.” Rackenford and Creacombe Parish Council NASUWT

10 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

“We therefore support the move by the Boundary “Having seen for myself the negative effects on both Commission to have one Unitary Authority for the Torbay and Plymouth that have resulted from their whole of Devon as we believe it best meets the unitary status and the comparative success of Exeter criteria of affordability, strategic leadership and value in the current system, I am now persuaded that Exeter for money services.” would in the long term be better served if it were at NUT the heart of a unitary County…” Richard Jacobs, EIC Ltd Exeter “Our main reason for supporting and endorsing your proposals is the importance of planning strategically “the opportunities to deliver the step change from an and coordinating the supply and development of skills historic reliance on landfill are greatly enhanced when linked with economic regeneration and development waste collection and waste disposal authorities work cost effectively.” as close as possible. The replacement of the existing Learning and Skills Council two-tier system in Devon with the Committee’s draft proposal for a single unitary authority will provide the platform for driving value from that economy of scale, making the connection of collection and treatment Leading businesses in Devon, particularly national or complementary." regional companies, are supportive of a single unitary council Viridor Waste Management Ltd in Devon. Business leaders in Devon are concerned about the consequences of disaggregating services such as road and “From a practical point of view, we give 24-hour traffic management and waste disposal. They see the draft emergency cover, 365 days a year. It would be proposal as strengthening leadership and giving them the nonsense to duplicate the weather radar, ice confidence to invest. detection, CCTV and traffic signals from separate control centres. From a public perspective highways and emergencies do not stop at political boundaries.” “There exists a capacity within larger councils to SWH Ltd (Formerly South West Highways) efficiently procure services and projects from the

private sector and develop standards and practices continued that encourage continuous improvement and innovation… We would very much welcome the formation of a Devon unitary authority comprising the existing county of Devon with no changes to Plymouth and Torbay’.” MIDAS

“Since the question of a Unitary Authority was first considered we have supported the need for a single strong and efficient countywide administration… In our view there are a number of areas where a single unitary authority having a more joined up strategy, programme and budget would be beneficial.” ROK group

“A unitary authority based on the existing county boundary would provide the most appropriate balance of quality and effectiveness of service whilst maintaining, or enhancing, local democracy”. Parsons Brinkerhoff

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 11 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

Public sector bodies are supportive of a single unitary Voluntary and community groups and bodies such as the authority, many have indicated that they will be writing to Devon Association of Parish Councils see the benefit of a the Boundary Committee to express their views. single unitary authority for Devon as giving them a stronger voice and the opportunity to build on the strength and sense of identity of Devon’s communities. “The trust sees considerable advantages from the proposal to create a single unitary authority for Devon for local people. Combining the functions of the “The community board concept is a logical way to County Council, Exeter City Council and the district bring scrutiny, influence and information to a more councils will create sufficient critical mass to attract, local area. Many councils see that bringing together recruit and retain a high calibre of staff as well as town and parish councils, along with unitary providing economies of scale which a number of councillors and other bodies could be beneficial.” smaller authorities may not be able to achieve.” Devon Association of Parish Councils Devon Partnership Trust “CCD is strongly in support of the trend to favour “This Authority fully supports the draft proposal of action and accountability at a community level, whilst the Committee for just three unitary authorities in achieving better co-ordination at a strategic level… Devon comprising Plymouth and Torbay (both on their CCD therefore favours the Devon wide solution over existing boundaries) and a third one for the remainder the two unitaries pattern.” of Devon. I should add that this Authority Community Council of Devon emphatically does not support the other option…..” Devon and Cornwall Police Authority “we totally support the work in hand and your primary proposals – for a single unitary authority for Devon in addition to the existing ones for Plymouth and Torbay.” Villages in Action

12 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

2.5 Boundary Committee question 5

“Considered views from parish and town councils in regard to their envisaged role in the proposed Community Board arrangements.”

Devon benefits from vibrant parish and town councils that CASE STUDY lead and represent their local communities. The number of Quality councils is evidence of the success of their work, their Parish and Town Councils and Democratic enthusiasm for community-led planning and extent of Representation devolved and delegated decision-making. The responses from parishes and towns to the Boundary Committee’s “One aspect which has been mentioned by a number consultation demonstrate that there are energetic and of people relates to local democratic representation. enthusiastic councils across the county with the desire to take Although, the Town/Parish sector has been outside up the opportunities that a single unitary authority for Devon the main focus of the debate the third tier will would afford them. continue in the same way (or in an enhanced role) whichever format is selected, but it has generally We held over 70 consultation meetings with Devon residents, been largely ignored in the debate. However, the district, town and parish councils, MPs, business leaders, discussion about lack of local democratic trades unions and public service providers during March/April representation seems persistently to fail to recognise 2008. The Community Boards and the role of town and the fact that there is a vast number of locally elected parish councils were a particular focus for discussion and Town and Parish Councillors who are the most direct questions at most of those meetings and we followed them link with the residents. The democratic deficit debate up by publishing only has any credibility if it is being suggested that “A Unitary Council for Devon. Your Questions Answered” the third tier Councillors have no validity or are (available at www.devon.gov.uk/dcc_feedback_doc_5.pdf). incapable of representing their communities – it has That document explains that parish and town councils would to be very clearly highlighted that Town Councillors continue to be statutory bodies in their own right and retain are capable of providing that vital link within their existing powers and responsibilities. It also describes communities having in the region of 800 constituents how Community Boards would offer town and parish each. In Parishes this is likely to provide an even better councils an opportunity to enhance their role and play a level of democratic representation with fewer significant part in determining and meeting local priorities. parishioners per Councillor. Any new Unitary structure needs to recognise the role of Town/Parish Councillors We have worked with the Devon Association of Parish and ensure that they are engaged with the relevant Councils and individual town and parish councils during the Unitary Councillor(s).” twelve-week consultation period. A group comprising the Town Clerk, Ivybridge Town Council - report County Secretary of the Devon Association of Parish 1st September 2008 Councils, the Clerks to Exmouth, Ivybridge, Dunkeswell and Ipplepen Quality councils and Devon County Council have further developed the proposal for Community Boards and explored the role of town and parish councils. We shared the results of that work at well attended events for town and parish councils on 15, 16 and 17 September and discussed them with a large group clerks and councillors at a DAPC meeting. We were also pleased to accept invitations to give presentations and attend parish/town council and public meetings across Devon during the consultation period, which were an invaluable source of ideas and suggestions.

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 13 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

The results of the 2007 research programme, funded by management information, management support and Devon County Council and undertaken by the Community logistical support where this is cost effective; helps town and Council for Devon, which examined how local government parish councils with capacity issues and is practical in terms might better engage with rural communities are pertinent to of providing economies of scale. Town and parish councillors the Committee’s question about the role of parish and town would also be key members of Community Boards and their councils. The research findings showed that rural role is described in our answer to question 6 below. communities generally want to have a greater influence over their area rather than direct responsibility for providing We envisage that a single unitary authority for Devon would services. It showed that a lack of funding, even relatively give parish and town councils the opportunity to take small amounts, to meet local priorities, frustrates and responsibility for local services where they wished to do so. discourages local initiative. It also revealed that the present Our view is that the unitary authority should identify, with county, district and parish/town structure was not viewed as the active involvement of the Devon Association of Parish effectively addressing the concerns and problems of rural Councils, a menu of potential services and responsibilities communities. It identified the potential for parish and town that could be delegated and work with councils to establish councils to have an enhanced role and that in order to the best arrangements. Our work joint work has identified achieve this, they would require support to build capacity and the following services and responsibilities: skills. ● Allotments ● It is clear from our discussions with parish and town councils Bus shelters ● that they all perform, often with very limited resources, an Café licences ● invaluable role in their local communities with councillors Community recycling and composting ● willing to invest time and energy. Some parish and town Disabled parking bays ● councils have concerns that a single unitary authority for Grass cutting ● Devon would mean the loss of the working relationships and Housing maintenance ● networks of contacts that they have established over time Leisure/cultural facilities ● with both county council and district local authority members Off street parking – net income going to town/parish and officers. Some councils are worried that a unitary councils ● authority’s expectations might in some way deter councillors Parks, gardens and open space ● from standing or clerks from coming forward. In working Parking permits ● with parish and town councils, the unitary authority would Public conveniences ● recognise the differences and be sensitive to the variations Public rights of way and cycle routes ● between them. It would not oblige councils to take on more Recycling promotion ● responsibilities where they did not wish to do so nor seek to Skip and scaffold licences ● impose a uniform approach to community empowerment Street cleaning – removal of graffiti and litter ● and local engagement. Street naming/numbering ● Street lighting The unitary authority would support all parish and town ● Street markets councils through technical advice; identifying contact points ● Tourist information centres for specialist expertise and guidance and ways to quickly report and remedy local problems and issues. The unitary Town and parish councils may already be providing some of authority would establish a presence, a local office shared these services. Others would be taking on services currently with other service providers or one-stop shop, in each of the provided by district local authorities but possibly some Community Board areas to improve local access to services. provided by the county council. Personal services such as The unitary authority would need to draw on the examples housing, housing benefits, environmental services etc, which of existing good practice in supporting and working with the benefit from economies of scale would need to be managed DAPC and parish and town councils in areas such as the at a more strategic level. The arrangements should, where development of business cases for new projects; the existing legal and practical, reflect the preferences and capacity of county-wide database of parish, town and community plans; each parish or town council and be developed collaboratively. training in planning/development control and advice on The unitary authority would need to ensure that the way in funding applications. Town and parish councils would have which delegated services are financed did not lead to double access to the unitary authority’s information systems, taxation.

14 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

The unitary authority could give town and parish councils, CASE STUDY with the capacity and aspiration, a role in the management or ownership of community assets, such as leisure centres Dawlish Town Council. and theatres. Unitary Governance for Devon

The unitary authority could, for example, delegate “This Council was granted Quality Parish Council planning/development control responsibilities to parish and status in 2004, and as a result it is expected that, councils, by making arrangements for them to determine when the finer points of the “power of wellbeing” categories of minor householder applications, applications are agreed by central Government, then Dawlish for advertisement consent and work to protected trees. Town Council will be in a position to make the following areas of the parish more viable through: ● Promoting and improving the economic well-being CASE STUDY of the Parish. Devolution of responsibility and decision- ● Promoting and improving the social well-being of making: Exmouth the Parish. ● Promoting and improving the environmental well- Responsibility for the maintenance and cleanliness of being of the Parish. town centre street scene currently rests with the The above improvements are dependent upon County and District Councils. However, in a number provision of services being devolved by the Principal of cases the County Council, District Council and Authority for the area in which the Parish is situated. Town Councils work together with key day to day matters being delegated to the town council. In one In order to achieve, this Council hopes to enter a such case Exmouth expressed an interest in Charter Agreement with the Unitary Authority to maintaining its bus shelters to provide a speedy enable the Council to provide services directly to the response when problems occurred and to ensure that electorate in the parish such as: ● its own priorities would be reflected in the work. An Markets ● agreement was struck and Exmouth was given Car Parks (all aspects to include maintenance and appropriate funding and, within agreed parameters, revenue) ● was given responsibility for the maintenance and Public Conveniences ● repair of its bus shelters. Since then Exmouth has Control/maintenance of all parks/gardens and taken responsibility for the maintenance of all its public open spaces ● street furniture, clearing of weeds and graffiti, and Footpaths (definitive map) ● general cleanliness. The outcome is that the town is Development Control (planning) decisions able to identify its own priorities and to react quickly delegated to officers. ● where problems are identified. Environmental health (street/cafe licences etc) ● Clean Neighbourhood Act 2005 ● Street naming and numbering ● Aspects of leisure and tourism The unitary authority would need to give particular ● Play areas and skateboard parks recognition to parish and town councils that have achieved ● Council Tax Collection (as part of one-stop-shop Quality status and this could be the trigger for discussions programme) about delegated services. However, we recognise that this accreditation is not necessarily the only way in which a parish As a Quality Council, Dawlish Town Council would or town council can demonstrate its ability to deliver services expect to: and represent a local community. ● Host/facilitate an umbrella community committee in order to provide a voice to the Unitary Authority from a group/cluster of towns/parishes in the vicinity. ● Provide a One-Stop-Shop facility for all services provided by town/unitary.” Extract from “Dawlish Town Council. Unitary Governance for Devon. July 2008”

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 15 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

2.6 Boundary Committee question 6

“The roles and responsibilities of the proposed Community Boards, particularly as they are perceived by parish and town councils and other groups likely to be involved as Board representatives.”

Community Boards The projected 28 Community Boards, based around Devon’s Meeting Local Priorities and Communities’ towns and their hinterland of villages and rural communities, Needs have the capacity to become an innovative way to devolve decision-making and enable communities to influence service “Councils and their partners are being expected to provision and resource allocation. This question asks for play a broader role in leading their communities as further definition of the Boards’ role and for clarification of they tackle significant challenges, such as supporting the two-way relationship between Boards and town/parish the development of the local economy, responding councils. to the needs of the rapidly increasing proportion of older people, improving environmental sustainability, At present, local strategic partnerships and community tackling climate change and reducing crime and forums are often outside councils’ decision making structures inequalities. The interconnected nature of these and in two tier areas, such as Devon, it has been difficult for challenges highlights the importance of effective local the two existing democratically elected principal authorities, governance, including purposeful engagement with with different sets of functions, to co-ordinate the way they local people in their various roles as taxpayers, engage with local communities. There is a myriad of local residents, service users, employers and volunteers. formal and informal partnerships and groups across the Citizens expect local services to make good use of county that the creation of Community Boards would new technology and other means to provide ready rationalise and reduce. The Boards would lead to significant information, easy access to services and responsive savings of money and staff time. They would provide a single decisions. Increasingly, citizens expect direct access to channel for the unitary council to organise its community information about local services.” engagement, consultation and decision making in a local Extract from “Comprehensive Area Assessment area. Framework Proposals for Consultation”, Audit Commission, July 2008

Each Community Board would cover the geographical area of a town and the surrounding villages and rural communities. A wide variety of local interests would be represented on each Board, including representatives of key statutory partners, local business and the voluntary and community sector. It would be important for the unitary authority, town/parish councils and their partners jointly to establish the exact area to be covered by each Board and its membership. This could lead to a Community Board being established for an area such as the Blackdown Hills where parish councils are already linked through a well-established network and where there is a secondary school which serves that distinct rural community.

Each Board would be chaired by a unitary authority councillor and include all those unitary councillors whose electoral area falls wholly or partly within the agreed Board area. Options for the direct involvement of parish and town councils range

16 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

from one councillor from each local council in the area (which in the affordability assessment submitted to the Committee in some cases would create very large Boards) to establishing on 12 September 2008. a locally agreed basis for clustering parishes and for each cluster to nominate a representative for their cluster – this is We see the role of Community Boards as being to: ● an approach taken by the Devon Association of Parish Develop and hold the ‘vision’ for the area. ● Councils in securing representation on its County Committee. Develop and implement a community action plan that In those Board areas with a large number of parishes, there addresses priorities for the area by building on existing may be merit in drawing on the experience of the West plans and strategies. ● Devon Link Committees model and exploring a similar Influence budget allocations, spending priorities and take arrangement to provide the opportunity for all parishes to decisions on devolved services. ● be involved. Direct additional resources to people and places where they are most needed. Councils will from April 2009 have a “duty to involve” local ● Promote community cohesion and a sense of local people in decision-making, requiring authorities to involve belonging. representatives of local people in the exercise of their ● Hold the unitary authority and other public service functions. The Comprehensive Area Assessment, which providers to account for the quality of the services comes into effect in April 2009, will examine how well local provided within the Board’s area. priorities express community needs and aspirations. ● Allocate funding, from the Board’s development budget, towards local projects and initiatives that contribute to the Community Boards will, together with the Community action plan’s priorities. Forums described below, fulfill that duty and satisfy the CAA ● Shape the development of local planning policy. requirements by: ● Respond to consultations and act as a sounding board for ● Providing opportunities for people to influence and the unitary council. directly participate in making local decisions. ● Debate issues of local/topical interest. ● Providing a mechanism for the unitary authority to use local consultation to inform broader strategy. We have considered the Boundary Committee’s suggestion ● Providing feedback on decisions, services, policies and that extending our proposals for budget delegation beyond outcomes. a development budget for Community Boards to support ● Co-designing policies and services by being involved in the community initiatives could provide greater flexibility to tackle commissioning of services. the differing needs of and challenges facing the people of ● Co-producing and carrying out some aspects of services Devon. We have identified the following funding streams for themselves. that a unitary authority could either delegate to the Strategic ● Defining priority outcomes for the area and assessing and Community Boards or consult with them about. whether they are being delivered. ● Looking at the effectiveness of all local partners’ activities. ● Local Area Agreement performance reward grant The estimated maximum performance reward grant for The unitary authority would establish a consistent framework achieving all of the Devon Local Area Agreement 2008- for the accountabilities of the Community Boards. Our view 2011 targets would be £4.4million (DCLG is currently is that the pace of development and detail of Community consulting on the method of calculating this grant). A Boards would vary depending on local circumstances and unitary authority could chose to apportion this funding to context in each area. Existing bodies, community groups or Community Boards to spend on projects that would forums within each area would provide the foundations for contribute to meeting LAA targets. This would support the establishment of Community Boards and work jointly the development of “Community Area Agreements” with the unitary authority to do so. which described the relevance of the LAA to each area The Community Boards are not intended as service delivery and, in turn, shaped the priorities for future LAAs. bodies but would have delegated decision-making ● Local Transport Plan capital funding responsibility for key service areas. In addition, each Board The Spatial and Economic Boards and Community Boards would have a community development budget and for could be responsible for the delivery of transport schemes illustration we showed, as part of our concept, how a saving in the local transport plan programme and take of just 0.5% of the current combined County and district responsibility for or influence elements of that capital local authority expenditure would produce an average of funding. £200,000 for each Board. This cost was taken into account

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 17 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

● Local Authority Business Growth Incentive funding CASE STUDY The LABGI scheme is designed to give local authorities an incentive to encourage local economic and business Example of an agenda for a Community Board growth. The increase in a local authority’s business meeting rateable value is used as a proxy for business growth. Devon County Council’s year 3 allocation was 1. Public Engagement (How are we doing?) ● £1.98million. A unitary authority for Devon could devolve Public feedback, comments and questions….. some, or all of that funding to the Spatial and Economic by individuals. Boards to promote local business growth. ● Open forum on local issues/topics ……from groups/representatives and bodies. Mainstream unitary council budgets Central government has increased local authorities’ flexibility ● Call for action/petitions….from communities. over the use of their mainstream resources. Local authorities are now free to use the totality of their non-ringfenced 2. Community Engagement funding as they see fit to support the delivery of local, (What can we do for you?) regional and national priorities in their areas. ● Proposals for Community Board budget

Each Community Board area would have an area unitary ● Consideration of funding bids from community council budget that identifies the total unitary council spend groups in that area (this would average £30million per Community ● Board). It would be possible to delegate decision-making Consideration of consultations from unitary powers over some elements of these budgets. By extension, authority, PCT, police and other Board members. in collaboration with partners it would be possible to identify total public sector spending in each area, which would 3. Performance and review (How are we doing provide for greater transparency. and can we do better?) ● Community action plan… are we meeting the Here are some examples of local service delivery decisions targets and priorities and contributing to the Local that a Community Board might make: Area Agreement?

Recycling and composting – use savings realised by ● Unitary authority services and policies….e.g. local diverting household waste from landfill to reinvest in development framework, school place planning community facilities for sustainable waste management. and extra care housing.

Libraries and museums – vary local library opening hours ● Town and parish council feedback on and, promote library services through “friends groups”. services…..scrutiny Local environment – working with, or through parish and town councils, arrange locally for services to maintain and 4. Decision making (Time to decide) improve the local environment: e.g. play areas, public rights ● Variations to levels and standards of service of way, public open space, parks and gardens, bus shelters, ● Parks and gardens street cleaning and signing. ● Public open space Public transport – work with the unitary authority and bus ● Play areas operators to vary routes and support socially necessary ● Culture, leisure and libraries services. ● Public rights of way ● Bus services. Health and wellbeing – carry out a local wellbeing audit and use the results to prioritise preventative and discretionary ● Assets services such as smoking cessation and promotion of healthy ● Reviewing potential of public buildings for and active lifestyles. shared/community use: community use of Facilities for young people – work with schools to arrange school buildings premises. use of sport, recreation and leisure facilities out of school ● Public access to services and one stop-shops. hours and during school holidays.

18 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

Resilience and contingency planning – undertake local Community Board meetings would be open to the public and risk assessments to understand and rank local perception of press, open discussion and debate would be encouraged and hazards and threats and develop community emergency contributions invited from all members. They would focus on plans which identify community resources and local practical issues of relevance to the area. There would be vulnerable institutions. opportunities to draw on the expertise of particular parish or town councillors by inviting them, along with other Community Safety and regulation - resources could be specialists, to contribute to a discussion on a topic or theme directed towards alcohol related crime at identified hotspots, of particular importance such as public transport, highway noise control measures and fly-tipping issues. maintenance or community safety. Attendees could be invited as required where relevant to the topics being considered. CASE STUDY

Children and Young People - “Things to do in The unitary authority would support each Community Board Safe Places to be” to ensure that there is:-

● The key priority of the Devon Children and Young A strong shared sense of purpose – local council clerks People’s Plan, ‘Things to do in safe places to be,’ would need support in developing their network of would be the responsibility of the Community Boards. contacts. ● The Boards could commission the provision of services A clear understanding of the Board’s vision and purpose – and ensure effective and targeted use of resources effective communication to support delivery. ● and provide opportunities for inter-generational work. Capacity to service meetings of the Boards and Community Forums. This covers the age spectrum 0 – 19 and includes: ● Access to dedicated officer support to the unitary ● Play: authority members and the Board – locally based ● holiday activities community development/community planning officers ● free play outside such as in parks, and other would network locally with stakeholders and with green spaces colleagues in the unitary authority. ● breakfast clubs, after school clubs ● specialist activities such as chess, IT and Devon County Council is committed to a process of co- cooking designing and developing the Boards with its partners. Given ● physical activities and sport the level of interest and support expressed for the ● arts including music, drama and fine art. Community Board concept, we intend to test the concept of ● Activities for young people: Community Boards in a small number of areas in Spring ● Trips 2009. At the time of writing this response we have received ● Community projects expressions of interest from: ● Workshops. Ilfracombe (North Devon) – a project to build on the ● Inclusion of those with disabilities and from low success of the neighbourhood management pathfinder income families. project in Ilfracombe which puts local residents at the heart ● Ensuring provision available to those most in need of the decision making process in partnership with the service providers and finds tailored solutions to meet the needs of the community.

Dawlish (Teignbridge) – the Town Council was the first one in Devon to articulate its support for the draft proposal and wishes to contribute to the development of a Community Board which complements its capacity and ambition to deliver more services.

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 19 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

Exmouth (East Devon) – the Town Council, which Responsibility for establishing and facilitating Community represents the 36,000 people (2007 estimate) living in the Forums could be devolved to town councils or local town, has volunteered to work as a key player to deliver the community organisations. It would be important that this aspirations of the “Communities in Control – Real People mechanism for engagement and involvement contributes to Real Power” White Paper for Exmouth and the surrounding meeting the new “duty to involve” (July 2008 White Paper area. “Communities in Control, Real People, Real Power”). The unitary authority would, through the Community Forums, Okehampton (West Devon) – the Devon Heartlands, a involve service users in the planning and design of services, community forum which has been active in the area for a encourage and support local community planning. number of years, wants to explore how best to integrate community involvement, participation and engagement with As with the Community Board concept, we have received an the more formal local democratic role of the Community expression of interest from the Devon Heartlands Forum Board. (which was established as a community forum in the Okehampton area in connection with the Market and We are aware of a number of other areas where there is an Coastal Town’s (regeneration) Initiative and has been in interest in participating in testing and developing the concept existence for a number of years) to develop this aspect of the of Community Boards and will be working with them to help concept in more detail. This would include reviewing, on an to develop their ideas and proposals. ongoing basis, the arrangements for engagement with the wider community. Community Forums Our concept, “Flying the Flag for Devon: Strong Leadership Devon Assembly and Local Focus” described how local public meetings would Our concept envisages the establishment of an Assembly engage and involve all sectors of the local community. Each which would bring together the unitary authority’s Leader of the Community Boards would be responsible for and Executive, the chairs of the Community Boards and City establishing and maintaining such a Community Forum for Board - as leaders of place, Members of Parliament, Members local residents, the business community, voluntary of the European Parliament and Regional Minister. This organisations, neighbourhood associations and local service arrangement would enable MPs/MEPs to raise constituency providers. The meetings would be open to all and attempt to level concerns with the unitary authority. It would also bring ensure involvement from all sectors of the community to a strong community and locality voice into the unitary increase trust, mutual understanding and respect. They could authority and link the locality perspective with the council’s consider key issues affecting the area and make Leader and Executive. recommendations to the Community Boards concerning high priority local issues. They might also be involved in participatory budgeting arrangements, where these are established – perhaps in relation to a local community chest or small grants scheme.

20 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

CASE STUDY

Community Boards and services to children and young people.

Local learning communities and Community Boards building their LLC infrastructures to ensure sustainable Devon schools are organised into networks called Local leadership capacity so that they can make a real Learning Communities (LLC’s) which are most often made difference to the communities they work within. The up of a single secondary school and its feeder primary opportunities brought by the setting up of Community schools. LLC’s also include special schools, Pupil Referral Boards will extend and enhance this work which is Units and Children’s Centres. In place for over thirty years, already developing within local partnerships that include the LLC infrastructure enjoys strong support from schools schools. and governors. There are 32 LLC’s across Devon which broadly mirror the areas which could be covered by The participation and contribution of LLC’s through Community Boards. The proposed areas covered by Community Boards will be significant as they bring Community Boards therefore provide a familiar experience of schools working in collaboration, along geographical framework for schools. with their capacity to drive change, share collective responsibility and to jointly manage resources. LLC’s are rapidly moving away from loose professional networks towards more formalised structures providing Community Boards and local authority school a collaborative and strategic framework for raising governors achievement and the delivery of Extended Services. Using their local knowledge and contacts Community Schools have a very good knowledge of the communities Boards could perform a vital role in helping to ensure that they serve but also undertake robust auditing processes school governing bodies have Local Authority vacancies to identify services that children and their families will filled swiftly and efficiently with people locally sourced, require. Outcomes from this detailed needs analysis, known and respected in and by the local community, alongside strong local awareness, means that the bringing their expertise and skills to help to ensure collective knowledge of schools would be brought to the excellent governance and able to offer that all important commissioning work and impact evaluation of the wider perspective. This would also help to provide a Community Boards. For example schools will know from consistency of approach and to ensure that schools were their direct contact with children and communities what not offered nominees unknown to them which can often play and youth provision is needed in an area and if be a cause of friction. Building on this, Community provision makes a difference to the lives of those young Boards could also add value to LLC’s work on establishing people. and maintaining governor networking.

LLC’s already send representatives to multi-agency forums Community Boards and the promotion of to actively contribute to the development of services and community cohesion support for vulnerable children and young people. Governing bodies have recently acquired a legal duty to Schools through their LLC’s are represented at AXS promote community cohesion. If Community Boards are Pathway work (multi-agency integrated working) and the to take a role in helping to ensure good candidates are development of children’s centres and Children’s Trust put forward to serve on governing bodies, they could also Local Planning and Implementation Partnerships. Schools have ‘promoting community cohesion’ as one of the within their LLC structures are currently considering their criteria for appointment – although the overall future role as commissioners of services either as a responsibility rests with the corporate governing body. network of schools or as part of joint commissioning Community Boards could help to monitor the success of arrangements. schools in promoting community cohesion and be able to share and promote best practice. The Community LLC’s receive a range of funding to facilitate local Boards would help to ensure that each community is partnerships and shape services for children and their recognised and celebrated for its unique local families. They have developed systematic approaches characteristics. Community cohesion may well throw up moving from the identification of need to instigating different challenges in different localities so local collaborative action at local level. Schools are currently knowledge and understanding will be very important.

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 21 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

City Board for Exeter A City Board would be established for the Exeter urban area Building on the work of the current Exeter Vision Partnership, using the same principles as those underpinning the the City Board would: development of the 28 Community Boards in the rest of the ● Hold the long term ‘vision’ for Exeter. new authority’s area. This further description of the detail of ● Identify priorities for investment of area based funding, the operation of a City Board has been informed by monitor progress and evaluate the outcomes. consultations with key Exeter stakeholders including the chair ● Develop a community strategy or Community Action Plan of the Exeter Vision Partnership, Exeter University and for Exeter. Voluntary Sector organisations. ● Oversee the recommended local governance review of the urban area. The members of the City Board would comprise the unitary ● Oversee the development of neighbourhood engagement councillors for the City area, representatives of statutory arrangements. partners such as the PCT, Police and Environment Agency, ● Provide the conduit through which the strategic and other third sector, learning and skills and business representatives. key issues raised through neighbourhood arrangements Once a community governance structure is in place as are brought to the attention of the Executive and senior described in section 2.3 above, representatives from those managers of the unitary authority. bodies would bring a community voice to the City Board. ● Ensure effective communications between the Spatial and Although the City Board will be large in number, this would Economic Board for the Exeter Sub-Region and the City ensure the inclusion of all key stakeholders. Board. ● Advise and make recommendations to the other Strategic The City Board would, like the Community Boards, have Boards, in respect of particular needs of Exeter residents decision making powers on devolved services and a and communities. dedicated budget which could be used for: ● Take a strategic and cross sector / cross service approach ● Decision making over aspects of services such as city to Exeter’s needs and advise the council’s executive of centre management, car parking, public realm, leisure particular issues which need co-ordinated action. services, community safety, libraries and youth services. ● Within the policy framework of the unitary council, advise ● Community development work to facilitate the Executive on service policy and delivery matters which neighbourhood engagement and locality budgets are of particular relevance to the City. ● Project work aimed at reducing inequalities i.e in most ● Hold the unitary authority and other public service disadvantaged neighbourhoods providers to account for the quality of the services ● Community grants / community chest provided within the Board’s area. ● Implementing the outcomes of the governance review The city’s civic traditions would endure through the continuation of the post of Lord Mayor and the establishment of a Charter Trust under the umbrella of the City Board. If Exeter were to become part of the suggested Exeter and Exmouth unitary authority then such an arrangement may need to be re-examined.

The City Board would have a close relationship with the Spatial and Economic Board for the Exeter Sub-Region which could commission it to oversee delivery of particular aspects of its strategy which are specific to the city.

The City Board Chairman would represent Exeter interests on the Devon Strategic Partnership Board and a senior manager serving the Exeter area would have a place on the DSP Delivery Board

22 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

2.7 Boundary Committee question 7

“How the County Council’s proposed community governance structures will be constituted by the new authority in order to ensure clear accountability for matters such as service delivery.”

We recognise that devolving the delivery of services to local verge cutting, skips and scaffolding licences, applications for communities is an important way of securing improvements pedestrian crossings and traffic calming measures. Members in public services and re-engaging citizens with government. of the public contact or visit the area offices in Newton This devolution of decision-making has to be built on a two Abbot, Barnstaple and Exeter or telephone the County way relationship: it requires informed, skilled and confident Council’s Customer Service Centre for assistance. communities on one hand and a local authority with appropriate community governance structures and a citizen Education provision is delegated to schools and governed focused culture on the other. and operated through local learning communities aligned to the Community and City Board areas. The chairs of the local We have described, elsewhere in this document, and in our learning communities would be members of the Community “Flying the Flag for Devon” concept, some of the ways in Boards. Local learning communities are grouped into 19 AXS which a single unitary authority for Devon would foster clusters for the delivery of multi-agency services. effective citizenship: Adults and Community services are already provided by ● Community Boards that would make decisions on locally based Complex Care Teams of adult and community investment to meet local priorities and influence local services social care staff, NHS staff and voluntary sector service delivery. representatives based around GP practice populations. These ● Community Forums which provide a focus for local integrated teams work alongside primary care GP practices, engagement, involve all sectors of the local community. delivering the service to practice populations within ● A City Board for Exeter with resources to take the vision designated geographical communities or “clusters”. There is for the city forward. one, or in some cases two, complex care teams in each ● Opportunities for town and parish councils to take on cluster. The 16 adult clusters and 23 complex care teams responsibilities for services and an enhanced role for town across Devon are closely aligned with Community Board and parish councillors through their membership of areas. Community Boards. The unitary authority would provide services and exercise its Devolved Decision Making responsibilities for services such as planning, licensing, A single unitary authority for Devon would develop a highways and housing in a coherent and efficient way, framework for service delivery which could embrace a reflecting the need for local input into the decision making diversity of circumstances for decentralised and devolved process. In the case of development control, advice to decision-making. Devon County Council already has a potential applicants would be provided at regular local decentralised structure which provides the foundations for planning surgeries where experienced planning officers that framework. The delivery of services through area based would be available. Parish and town councils would continue structures and teams would enable the: to be formal consultees for applications that are being ● Establishment of work hubs and shared use of office proposed in their area. The unitary authority would inform accommodation and facilities. councils once applications had been determined and explain ● Creation of integrated teams to provide services at area the reasons for the decision. level. To enable decisions to be made by councillors, area ● Grouping and centralising of back office functions planning/licensing committees and sub-committees, based ● Reduction of staff commuting with the associated on the footprint of the Spatial and Economic Boards, would environmental benefits. be established. The committees would meet monthly with Highway management services are already provided membership from unitary councillors from the area. through three area-based teams responsible for road and pavement maintenance, public rights of way, hedge, tree and

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 23 2. Draft proposal for unitary local government in Devon: Devon County Council’s responses to the key questions identified by the Boundary Committee

CASE STUDY

Devolution of decision making with Adult Social Care

Devon already operates devolved management A development opportunity and significant addition to arrangements for Adult Social Care services with the Community Board’s role would be to consider how significant resources deployed at team based level and health services might be incorporated in this arena. We local accountability for performance with designated local would work with the Primary Care Trust to develop a managers. The local managers would be key links with model that led to local input by Community Boards to the Community Boards. Our approach with the NHS on Practice Based Commissioning for the NHS – this would joint needs assessment linked to joint commissioning and bring significant benefits and bring democratic influence integrated Health and Social Care delivery models means to decision making processes that are currently outside that we would also be well placed to develop the local government governance structure. arrangements with the NHS for local input to decision making in the health sector. Decision Making For universal services (as opposed to those relating to We see the potential for Community Boards to use the individual need and personalised services) we would capacity of Community Forums to support their work by continue to devolve decision making to locality level and providing local input to Adult Health and Social Care as use the newly established Community Boards to make follows: choices on local investment. This would ensure local priorities are met. Examples might be: Local Scrutiny and Challenge ● Allocation of Carers Grant to be invested locally. Much of the day to day business for Adult Social Care is ● Investment in preventative services to improve the based around meeting individual need with increasing general health and well being of a community (this emphasis on personalised services. Eligibility for services would be informed by analysis from the Joint Strategic will be set countywide to ensure fairness and consistency Needs Assessment). in line with national “Fair Access to Care Services” ● Any investment in support to the voluntary sector in a guidance. Community Boards would scrutinise community. performance and have the opportunity to challenge local managers on the impacts and outcomes in their locality. The key challenge for adult health and social care is to increase investment and support in these universal Influence preventative services. We will be looking to identify There are already a number of local groups and networks additional funds (and to provide local incentives) to do across the key service areas. Community Boards would this and work jointly with the NHS to promote the health provides focus for such groups and add significant value. and well being agenda in each coastal and market town. Examples of existing or developing infrastructure in this area include: ● Local Town Groups for Learning Disability Services ● Carers Links Services ● Senior Council for Devon ● Groups of key local Social Care providers

24 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 3. Two Unitary Authority Pattern

3. Two Unitary Authority Pattern

Exeter is a small city that exerts a wide influence. This 3.1 Two unitary pattern and leadership presents a difficulty when considering any multiple unitary Devon needs strategic leadership to bring together public, authority pattern in Devon. In order to create unitary councils private and third sector agencies and interests. The two- of sufficient size to both deliver high quality cost-effective unitary pattern would dilute the leadership needed to provide services and have the capacity and clout to deliver the the long-term vision and foresight necessary to ensure that necessary investment in economic development, any model partners work together towards shared priorities and targets. runs the risk of losing the urban focus (which is the stated rationale) and leaving a weak residual council for the We showed in section 2.1 above that Exeter’s travel to work remainder of Devon. area extends well beyond the confines of the area covered by the suggested Exeter and Exmouth authority. The Boundary We share the Boundary Committee’s view that the two Committee used information about levels of commuting to unitary pattern, one for residual Devon and another for Exeter to identify the extent of the area covered by the Exeter Exeter and Exmouth, presents a number of challenges and and Exmouth authority. The scatter chart below shows that there is insufficient likelihood that it would better meet distances from the centre of electoral wards to the centre of the outcomes set out in the five criteria than the Committee’s Exeter (St David’s ward). It demonstrates that some areas draft proposal. that are not included in the area of the Exeter and Exmouth unitary authority have a higher percentage of people working The map on the following page shows that the areas covered in Exeter and are closer to Exeter than others that are by the suggested Exeter and Exmouth and residual Devon included. The numbers on the chart refer to the following unitary authorities would include a mixture of both urban wards: and rural populations. The Exeter and Exmouth area does not, as a whole, exhibit social or economic characteristics 1 Whimple, East Devon which are fundamentally different to those in the rest of the 2 Cadbury, Mid Devon county. 3 Bradninch, Mid Devon 4 Lawrence, Mid Devon 5 Boniface, Mid Devon 6 Teign Valley, Teignbridge 7 Starcross, Teignbridge 8 Silverton, Mid Devon 9 Newbrooke, Mid Devon

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 25 3. Two Unitary Authority Pattern

Devon - Urban/Rural Split

As defined by DEFRA http://www.defra.gov.uk/rural/ ruralstats/rural-definition.htm

Exeter & Exmouth Area Rest of Devon Defra Rural Urban Urban >10K - Less Sparse Urban >10k - Sparse Town and Fringe - Less Sparse Town and Fringe - Sparse Village - Less Sparse Village - Sparse Hamlet & Isolated Dwellings - Less Sparse Hamlet & Isolated Dwellings - Sparse

Strategic Intelligence [email protected] 0918km This map is reproduced from Ordnance Survey material with the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown copyright. Unauthorised reproduction infringes Crown copyright and may R:/stratint/projects/temporary/DefraUrbanRuralJuly2008/defraurbanrural.mxd lead to prosecution or civil proceedings. 100019783. 2008

30 Proportion of employed In Exeter-Exmouth UA people working in Exeter Remaining Devon UA – 2001 Census (see page 25) 25

20

1 15 2 3

4 7 8

Distance from Exeter (km) Distance from 6 5 10

9

5

0 10% 20% 30% 40% 50% 60% 70% 80% 90% % working in Exeter

26 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 3. Two Unitary Authority Pattern

CASE STUDY

Achievements in Exeter: 2006/07 – 2007/08:

An argument put forward by the proponents of an Exeter ● Better, safer cycle routes through the nationally based unitary authority is that the two unitary pattern is recognised and supported Exeter Cycling essential to ensure an appropriate focus on the needs of Demonstration Town project which has led to a the city. There is no evidence for this in the existing two- doubling of trips. tier arrangement. ● Progressing the development of an energy from waste plant and recycling centre serving the needs of Exeter Devon County Council has a long standing commitment and the surrounding area. to raising standards in Exeter’s schools and the city now ● Developing the plans for modernisation of Exeter has amongst the fastest improving education results of Central Library. any in England. This was the drive behind the successful ● Progression of the Exeter Science Park project with reorganisation of the 34 schools in the city in 2005. partners. Capital investment has delivered five new secondary ● Enhancing Exeter’s Park and Ride services which are schools, eight new primary schools and the enhancement used by over 1 million people a year. of many others. The provisional results of this Summer's ● Exceeding targets for local street and environmental exams have seen a significant improvement in the cleanliness with Exeter City Council. percentage of students achieving five or more GCSE A*- ● Investment in the enhancement of the city centre C grades from 47.6 per cent in 2005 to 59.3 per cent in working jointly with Exeter City Council 2008 - an overall increase of nearly 25 per cent. The gap ● Specialist domestic violence court hearings established in pupil performance at KS2 between Exeter and the rest through the Against Domestic Violence and Abuse in of Devon has been significantly narrowed. A unitary Devon partnership. Exeter/Exmouth would not be in a position to concentrate ● Work with the then Exeter Primary Care Trust on a new the level of expertise and resources necessary to build on ‘Single Assessment Process’ involving a single set of these improvements. records held by the patient, cutting the number of hospital admissions in Exeter. Other achievements in Exeter over the last two years ● New Treetops state-of-the-art short breaks facility for include: families of people with complex learning & physical ● Travel training initiative at Southbrook College: a disabilities. school for students with moderate learning difficulties. ● Exeter for Learning Partnership (E4L) covering all These achievements have not been at the expense of learning institutions in the city. other areas of the county. So, for example in northern ● ‘Playing for Success’ partnership work with Exeter City Devon the award winning £42million Barnstaple Western FC. Bypass was completed in 2007 and progressing the ● Completion of the £4million Monkerton Link Road £55million project to replace Bideford College. which has opened up possibilities for development and economic growth to the east of the city. ● Establishment of Skypark joint venture company. Skypark will be a sustainable business community, creating jobs in environmental technologies, ICT, food and drink, marine and manufacturing industries.

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 27 3. Two Unitary Authority Pattern

3.2 Two unitary pattern and neighbourhood The creation of two new unitary authorities would increase empowerment the complexity and risks of the transition relative to those A unitary authority for rural Devon would utilise the concept envisaged for a single unitary. For example, disaggregating of Community Boards as a focus for empowering citizens and information currently contained within county ICT systems, communities and devolving decision-making. It is unclear the novation and splitting and contracts currently held by how a coherent set of community empowerment and Devon County Council. neighbourhood engagement structures for an Exeter and Exmouth unitary authority would be achieved, with structures The establishment of a two unitary pattern and creation of an for Exeter differing from those for Exmouth and the 20 artificial boundary between the two authorities would parishes. present them with complex challenges in ensuring the capacity to commission, lead and procure the delivery of In order to secure integrated and effective community services. Joint arrangements and partnerships between the governance for the area as a whole there would be a need two authorities would almost certainly be required for for joint arrangements, coordination and partnership services such as: between the two unitary authorities which the Boundary ● Waste collection and management Committee’s draft proposal avoids. ● Transport/land use planning and engineering design services Exeter City Council’s financial assessment of the affordability ● Services for children, young people and families of the Exeter and Exmouth unitary authority made no ● School transport allowance for the on-going costs of investing in community ● Schools support functions governance or neighbourhood empowerment. Many minority faith and ethnic minority communities from 3.3 Two unitary pattern and broad cross-section across Devon come together in Exeter. Exeter based initiatives of support or centres often serve communities across the whole county. The majority of responses to the Department for Devon County Council has invested in the Exeter based Communities and Local Government’s 2007 consultation on projects that serve communities beyond the city’s boundary Exeter City Council’s proposal for a unitary authority for such as the Hikmat project aimed at elder members of the Exeter were overwhelmingly against the proposal. Evidence ethnic minority communities in Exeter and the surrounding collected from discussions with partners and stakeholders in areas, and Ujima which supports members of black and the county, as well as specifically within the area of an Exeter minority ethnic communities. and Exmouth unitary suggests very little support for the two unitary pattern. This is borne out by responses posted on the Implications of the two unitary pattern for services for Boundary Committee’s website. There does not therefore children and young people seem to be the prospect of the two unitary pattern Devon has a single Children and Young People’s Directorate commanding support from key partners, stakeholders and and strong county-wide professional associations for the service users/citizens across the affected area. secondary, primary and special sectors and governors. There is also one, increasingly influential, Devon Education Forum, 3.4 Two unitary pattern and value for money with a strong representation of school governors, and a The separation of Devon into two unitary authorities would: single Children's Trust, Admissions Forum and Local ● Require formal joint arrangements between the two Safeguarding Board. All these organisations share boundaries authorities for many local government services with the Devon Primary Care Trust and schools work ● Require the dismantling of integrated service delivery and increasingly closely with colleagues in health to deliver management arrangements integrated services to children and their families. This allows ● Increase cost and complexity for partners for strong, effective and accountable leadership across the ● Deny the role that Exeter plays as the site for specialist whole of Devon to deliver these vital services. service provision serving a wide geographical area. ● Require the simultaneous aggregation and disaggregation The two unitary pattern would not only have to duplicate all of county and district local authority services. of this, adding to costs and impacting on service delivery, but ● Mean that Exeter would not, under this pattern be the would risk a fragmentation of strategic leadership and local government capital of Devon. duplicate arrangements to interface with the Devon PCT. The range and complexity of statutory duties in this area of work

28 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 3. Two Unitary Authority Pattern

would necessitate the establishment of joint delivery Devon has an excellent reputation for the work it does with arrangements which would be complex and costly to young offenders. The strong performance of the Devon manage. These could put current efficiency gains at risk and Youth Offending Team across the county relies on close it is hard to see how this would enhance outcomes for liaison with specialist facilities located in Exeter such as the children. Atkinson Unit, which offers secure accommodation for up to 16 young people from across Devon who have been through Devon County Council currently administers 364 schools and the criminal justice system or who are a danger to themselves seven Pupil Referral Units which generate economies of scale. or others. The creation of two unitary authorities would lead The two unitary pattern would diminish the ability to provide to the Devon Youth Offending team being split in two thus specialised services such as curriculum support and a range adding administrative complexity to a set of arrangements of officers to deal with educational welfare, behaviour and that already works extremely well. other issues that have a big impact on the smooth running of an authority and its schools. A two unitary pattern would have an impact on access services to schools and lead to the dissipation of expertise in Schools benefit from services like Devon Education Services high performing teams e.g. school admissions. It would and Devon Governor Services which provide high quality affect both authorities operationally and there would be a services and would continue under a single, unitary Devon. threat to specialist support services, particularly for children It is not clear how any other joint provision of such support with special needs. Exeter is a major service hub for children for schools could be obtained more cost effectively from two with special educational needs in the county - principally unitary authorities. There would be extra costs associated through its three special schools together with the Royal with simply negotiating and managing these joint School for the Deaf and the West of England School and arrangements: funding which would otherwise have been College for young people with little or no sight, which would available to schools. be within the proposed Exeter/Exmouth unitary boundary.

Secondary School Catchment Areas Around Exeter

Queen Elizabeth's

Clyst Vale The King's School

St James St Luke's

St Peter's West Exe Isca College of Media Arts Sidmouth

Exmouth

Dawlish This map is reproduced from Ordnance Survey material with the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office © Crown copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. 100019783. 2008

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 29 3. Two Unitary Authority Pattern

Children and young people with highly complex needs focus on prevention and delivery of services to individuals (learning, physical and emotional) are few in number but rather than organisational boundaries. In the case require specialist integrated working. Radical improvements management of individuals with long-term conditions in the in providing these services, in line with government initiatives, community, this approach has been nationally recognised as have been made. Those improvements have required best practice and leads to better quality and more cost- complicated restructuring of services across agencies and effective care in the community and reduced demand on now provide economies of scale for low incidence, highly acute hospital beds. complex needs. The improvements will be at risk if further restructuring is required to accommodate two unitary A two unitary pattern would reduce the planned efficiency authorities. savings in management and staffing costs that will be achieved from integrating health and social care. It will Complex recoupment arrangements would be needed in jeopardise the current integrated management arrangements respect of special educational needs provision because and there will be additional management and overhead costs funding responsibility rests within the authority in which a to be met by a second unitary authority which would have to pupil is ordinarily resident, rather than being based on establish stand alone management and business systems location of the schools. Many of the pupils who attend these which, at present, are shared. schools travel from the wider Devon area and so would receive their education from one authority and their social The Devon PCT would face extra costs in having to relate to care from another - not the integrated service to which we two separate organisations, with the complication of all aspire. potentially having to unpick recently established integrated services. A two unitary pattern would undermine the ability Exeter and Exmouth's vulnerable children benefit from of both authorities to commission specialist and high cost county-wide services too. A shortage of foster carers is a services for people with complex care needs. All parties national problem but the county council has been more would be potentially worse off. At best a two unitary pattern successful in recruiting such carers in the areas surrounding introduces additional partnership complexities, at worst it Exeter than in the city and town of Exmouth themselves. undermines current strategic capacity for health and social care commissioning and service delivery (as demonstrated by Implications of the two unitary pattern for integrated the number of joint appointments and integrated service adult health and social care services delivery arrangements) with dilution of skills, expertise, The Committee’s suggested two unitary pattern would also capacity and efficiency. have a significant negative impact on the provision of health and social care services. Significant progress towards the Implications of the two unitary pattern for integration of those services has already been made through environment, transport and culture services the Devon Primary Care Trust, which replaced six separate The establishment of a two unitary pattern would prejudice PCTs (one of which was in Exeter), being coterminous with the delivery of strategic planning and transport services, both the County Council. The Devon PCT HQ is co-located with in Exeter and Exmouth and also across the rest of Devon. The Devon County Council at County Hall in Exeter. The Devon County Council has had significant success as a strategic PCT and Devon County Council have appointed planning and transport authority, which has been recognised ● A joint Director of Public Health nationally through its achievement of Centre of Excellence ● A joint Director of Health and Social Care delivery status for transport planning and transport delivery, Beacon ● A joint Assistant Director of Strategic Commissioning status for Road Safety and the award of Local Transport Authority of the Year. This has been possible through the We are also sharing strategic intelligence and have retention of a significant pool of staff expertise, benefiting undertaken a joint strategic needs assessment for the county from the economies of scale of the current Devon County which includes analyses and evidence about each of the Council, and contrasts with the difficulties in taking forward Devon town areas. Further development of this work would such issues seen in many of the smaller unitary councils both be restricted under a two unitary pattern in the south west region and nationally. The creation of two smaller, and less well resourced teams, one for Exeter and There is a joint health and social care management structure Exmouth and the other for Devon, neither of which would be across Devon for all of the key service areas: older people able to command the same level of professional expertise and disability services; learning disability services and mental and experience, would put this at risk and would, in health services. Appointments have been made to integrated aggregate, cost more. teams of health and social care professionals with a strong

30 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 3. Two Unitary Authority Pattern

3.5 Two unitary pattern and affordability There is no margin for error in the assumptions that underlie The financial evaluations of the two unitary pattern the financial assessment: should any of them prove to be demonstrate that significantly greater savings would be made incorrect then the affordability test would not be met. Devon by the transition to a single unitary authority for Devon. The County Council’s detailed concerns about Exeter City financial assessment of the costs and savings of the Council’s financial assessment of the suggested Exeter and suggested Exeter and Exmouth unitary authority which Exeter Exmouth unitary relate to: one off costs, on-going costs and City Council submitted to the Boundary Committee on 12 to savings. September 2008 demonstrated that there would be a net saving of only £100,000 with payback achieved only just One off costs within the five year period. Devon County Council’s chief ● There is insufficient provision for redundancy and early financial officer considered that figures shown in the retirement costs. In particular, the provision of £0.25m transition plan, which underpinned that assessment, to be would fund about five early retirements and yet the ECC unreasonable. submission shows 122 support staff and 12 senior staff posts being lost. ● The business case includes £2.1m of one off capital costs “I have concerns over the extremely narrow margin for ICT capital expenditure. There is very little information (£100k) by which the key affordability test (to pay that supports this figure so it can be neither challenged back the costs of transition within five years) is nor defended. However a prudent amount for establishing achieved. The smallest adjustment to assumed costs IT systems that support county services would be many and savings could breach the threshold. times this figure. ● There is an unrealistic time period for the transition team’s 1. There is no external, independent risk assessment work to be completed. According to the ECC submission, (as recommended by the Boundary Commission) the transition team will only be funded up until the 31 with scoped and quantified levels of risk to help March 2010. It is not realistic to assume that the team’s form a judgement and provide reassurance on the work would be complete by that date affordability test. If such an exercise had been undertaken then I could have increased confidence On going costs that such a small margin was robust. ● The financial assessment gives no recognition to the costs 2. The estimates for redundancy and early retirement of disaggregating services and the consequent do not appear to be realistic or prudent. diseconomies of scale. This is surprising given that the 3. The failure to demonstrate that the cost of Secretary of State, in rejecting the bid for a unitary implementing and running IT systems for county authority for Exeter, particularly highlighted the services can be delivered for the amounts stated. diseconomies of scale inherent in disaggregating county No coherent case has been put forward which services. shows how the 3 critical systems; Care First (Adult ● There is no investment in community boards or Social Care), Capita- Sims (Schools and Children’s neighbourhood engagement. Social Care) and WDM (Highways) will be ● There is insufficient recognition of the possible costs of integrated into Exeter City Council’s existing pay harmonisation. Exeter City Council believe that the corporate systems. potential ongoing costs of pay harmonisation can be 4. There was no recognition or assessment of the managed within the inherited salary budgets. Prudential diseconomies of scale inherent in disaggregating financial management would require a significant county services.” contingency towards the potential cost of pay harmonisation. Devon County Council, Chief Financial Officer ● There is no demonstration that the cost of implementing and running IT systems for county services can be delivered for the amounts stated. No coherent case has been put forward which shows how the three critical systems; Care First (Adult Social Care), Capita-Sims

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 31 3. Two Unitary Authority Pattern

(Schools and Children’s Social Care) and WDM (Highways) Although the overall financial position of the Exeter and could be integrated into Exeter City Council’s existing Exmouth unitary is highly marginal, an independent, external corporate systems. ECC’s “Risk Register”, which was risk assessment, as suggested by the Boundary Committee, submitted to the Boundary Committee, states that Devon could conceivably have provided reassurance that the County Council and ECC have in principle agreed to share underlying assumptions were robust. The decision not to IT systems. No such principle has been agreed and so the subject the business case to external review means that there Exeter and Exmouth unitary proposal relies upon models is less confidence in the conclusions than would have been of cooperation that are unspecified, unclear and where the case if one had been commissioned. there is yet to be any agreement between the parties as to how it will work.

Savings ● The savings declared within support services may not be achievable within the specified time period. The loss of 132 FTEs from a total inherited base of 420 (31%) may be possible once the process of restructuring is complete but it is highly unlikely that this could be achieved at commencement. ● The savings from the business transformation programme: £13m over the first four years are the largest single area of saving. However, there is no detail to support the figures used. An independent risk assessment may have provided some reassurance here, if one had been commissioned, but in the absence of any external check the figures appear speculative. It also appears likely that some of the saving declared within this area would accrue irrespective of a change of local government structure and should not be included within this exercise.

32 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 4. Conclusion

4. Conclusion

The people of Devon need a local council that has the the consultation reflect the uncertainties and doubts that capacity to provide community leadership, value for money people understandably have about such a significant change. services and with the ability to respond to the challenges of It is however important to take a longer-term view and a difficult economic climate. The government expects all local recognise the benefits and opportunities that a single unitary authorities to make efficiency savings; to empower local authority for Devon would bring. communities and deliver better outcomes for local people. The structure of local government must also enable it to Responses from partners and key stakeholders demonstrate respond effectively to challenges such as the rising demand that the draft proposal clearly has a broad measure of for adult social care; the need to mitigate and adapt to the support at least equivalent to if not greater than that for the consequences of climate change and environmental county unitary bids which were approved by the Secretary of pressures. The status quo is therefore not a realistic option: State in July 2007. local government has to innovate, adapt and improve. The financial assessments of the draft proposal and Our experience, and that of a number of other counties, suggested two unitary pattern showed that the transition to shows that it is very difficult to take significant steps towards a single unitary authority would save £28.1million within the addressing these challenges within the current county and first five years. The two unitary pattern, by contrast, would district local government structure. The Boundary Committee only achieve £1.2million in the case of the residual county should not assume that because some respondents have and the Exeter/Exmouth unitary only £0.1million, after all the expressed a preference for the retention of the current costs had been accounted for. The Exeter/Exmouth unitary structure that it will be possible to make the changes needed would also need to overcome the annual loss of £5.9m of to exercise stronger leadership, deliver enhanced value for formula grant: a figure calculated by independent experts as money or better neighbourhood engagement. being due to Exeter and Exmouth and equivalent to 8% of Exeter and Exmouth’s net cost to Council Tax payers. The Committee recognises that many people will find the prospect of a change to a unitary structure of local The establishment of a unitary authority would be the government in Devon daunting. Many of the responses to catalyst to reinvigorating local democracy in Devon. It would devolve decision-making to local level and work with the thriving community sector to bring participative and representative democracy together.

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 33 Appendix 1

Appendix 1

Political Governance The Boundary Committee concludes that the leader and One option for Exeter would be to have 18 unitary councillors cabinet model which we put forward in our “Flying the Flag which would have the advantage of minimising electoral for Devon” concept would provide a stable mandate for local change as it would be possible to utilise the existing 18 City governance in Devon. We have therefore given further Council ward boundaries with perhaps some minor changes consideration to the size of a single unitary authority for to even out existing differences in the size of wards. Devon and the roles and responsibilities of its members. Devon has traditionally had fewer divisions than Cornwall Our view is that a unitary authority with about 100 members, and Wiltshire. There is nothing intrinsically inconsistent with with single member divisions to ensure clarity and our suggestion of 105 members for Devon in comparison accountability, would be in line with the Committee’s draft with the 123 suggested for Cornwall. proposal. Simply doubling up the size of the existing County Council or adopting a multi-member approach would not Democratic Structures provide that clarity or the clear, strong democratic leadership Our “Flying the Flag for Devon” concept envisages the envisaged by the Committee. appointment of a strong, visible leader by the council, consistent with the requirements of the Local Government Approximately two thirds of the 62 members of Devon and Public Involvement in Health Act 2007. Excluding an County Council are also members of a district local authority. Executive of ten members and the chairman and vice- Our view is that community leadership would be enhanced chairman, there would be 93 members of the council through single unitary councillors who would more available to serve in other capacities: members of effectively represent the local community and electorate. overview/scrutiny committees, members of Community Boards, Spatial and Economic Boards, Area A council of about 100 members would be able to provide Planning/Licensing Committees and Strategic Boards. strategic leadership and effective, efficient governance. With, for example, 105 councillors, the average size of an electoral division would, based on 2001 figures, be in the order of 6,000 which is consistent with the average size of electoral divisions in Plymouth and Torbay. This would also achieve an equality of representation across the county as a whole in line with statutory guidance that the number of electors should “as nearly as may be, the same in every division in the county”.

34 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” Appendix 1

We included, in our answers to the Committee’s May 2008 questions, a diagram of the proposed democratic structure of the unitary authority which showed that it would comprise the following elements:

The Council Budget and framework decisions

The Executive Strategic county-wide key decisions. Whilst the details of the size of the executive and executive members’ portfolios would be determined by those forming the unitary authority, we suggest the following portfolios

● Policy, strategy and resources (the responsibility of the council’s leader) ● Performance, customer services and transformation ● Children, young people and families ● Adult services and health ● Housing ● Environment, sustainability and climate change ● Highways and transport ● Economy, regeneration, spatial planning and regional/European affairs ● Community safety and resilience ● Culture Strategic Boards Chaired by relevant Executive Member. Devon Assembly Leader, Executive, chairs of Community Boards and City Board, MPs and MEPs Overview/Scrutiny Committees One or more overview/scrutiny committees relating to service areas/departments, supplemented by Task Groups. Regulatory Committees Standards, Audit, Investment and Pension fund and Personnel. Planning-Boards/Sub-Committees Committees dealing with significant area-wide planning issues with one or more area-based planning/licensing sub-committees for non-strategic/minor applications. See page 7 and 23 for further details of Spatial and Economic Boards and planning. Other Committees Relating to, for example, landlord and housing management functions, personnel, public rights of way, appeals, licensing and farms.

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 35 Appendix 2 Key facts and figures

Devon Exeter-Exmouth Residual Devon Unitary unitary unitary

Service provision Secondary schools 37 7 30 Primary schools 316 46 270 Special schools 12 3 9 Libraries 50 6 44

Demography (2006) Population 0-15 126,478 27,622 98,856 16-Retirement 433,840 112,435 321,405 Retirement age+ 180,501 34,427 146,074 Total 740,819 174,484 566,335

Dependency ratio 70.8% 55.2% 76.2%

Unemployment Unemployment (Aug 2008) 5,757 1,652 4,105 Percentage of working age 2.5% 1.7% 3.2%

Employment (2001 Census data) All people 16-74 503,212 120,144 383,068 Employed 240,238 61,486 178,752

Skills 16-74 with no qualifications 134,114 29,095 105,019 % no qualification 26.7% 24.2% 27.4% 16-74 with level 4 qualifications 93,500 23,926 69,574 % level 4 qualifications 18.6% 19.9% 18.2%

Housing (2007) Average house price £241,604 £216,653 £249,074 Average household income £30,522 £31,240 £30,303 House price:income ratio 7.9 6.9 8.2

Deprivation (2007) Index of Multiple Deprivation Mean rank/ 17,295 16,942 17,402 Index of Multiple Deprivation Median rank 16,859 16,976 16,859

Sources: Devon County Council; Devon Primary Care Trust; ONS*; Land Registry*; CACI**, DCLG* * Crown Copyright; **Derived from CACI data

36 Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” • Abbots Bickington • Abbotsham • Abbotskerswell • All Saints • Alverdiscott • Alwington • Arlington • Ashburton • Ashcombe • Ashford • Ashprington • Ashreigney • Ashton • Ashwater • Atherington • Aveton Gifford • Awliscombe • Axminster • Axmouth • Aylesbeare • Bampton • Barnstaple • Beaford • Beaworthy • Beer • Belstone • Bere Ferrers • Berry Pomeroy • Berrynarbor • Bickington • Bickleigh • Bickleigh • Bicton • Bideford • Bigbury • Bishops Nympton • Bishops Tawton • Bishopsteignton • Bittadon • Black Torrington • Blackawton • Bondleigh • Bovey Tracey • Bow • Bradford • Bradninch • Bradstone • Bradworthy • Brampford Speke • Branscombe • Bratton Clovelly • Bratton Fleming • Braunton • Brayford • Brendon • Brentor • Bridestowe • Bridford • Bridgerule • Brixton • Broadclyst • Broadhembury • Broadhempston • Broadwoodkelly • Broadwoodwidger • Brushford • Buckerell • Buckfastleigh • Buckfastleigh West • Buckland Brewer • Buckland Filleigh • Buckland in the Moor • Buckland Monachorum • Buckland Tout Saints • Budleigh Salterton • Bulkworthy • Burlescombe • Burrington • Butterleigh • Cadbury • Cadeleigh • Chagford • Challacombe • Chardstock • Charleton • Chawleigh • Cheriton Bishop • Cheriton Fitzpaine • Chittlehamholt • Chittlehampton • Chivelstone • Christow • Chudleigh • Chulmleigh • Churchstow • Clannaborough • Clawton • Clayhanger • Clayhidon • Clovelly • Clyst Honiton • Clyst Hydon • Clyst St George • Clyst St Lawrence • Clyst St Mary • Coffinswell • Colaton Raleigh • Coldridge • Colebrooke • Colyton • Combe Martin • Combe Raleigh • Combpyne Rousdon • Cookbury • Copplestone • Cornwood • Cornworthy • Coryton • Cotleigh • Countisbury • Crediton • Crediton Hamlets • Cruwys Morchard • Cullompton • Culmstock • Dalwood • Dartington • Dartmoor Forest • Dartmouth • Dawlish • Dean Prior • Diptford • Dittisham • Doddiscombsleigh • Dolton • Dowland • Down St Mary • Drewsteignton • Dunchideock • Dunkeswell • Dunsford • Dunterton • East & West Buckland • East Allington • East Anstey • East Budleigh • East Down • East Portlemouth • East Putford • East Worlington • Eggesford • Ermington • Exbourne • Exeter • Exminster • Exmouth • Farringdon • Farway • Feniton • Filleigh • Fremington • Frithelstock • Frogmore & Sherford • George Nympton • Georgeham • Germansweek • Gidleigh • Gittisham • Goodleigh • Great Torrington • Gulworthy • Haccombe with Combe • Halberton • Halwell • Halwill • Harberton • Harford • Hartland • Hatherleigh • Hawkchurch • Heanton Punchardon • Hemyock • Hennock • High Bickington • Highampton • Hittisleigh • Hockworthy • Holbeton • Holcombe Burnell • Holcombe Rogus • Hollacombe • Holne • Holsworthy • Holsworthy Hamlets • Honiton • Horrabridge • Horwood, Lovacott & Newton Tracey • Huish • Huntsham • Huntshaw • Huxham • Iddesleigh • Ide • Ideford • Ilfracombe • Ilsington • Instow • Inwardleigh • Ipplepen • Ivybridge • Jacobstowe • Kelly • Kenn • Kennerleigh • Kentisbeare • Kentisbury • Kenton • Kilmington • Kings Nympton • Kingsbridge • Kingskerswell • Kingsteignton • Kingston • Kingswear • Knowstone • Lamerton • Landcross • Landkey • Langtree • Lapford • Lewtrenchard • Lifton • Little Torrington • Littleham • Littlehempston • Loddiswell • Loxbeare • Loxhore • Luffincott • Lundy • Luppitt • Lustleigh • Lydford • Lympstone • Lynton & Lynmouth • Malborough • Mamhead • Manaton • Mariansleigh • Marldon • Martinhoe • Marwood • Mary Tavy • Marystow • Meavy • Meeth • Membury • Merton • Meshaw • Milton Abbot • Milton Damerel • Modbury • Molland • Monkleigh • Monkokehampton • Monkton • Morchard Bishop • Morebath • Moretonhampstead • Mortehoe • Musbury • Netherexe • Newton & Noss • Newton Abbot • Newton Poppleford & Harpford • Newton St Cyres • Newton St Petrock • North Bovey • North Huish • North Molton • North Tawton • Northam • Northcott • Northleigh • Northlew • Nymet Rowland • Oakford • Offwell • Ogwell • Okehampton • Okehampton Hamlets • Otterton • Ottery St Mary • Pancrasweek • Parkham • Parracombe • Payhembury • Peter Tavy • Peters Marland • Petrockstow • Pilton West • Plymtree • Poltimore • Poughill • Powderham • Puddington • Pyworthy • Queens Nympton • Rackenford • Rattery • Rewe • Ringmore • Roborough • Rockbeare • Romansleigh • Rose Ash • Salcombe • Sampford Courtenay • Sampford Peverell • Sampford Spiney • Sandford • Satterleigh & Warkleigh • Seaton • Shaldon • Shaugh Prior • Shebbear • Sheepstor • Sheepwash • Sheldon • Shillingford St George • Shirwell • Shobrooke • Shute • Sidmouth • Silverton • Slapton • Sourton • South Brent • South Huish • South Milton • South Molton • South Pool • South Tawton • Southleigh • Sowton • Sparkwell • Spreyton • St Giles in the Wood • St Giles on the Heath • Starcross • Staverton • Sticklepath • Stockland • Stockleigh English • Stockleigh Pomeroy • Stoke Canon • Stoke Fleming • Stoke Gabriel • Stoke Rivers • Stokeinteignhead • Stokenham • Stoodleigh • Stowford • Strete • Sutcombe • Swimbridge • Sydenham Damerel • Talaton • Tavistock • Tawstock • Tedburn St Mary • Teigngrace • Teignmouth • Templeton • Tetcott • Thelbridge • Thornbury • Thorverton • Throwleigh • Thrushelton • Thurlestone • Tiverton • Torbryan • Totnes • Trentishoe • Trusham • Twitchen • Uffculme • Ugborough • Uplowman • Uplyme • Upottery • Upton Hellions • Upton Pyne • Virginstow • Walkhampton • Washfield • Washford Pyne • Weare Giffard • Welcombe • Wembury • Wembworthy • West Alvington • West Anstey • West Down • West Putford • Westleigh • Whimple • Whitchurch • Whitestone • Widecombe in the Moor • Widworthy • Willand • Winkleigh • Witheridge • Woodbury • Woodland • Woodleigh • Woolfardisworthy • Woolfardisworthy • Yarcombe • Yarnscombe • Yealmpton • Zeal Monachorum

Devon County Council’s response to the Boundary Committee’s “Draft proposal for unitary local government in Devon” 37 If you would like this in a different format such as large print, Braille or tape, or in a different language, please contact the Council’s Information Centre on 01392 380101 or email: [email protected]

This is printed on 100% recycled paper

If you don’t want to keep it, help the environment by giving it to a friend or put it in your recycle bin.

One tonne of recycled paper saves – 17 trees, 32,000 litres of water, enough electricity to heat an average house for 6 months and 27kg of air pollutants