Public Document

GREATER MANCHESTER COMBINED AUTHORITY

DATE: Wednesday, 2nd September, 2020

TIME: 11.15 am

VENUE: This meeting will be held virtually via Microsoft Teams

AGENDA

1. Apologies

2. Chairs Announcements and Urgent Business

3. Declarations of Interest 1 - 4

To receive declarations of interest in any item for discussion at the meeting. A blank form for declaring interests has been circulated with the agenda; please ensure that this is returned to the Governance & Scrutiny Officer at last 48 hours before the meeting.

4. Minutes of the GMCA meeting held on 31 July 2020 5 - 20

To consider the approval of the minutes of the meeting held on 31 July 2020.

5. GM Transport Committee - Minutes 21 - 26

To note the minutes of the GM Transport Committee held on 14 August 2020.

6. Town House Project 27 - 44

Presentation from Councillor Brenda Warrington, Portfolio Lead for Age- Friendly Greater Manchester & Equalities.

BOLTON MANCHESTER ROCHDALE STOCKPORT TRAFFORD BURY OLDHAM SALFORD TAMESIDE WIGAN

Please note that this meeting will be livestreamed via www.greatermanchester-ca.gov.uk, please speak to a Governance Officer before the meeting should you not wish to consent to being included in this recording. 7. Greater Manchester Living with Covid Resilience Plan 45 - 70

Report of GM Mayor, Andy Burnham.

8. Build Back Better - Young Persons' Guarantee 71 - 86

Report of Councillor Sean Fielding, Portfolio Lead for Digital, Education, Skills, Work & Apprenticeships, Councillor Eamonn O’Brien, Portfolio Lead for Children & Young People.

Diane Modahl, Chair of the Youth Task Force to attend the meeting.

9. Funding for Additional Dedicated Home to School and College 87 - 92 Transport

Report of Eamonn Boylan, GMCA & TfGM Chief Executive.

10. Recovering From Covid-19 & Tackling Inequality: Social Value & Public 93 - 102 Procurement

Report of Councillor Allen Brett, Portfolio Lead for Community, Cooperatives and Inclusion.

11. GM Cooperative Commission 103 - 210

Report of Councillor Allen Brett, Portfolio Lead for Community, Cooperatives and Inclusion.

12. Approval of the Variation to the Working Well Work and Health 211 - 214 Programme Contract

Report of Councillor Sean Fielding, Portfolio Lead for Digital, Education, Skills, Work & Apprenticeships

13. The Mayor's Cycling and Walking Challenge Fund (MCF) 215 - 224

Report of GM Mayor, Andy Burnham.

14. GM Housing Loans Investment Fund 2019/20 Update Report 225 - 234

Report of Salford City Mayor, Paul Dennett, Portfolio Lead for Housing, Homelessness and Infrastructure.

Membership 2020/21

District Member Substitute Member

Bolton David Greenhalgh (Con) Martyn Cox Con) 2

Bury Eamonn O’Brien (Lab) Tariq Tamoor (Lab)

Manchester Richard Leese (Lab) Bev Craig (Lab)

Oldham Sean Fielding (Lab) Arooj Shah (Lab)

Rochdale Allen Brett (Lab) Sara Rowbotham (Lab)

Salford Paul Dennett (Lab) John Merry (Lab)

Stockport Elise Wilson (Lab) Tom McGee (Lab)

Tameside Brenda Warrington (Lab) Bill Fairfoull (Lab)

Trafford Andrew Western (Lab) Catherine Hynes (Lab)

Wigan David Molyneux (Lab) Keith Cunliffe (Lab)

For copies of papers and further information on this meeting please refer to the website www.greatermanchester-ca.gov.uk. Alternatively, contact the following Governance & Scrutiny Officer: Governance and Scrutiny  [email protected]

This agenda was issued on 25 August 2020 on behalf of Julie Connor, Secretary to the Greater Manchester Combined Authority, Churchgate House, 56 Oxford Street, Manchester M1 6EU

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GMCA Meeting on 2 September 2020

Declaration of Councillors’ interests in items appearing on the agenda

NAME: ______

Minute Item No. / Agenda Item No. Nature of Interest Type of Interest

Personal / Prejudicial /

Disclosable Pecuniary Personal / Prejudicial /

Page 1 Page Disclosable Pecuniary Personal / Prejudicial /

Disclosable Pecuniary Personal / Prejudicial /

Disclosable Pecuniary Agenda Item 3

PLEASE NOTE SHOULD YOU HAVE A PERSONAL INTEREST THAT IS PREJUDICIAL IN AN ITEM ON THE AGENDA, YOU SHOULD LEAVE THE ROOM FOR THE DURATION OF THE DISCUSSION & THE VOTING THEREON.

1 QUICK GUIDE TO DECLARING INTERESTS AT GMCA MEETINGS This is a summary of the rules around declaring interests at meetings. It does not replace the Member’s Code of Conduct, the full description can be found in the GMCA’s constitution Part 7A. Your personal interests must be registered on the GMCA’s Annual Register within 28 days of your appointment onto a GMCA committee and any changes to these interests must notified within 28 days. Personal interests that should be on the register include:  Bodies to which you have been appointed by the GMCA

 Your membership of bodies exercising functions of a public nature, including charities, societies, political parties or trade unions. You are also legally bound to disclose the following information called DISCLOSABLE PERSONAL INTERESTS which includes:  You, and your partner’s business interests (eg employment, trade, profession, contracts, or any company with which you are associated)  You and your partner’s wider financial interests (eg trust funds, investments, and assets including land and property).  Any sponsorship you receive. Page 2 Page FAILURE TO DISCLOSE THIS INFORMATION IS A CRIMINAL OFFENCE

STEP ONE: ESTABLISH WHETHER YOU HAVE AN INTEREST IN THE BUSINESS OF THE AGENDA If the answer to that question is ‘No’ – then that is the end of the matter. If the answer is ‘Yes’ or Very Likely’ then you must go on to consider if that personal interest can be construed as being a prejudicial interest. STEP TWO: DETERMINING IF YOUR INTEREST PREJUDICIAL?

A personal interest becomes a prejudicial interest:  where the well being, or financial position of you, your partner, members of your family, or people with whom you have a close association (people who are more than just an acquaintance) are likely to be affected by the business of the meeting more than it would affect most people in the area.

 the interest is one which a member of the public with knowledge of the relevant facts would reasonably regard as so significant that it is likely to prejudice your judgement of the public interest.

2 FOR A NON PREJUDICIAL INTEREST FOR PREJUDICIAL INTERESTS YOU MUST YOU MUST  Notify the governance officer  Notify the governance officer for the meeting as soon as you realise you have a prejudicial interest (before or during for the meeting as soon as you the meeting) realise you have an interest  Inform the meeting that you have a prejudicial interest and the nature of the interest  Inform the meeting that you  Fill in the declarations of interest form have a personal interest and the nature of the interest  Leave the meeting while that item of business is discussed

 Fill in the declarations of  Make sure the interest is recorded on your annual register of interests form if it relates to you or your partner’s interest form business or financial affairs. If it is not on the Register update it within 28 days of the interest becoming apparent. TO NOTE: YOU MUST NOT:  You may remain in the room  participate in any discussion of the business at the meeting, or if you become aware of your disclosable pecuniary Page 3 Page and speak and vote on the interest during the meeting participate further in any discussion of the business, matter  participate in any vote or further vote taken on the matter at the meeting  If your interest relates to a body to which the GMCA has appointed you to you only have to inform the meeting of that interest if you speak on the matter.

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MINUTES OF THE VIRTUAL MEETING OF THE GREATER MANCHESTER COMBINED AUTHORITY HELD ON FRIDAY, 31 JULY 2020 VIA MICROSOFT TEAMS

PRESENT:

Greater Manchester Mayor Andy Burnham (In the Chair) Greater Manchester Deputy Mayor Baroness Bev Hughes Bury Councillor Eamonn O’Brien Bolton Councillor David Greenhalgh Manchester Councillor Richard Leese Oldham Councillor Sean Fielding Rochdale Councillor Allen Brett Salford City Mayor Paul Dennett Stockport Councillor Tom McGee Tameside Councillor Brenda Warrington Trafford Councillor Andrew Western Wigan Councillor David Molyneux

IN ATTENDANCE:

Rochdale Councillor Janet Emsley Wigan Councillor Chris Ready

OFFICERS IN ATTENDANCE:

GMCA – Chief Executive Eamonn Boylan GMCA - Deputy Chief Executive Andrew Lightfoot GMCA – Monitoring Officer Liz Treacy GMCA - Treasurer Steve Wilson Bolton Tony Oakman Bury Geoff Little Manchester Joanne Roney Oldham Mike Barker Rochdale Steve Rumbelow Salford Ben Dolan Stockport Kathryn Rees Tameside Steven Pleasant Trafford Nikki Bishop Wigan Alison McKenzie-Folan Office of the GM Mayor Kevin Lee TfGM Steve Warrener GMCA Simon Nokes GMCA Julie Connor GMCA Sylvia Welsh GMCA Nicola Ward

GMCA 102/20 APOLOGIES

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Resolved /-

That apologies be received and noted from Cllr Elise Wilson, Carolyn Wilkins, Sara Todd and Jim Taylor.

GMCA 103/20 ADJOURNMENT

Resolved /-

That the GMCA meeting be adjourned to recommence at 11.15am.

NOTE: Councillor David Molyneux left the meeting.

GMCA 104/20 CHAIRS ANNOUNCEMENTS AND URGENT BUSINESS

The GM Mayor confirmed that all GM Leaders would continue to be a voice for residents as further clarity was sought with Government as to the details of the enhanced social distancing measures for Greater Manchester as a result of rising cases of Covid-19.

The meeting was also advised that there would be a press briefing at 2pm which would provide further detail on the measures to be introduced.

RESOLVED /-

1. That it be noted that the GMCA broadly supported the proposed actions to be taken in response to the increase in cases of Covid-19 across Greater Manchester, however the GMCA would be seeking further clarity from Government later today in relation to specific elements of the enhanced social distancing measures.

2. That item 25 (GM Housing Investment Loans Fund Investment Approval Recommendations) be taken as urgent business, and the paper circulated to Members of the GMCA.

GMCA 105/20 DECLARATIONS OF INTEREST

RESOLVED /-

Cllr Tom McGee declared a personal interest in relation to items 27 & 30 (GM Investment Framework and Conditional Project Approvals) as a Trustee of the GMCVO Board.

GMCA 106/20 MINUTES OF THE GMCA MEETING HELD 26 JUNE 2020

RESOLVED /-

That the minutes of the meeting of the GMCA held 26 June 2020 be approved.

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GMCA 107/20 GMCA OVERVIEW AND SCRUTINY COMMITTEE MINUTES – JULY 2020

RESOLVED /-

That the minutes of the meetings as detailed below, be noted.

• Housing, Planning & Infrastructure – 9 July and 29 July 2020 • Economy, Business Growth & Skills – 10 July 2020

GMCA 108/20 MINUTES OF THE GMCA AUDIT COMMITTEE HELD 30 JUNE 2020

RESOLVED/-

That the minutes of the GMCA Audit Committee meeting held on 30 June 2020 be noted.

GMCA 109/20 MINUTES OF THE GM TRANSPORT COMMITTEE HELD 17 JULY 2020

RESOLVED/-

1. That the minutes of the GM Transport Committee meeting held on 17 July 2020 be noted.

2. That the decision of the GM Mayor to approve the appointment of Councillor Mark Aldred as Chair of the GM Transport Committee be noted.

GMCA 110/20 MINUTES OF THE GM WASTE AND RECYCLING COMMITTEE HELD 22 JULY 2020

RESOLVED/-

1. That the minutes of the Waste & Recycling Committee held 22 July 2020 be noted.

2. That the appointment of Councillor Allison Gwynne as the Chair of the Waste & Recycling Committee be approved.

GMCA 111/20 EXTENSION OF THE APPOINTMENT OF SIR RICHARD LEESE TO THE GROWTH COMPANY BOARD UNTIL NOVEMBER 2020

RESOLVED/-

That the extension of appointment of Sir Richard Leese to the Growth Company Board until November 2020 be approved.

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GMCA 112/20 BUILD BACK BETTER – YOUNG PERSONS’ GUARANTEE

The GM Mayor confirmed that support for young people had been, and would continue to be part of the core mission of the GMCA, and that it was clearly recognised that they had been disproportionately hit by the impact of Covid-19.

Councillor Sean Fielding, Portfolio Lead for Digital, Education, Skills, Work & Apprenticeships, proposed that this item be deferred to the next meeting of the GMCA to allow time for detailed consideration.

RESOLVED/-

That the report be deferred until the next meeting of the GMCA.

GMCA 113/20 EQUALITY ADVISORY PANELS – ANNUAL REPORTS

Councillor Brenda Warrington, Portfolio Lead for Equalities, introduced the annual reports from the Disabled Peoples and LGBTQ+ Panels. Both of which were thanked for the way they were continually able to advise the GM Mayor, and Portfolio Leads on the inequalities faced by these particular demographic groups.

RESOLVED/-

1. That the Annual Reports provided by the Disabled People’s Panel, and the LGBTQ+ Adviser and Panel be noted.

2. That the funding for the GM Disabled People’s Panel of £75,000 from October 2020 until March 2022, subject to final approval of the GMCA, be approved.

3. That the funding for the LGBTQ+ Panel of £45,000 from October 2020 until March 2022, subject to final approval of the Combined Authority budgets, be approved.

GMCA 114/20 AGE FRIENDLY AND EQUALITIES PORTFOLIO GOVERNANCE, INCLUDING THE ESTABLISHMENT OF AN INDEPENDENT INEQUALITIES COMMISSION

Councillor Brenda Warrington, Portfolio Lead for Equalities, reported on the revised governance structure in order for GM to address the issues that may arise from closer examination of the inequalities as a result of the Covid-19 pandemic. Work undertaken has demonstrated that there were particular demographic groups which have adversely suffered and would require further support throughout the recovery phase.

The aims, objectives and activities of the Commission were set out in the report. The Commission has been designed to act independently, albeit accountable to the GM Mayor and the GMCA. The role of the Commission would also be responsible for the oversight and consistency of each of the Inequalities Advisory Panels, through the introduction of a set of shared standards.

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Officers from across partner organisations have already begun to meet and further consideration would be given to the role of those organisation to support the newly defined governance structure.

RESOLVED/-

1. That the establishment of the Independent Inequalities Commission be endorsed.

2. That the establishment of partnership governance arrangements for the strategic coordination of equalities activities, under the Leadership of the Age Friendly Greater Manchester and Equalities Portfolio be endorsed.

3. That the work already underway to deliver timely and targeted support and responses to inequalities arising from Covid be noted.

GMCA 115/20 GM VOLUNTARY, COMMUNITY & SOCIAL ENTERPRISES ACCORD UPDATE

Councillor Allen Brett, Portfolio Lead for Community, Cooperatives and Inclusion, introduced a report which provided an update on the work which has taken place over the last 12 months to deliver the Voluntary, Community & Social Enterprises Accord for Greater Manchester.

RESOLVED/-

1. That the update provided on progress made to deliver the GM VCSE Accord and the work of the VCSE sector to date as part of the emergency response during the Covid crisis be noted.

2. That the direction of travel set out for the VCSE sector in the VCSE Leadership Group’s Policy Paper be endorsed.

3. That the progress with the review of GMCA investment with VCSE organisations in the light of the evolving GM policy context and that a final proposal will be presented for approval in September 2020 be noted.

4. That authority be delegated to the GMCA Treasurer, in consultation with the Community, Co- operatives and Inclusion Portfolio Leader and Chief Executive Officer, GMCA & TfGM to extend existing grant agreements currently in place with four VCSE organisations supported through a budget ring-fenced from the former Culture and Social Impact Fund, as described in Section 6.5-6.6 of the report.

GMCA 116/20 GM CO-OPERATIVE COMMISSION

Councillor Allen Brett, Portfolio Lead for Community, Cooperatives and Inclusion, requested that this item be deferred to the next meeting of the GMCA to allow time for detailed consideration.

RESOLVED/-

5 Page 9 That this report be deferred until the next meeting of the GMCA.

GMCA 117/20 RECOVERING FROM COVID-19 & TACKLING INEQUALITY: SOCIAL VALUE & PUBLIC PROCUREMENT

Councillor Allen Brett, Portfolio Lead for Community, Cooperatives and Inclusion, requested that this item be deferred to the next meeting of the GMCA to allow time for detailed consideration.

RESOLVED/-

That this report be deferred until the next meeting of the GMCA.

GMCA 118/20 UPDATE ON THE DEVELOPMENT OF A ONE YEAR GREATER MANCHESTER LIVING WITH COVID PLAN

The GM Mayor introduced a report which provided the GMCA with an update of the work underway in the development of a one year ‘Living with Covid’ Recovery Plan, focused on the major actions that need to be taken over the coming 12 months as a result of Covid 19, to enable Greater Manchester to tackle the inequalities that Covid 19 has laid bare, achieve more, increase resilience and ultimately build back better.

The GM Mayor recognised the challenge that living with Covid-19 was continuing to place on the whole world, and that Greater Manchester would not be the only area where additional measures would have to be introduced to manage increasing cases. In light of a vaccine potentially taking 12 months to develop, plans must be put in place to manage the situation and lay foundations for recovery whilst also recognising that the Covid situation remains fast changing.

RESOLVED/-

1. That the progress being made on the development of the one year ‘Living with Covid’ Plan be noted.

2. That Members of the GMCA be invited to share their comments on this report offline with the GM Mayor and that a further report be submitted to the September meeting of the GMCA.

GMCA 119/20 MONTHLY ECONOMIC DASHBOARD

Simon Nokes, Executive Director Policy & Strategy, GMCA, took Members through the latest Economic Dashboard which showed an increase in unemployment across GM, and the potential for further redundancies over the coming months.

In relation to the impact of a local lockdown, officers were looking at a range of ways to support, advise and guide businesses, and minimise the impact on their futures.

RESOLVED/-

6 Page 10 That the Greater Manchester Economic Resilience Dashboard be noted.

GMCA 120/20 GM CLEAN AIR PLAN

Councillor Andrew Western, Portfolio Lead for Green City Region, introduced a report which provided an update on the GM Clean Air Plan, including a re-scheduled consultation phase to commence in October 2020 for a period of 8 weeks simultaneously with a consultation on a minimum taxi licensing standards.

Appendix 3 of the report detailed a package of proposed support around charges, discounts and exemptions put forward by GM, subject to Government funding.

Officers working on this agenda were aware of the particular issue for Tameside in relation to the Mottram/Hollingworth bypass, and conversations were underway with MP Rachel McClean to resolve this issue. In anticipation of this resolution, it has been agreed by all Leaders to progress to the consultation phase.

Councillor Brenda Warrington, Leader of Tameside, thanked colleagues for their support in addressing the issues with Mottram/Hollingworth.

Members of the GMCA recognised the importance of this consultation, in seeking the views of residents on these proposals, and sought assurance that there would be data available on an individual borough level following the consultation. Furthermore, the detail of these schemes would be crucial to the success of the Clean Air Zone, and continued lobbying of Government for clarity on the financial package and other outstanding information would be necessary to meet the required deadlines.

RESOLVED/-

1. That the progress of the Greater Manchester Clean Air Plan be noted.

2. That it be noted that TfGM have confirmation that the funding award for Bus Retrofit should be distributed as soon as possible as per arrangements put in place for the Clean Bus Technology Funds.

3. That the update on the possible impacts of COVID-19 on the GM CAP be noted.

4. That it be noted that GM local Authorities intend to consult on GM’s proposed Minimum Licencing Standards, alongside the Clean Air Plan consultation.

5. That the submission of the response to Department for Transport’s Decarbonising Transport – setting the challenge, as set out at Appendix 1 of the report, be agreed.

6. That the GM local Authorities be commended to hold an 8-week public consultation on the GM Clean Air Plan commencing in October 2020.

7. That it be agreed that TfGM can act as the Operating Body for the GM Clean Air Zone and supporting measures, as set out at paragraph 7.5 of the report.

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8. That the GM Clean Air Plan Policy for Consultation, at Appendix 3 of the report, be endorsed.

9. That the Equalities Impact Assessment, as set out at Appendix 5, be noted.

10. That it be noted that further reports will be submitted to the GMCA to set out the formal governance mechanisms that will underpin the deliver a GM Clean Air Zone (CAZ) and the supporting measures.

11. That the detail of the vehicle finance offer to support residents to comply with the requirements of the Clean Air Plan will be included on the consultation.

GMCA 121/20 HS2, THE INTEGRATED RAIL PLAN AND NATIONAL INFRASTRUCTURE COMMISSION RAIL NEEDS ASSESSMENT FOR THE MIDLANDS AND THE NORTH

The GM Mayor introduced a report which provided an update on HS2, the Integrated Rail Plan and detailed the submission to the National Infrastructure Commission Rail Needs Assessment for the Midlands and the North. He reported that as both HS2 and Northern Powerhouse Rail Plans were now being jointly considered it was envisaged that Greater Manchester’s ambitions could be realised.

RESOLVED/-

That the report and positive direction of travel be noted.

GMCA 122/20 BROWNFIELD LAND FUND AND GETTING BUILDING FUND

City Mayor Paul Dennett, Portfolio Lead for Housing, Homelessness and Infrastructure, took the GMCA through developments in relation to Government’s £400m Brownfield Land Fund, £81.1m for Greater Manchester over the next 5 years.

The GMCA had also been allocated £54m as part of the ‘Getting Building Fund’ to support post Covid-19 building recovery, to be spent by 31 March 2022.

RESOLVED /-

1. That it be agreed that the GMCA will enter into a Brownfield Land Fund Funding Agreement with MHCLG.

2. That it be agreed that the GMCA will enter into the Getting Building Fund Funding Agreement with MHCLG, together with any necessary agreements set out in the grant agreement with MHCLG.

3. That authority be delegated to the GMCA Treasurer and the GMCA Monitoring Officer to agree the final terms of all the necessary agreements.

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GMCA 123/20 BUDGET REPORTS

The GM Mayor introduced a series of reports which provided a current budget update to Members of the GMCA further explained that the overview report gave a current position in relation to the impact of Covid-19 on Local Authority and GMCA budgets. Members were also advised that officers were looking line by line at both the GMCA and TfGM budget, their current reserves and options for retained business rates.

A. GMCA COVID FINANCES AND RESERVES

Steve Wilson, Treasurer to the GMCA, introduced a report which provided an update the Combined Authority on the financial implications of COVID 19 for GMCA and TFGM. The report included a detailed analysis of the position in a number of key areas including the GM waste disposal budgets, the retained business rates pilot, Metrolink and the overall position on the combined authority’s reserves.

RESOLVED /-

1. That the report be noted.

2. That the estimated financial impacts of COVID 19 on GMCA and TFGM budgets be noted.

3. That the detailed analysis on the position of the following budgets be noted:

o GM Waste Disposal Budgets o Retained Business Rates pilot o Metrolink o Other GMCA Reserves

4. That the proposal to manage the impact of waste LAMA charges to districts within the overall waste budget and waste reserves be noted.

5. That the return of £15m of GMCA reserves to the nine GM waste districts be approved.

6. That additional funding for Marketing Manchester of £215k be approved and sourced from GMCA core budgets.

B. GMCA CAPITAL OUTTURN 2019/20

Steve Wilson, Treasurer to the GMCA, introduced a report which informed members of the Greater Manchester Combined Authority capital outturn for 2019/20, subject to Audit, to be undertaken n November, advising that overall capital spend was slightly lower than forecasted as a result of the impact of Covid-19.

RESOLVED /-

9 Page 13 1. That the 2019/20 actual outturn capital expenditure, compared to the forecast position presented to the GMCA in February 2020, be noted.

2. That the following additions to the 2020/21 Capital Programme be approved:

 £21.887m for the Clean Air as set out in section 10 of the report  £0.1m for the Waste scheme at Salford Road as set out in paragraph 13.3 of the report

C. GMCA PROVISIONAL REVENUE OUTTURN 2019/20

Steve Wilson, Treasurer to the GMCA, introduced a report which informed Members of the provisional revenue outturn for 2019/20, confirming that the current revenue position was broadly in line with the forecast for quarter three, and proposed that the small underspends from the Mayoral General Fund, GMCA and GMFRS budgets be moved to reserves.

RESOLVED /-

1. That it be noted that Mayoral General Budget provisional revenue outturn position for 2019/20 represents an underspend of £1.356 million, with a proposal to transfer the underspend to the Bus Service Operator Grant earmarked reserve.

2. That it be noted that the Mayoral General – GM Fire & Rescue provisional revenue outturn position for 2019/20 represents an underspend of £2.664m after planned use of £3.529m of General Fund reserve approved as part of the 2019/20 budget, with a proposal to transfer the underspend back to Fire General Fund.

3. That it be noted that the GMCA General Budget provisional revenue outturn position for 2019/20 represents an underspend of £1.117m after planned transfers between earmarked reserves, with a proposal to transfer the final balance to General Fund once the accounts are closed and the outturn is confirmed.

4. That it be noted that the GMCA transport revenue outturn position for 2019/20 was in line with the break-even budget after planned transfers between earmarked reserves and proposal to meet from Capital Programme earmarked reserve and application of additional external grant funding received.

5. That it be noted that the Waste outturn position for 2019/20 was in line with budget after transfers from earmarked reserves.

6. That it be noted that the TfGM revenue position for 2019/20 was in line with budget after transfers between earmarked reserves.

7. That it be noted that due to the impact of Covid-19 the Government has extended the statutory deadline for the publication of the 2019-20 draft accounts by three months to 31st August 2020.

8. That it be noted that the final position, was subject to the submission of the audited accounts, to be finalised by 30th November 2020, to the GMCA Audit Committee.

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GMCA 124/20 LOCAL GROWTH DEAL PROGRAMME UPDATE AND APPROVALS

The GM Mayor introduced a report which provided the GMCA with an overview of progress on the development and delivery of the Local Growth Deal (LGF) Programme (Tranches 1, 2 and 3), and sought full approvals for the remaining elements of the programme.

RESOLVED /-

1. That the current position in relation to the overall Growth Deal programme, which was now in the final year of delivery be noted.

2. That the proposal to utilise the financial flexibilities available to GM, in order to bring new projects into the Local Growth Fund portfolio (as set out in Section 2 of the report) and the amendment of the funding structure of the current LGF projects in order to fully commit and spend LGF funding by March 2021, as set out in Appendix A, C and D be approved.

3. That the financial and delivery arrangements for the Transport Major Schemes programme as a whole, as set out in Section 3 and Appendix A of the report, be approved.

4. That the expenditure approvals for the full Transport Minor Works and Additional Priorities Programmes, as set out in Section 4 and Appendix B of the report, be agreed.

5. That the granting of Full Approval for the Rochdale M62 J19 (South Heywood Link Road) scheme, and the associated release of the remaining funding required to deliver these works, as set out in Section 5 of the report, be approved.

6. That it be noted that the remaining £6.868 million of Growth Deal 1 funding and the allocation and release of £3.0 million of Growth Deal 3 Northern Gateway funding, when combined with the £0.428 million of development funding previously released, will amount to an overall Growth Deal investment of £10.296 million.

7. That the release of £1.9 million of Growth Deal 3 funding, to facilitate the delivery of an advanced works package on the Wigan M58 Link Road scheme, as set out in Section 6 of the report, be approved.

8. That Full Approval for the Stockport Interchange Mixed Use scheme, and the release of the outstanding £20 million of the overall Growth Deal allocation of £61.7 million for the scheme that is required to deliver these works, as set out in Section 7 of the report, be approved.

9. That the reallocation from the Great Ancoats Street scheme of £1.2 million funding to the Hyde Road Pinch Point scheme and £1 million of contingency allowance to the Regent Road/Water Street scheme, as set out in Section 8 of the report, be approved.

10. That the current position of the Non Transport element of the original programme, which was now fully committed, as set out in section 9 of the report, be noted.

11 Page 15 11. That the final skills capital round (round 3) of £1.78 million, as set out in section 10 of this report be approved for conditional approval to progress to due diligence as follows:

a) Bury College, Estate Refurbishment, Grant £70k b) Hopwood Hall College, Advanced Technology Centre, Grant £1.71m

12. That authority be delegated to the GMCA Treasurer and GMCA Monitoring Officer to review the due diligence information and, subject to GM Local Enterprise Partnership approval (scheduled for early August), to agree detailed commercial terms, any outstanding conditions and issue final documentation in respect of the grants in 9 a) and b) above.

13. That it be noted that full approval of this report will result in the full commitment of the whole of the £493.5 million Growth Deal grant, awarded over three Growth Deals to the GM LEP from 2015-2021 for capital projects, and put GM on track to spend all of the £493.5 million LGF funding by March 2021.

14. That the Chief Executive Officer, GMCA & TfGM to confirm the status of the Hattersley Station / Albion Way scheme within current Local Growth Deal Programme.

GMCA 125/20 THE MAYOR'S CYCLING AND WALKING CHALLENGE FUND (MCF) AND EMERGENCY ACTIVE TRAVEL FUNDING, TRANCHE 1

The GM Mayor introduced a report seeking funding approvals to ensure the continued delivery of the Mayor’s Cycling and Walking Challenge Fund programme. The Cycling and Walking Challenge Fund programme was making significant progress, confirming that there would be no delay in the release of funding to ensure spend within the required timeframe.

RESOLVED /-

1. That the progress made in developing a set of Mayor’s Cycling and Walking Fund delivery priorities across GM and the agreement of a prioritised first phase for the programme be noted.

2. That £0.6 million Mayor’s Cycling and Walking funding for the Wigan Smithy Brook Road scheme, in order to secure full approval and enable the signing of a delivery agreement, be approved.

3. That the addition to the 2020/21 Capital Programme of £1.9 million of costs, to be funded from the capital grant of £1.9 million that forms part of the £3.2 million of Emergency Active Travel (Tranche 1) funding, as set out in section 3 of the report, be approved.

GMCA 126/20 REFORM INVESTMENT FUND UPDATE

RESOLVED /-

That the report be deferred to the GMCA in September 2020.

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GMCA 127/20 GM HOUSING INVESTMENT LOANS FUND INVESTMENT APPROVAL RECOMMENDATIONS

City Mayor Paul Dennett, Portfolio Lead for Housing, Homelessness and Infrastructure, introduced a report seeking approval to GM Housing Investment Loans Fund loan requests, together with details of an equity investment and an increase in a loan previously approved by the GMCA which have been approved under delegation, together with an update on the Community Led Housing initiative.

In view of there being no meeting of the Combined Authority in August, the report also sought approval to delegate authority to the Chief Executive Officer GMCA & TfGM, in consultation with the Portfolio Lead for Planning, Housing & Homelessness, to approve projects for funding in the period 1 August 2020 to 24 September 2020. Any recommendations that are approved under the delegation will be reported to next available meeting of the Combined Authority.

RESOLVED /-

1. That the GM Housing Investment Loans Fund loan detailed in the table below be approved:

BORROWER SCHEME DISTRICT LOAN Splash Developments Ltd Medlock Rd Oldham £1.600m

2. That authority be delegated to the GMCA Treasurer and GMCA Monitoring Officer to prepare and effect the necessary legal agreements.

3. That the GM Housing Investment Loans Fund equity investment approved under delegation in March 2020 detailed in the table below be noted.

PARTNERSHIP FUND DISTRICT EQUITY Social & Sustainable Housing Social & Sustainable GM wide £5.000m Limited Partnership Housing Fund

4. That the revised GM Housing Investment Loans Fund loan approved under delegation in July 2020 be noted.

BORROWER SCHEME DISTRICT REVISED LOAN Hollins Homes (Wingates) Ltd Hartley’s Farm Bolton £4.381m

5. That the update, set out in the report, on the Community Led Housing Initiative, be noted.

6. That authority be delegated to the GMCA Chief Executive Officer, GMCA & TfGM, in consultation with the Portfolio Lead for Planning, Housing & Homelessness, to approve projects for funding in the period 1 August 2020 to 24 September 2020.

13 Page 17 GMCA 128/20 GM HOUSING INVESTMENT LOANS FUND: 2019/20 UPDATE REPORT

City Mayor Paul Dennett, Portfolio Lead for Housing, Homelessness and Infrastructure, requested that this item be deferred until the next meeting of the GMCA to allow for detailed consideration.

RESOLVED /-

That this item be deferred to the next meeting of the GMCA.

GMCA 129/20 GM INVESTMENT FRAMEWORK AND CONDITIONAL PROJECT APPROVALS

The GM Mayor introduced a report seeking approval for loans to Castlefield House Properties Limited (“CHPL”) and into the GM Social Enterprise Emergency Relief Fund (“GM SEERF”). The loans will be made from recycled funds.

In view of there being no meeting of the Combined Authority in August, this report also seeks Combined Authority approval to delegate authority to the GMCA Chief Executive Officer, GMCA& TfGM and GMCA Treasurer, in consultation with the Portfolio Lead for Investment and Resources, to approve projects for funding and agree urgent variations to the terms of funding in the period 1 August 2020 to 24 September 2020. Any recommendations that are approved under the delegation will be reported to the next available meeting of the GMCA.

RESOLVED /-

1. That the funding application for Castlefield House Properties Limited (loan of £5,000,000) be approved, and progressed to due diligence.

2. That the funding application for GM Social Enterprise Emergency Relief Fund (loan of £1,500,000) be approved and progressed to due diligence.

3. That authority be delegated to the GMCA Treasurer and GMCA Monitoring Officer to review the due diligence information in respect of the funding, and, subject to their satisfactory review and agreement of the due diligence information and the overall detailed commercial terms of the transactions, to sign off any outstanding conditions, issue final approvals and complete any necessary related documentation in respect of the loans at 1 and 2 above.

4. That authority be delegated to the GMCA Chief Executive Officer, GMCA & TfGM and GMCA Authority Treasurer, in consultation with the Portfolio Lead for Investment and Resources, to approve projects for funding and agree urgent variations to the terms of funding in the period 1 August 2020 to 24 September 2020. Any recommendations that are approved under the delegation will be reported to the next available meeting of the GMCA.

GMCA 130/20 EXCLUSION OF THE PRESS AND PUBLIC

RESOLVED /-

14 Page 18 That, under section 100 (A)(4) of the Local Government Act 1972 the press and public should be excluded from the meeting for the following items on business on the grounds that this involved the likely disclosure of exempt information, as set out in the relevant paragraphs of Part 1, Schedule 12A of the Local Government Act 1972 and that the public interest in maintaining the exemption outweighed the public interest in disclosing the information.

GMCA 131/20 GM HOUSING INVESTMENT LOANS FUND – INVESTMENT APPROVAL RECOMMENDATIONS

Note: This item was considered in support of the Part A – GM Housing Investment Loans Fund – Investment Approval Recommendations (minutes reference GMCA 127/20)

RESOLVED /-

That the report be noted.

GMCA 132/20 GM INVESTMENT FRAMEWORK: CONDITIONAL PROJECT APPROVALS

Note: This item was considered in support of the Part A – GM Investment Framework: Conditional Project Approvals (minutes reference GMCA 129/20)

RESOLVED /-

That the report be noted.

15 Page 19 This page is intentionally left blank Agenda Item 5

MINUTES OF THE VIRTUAL MEETING OF THE GREATER MANCHESTER TRANSPORT COMMITTEE HELD ON FRIDAY 14 AUGUST VIA MICROSOFT TEAMS

PRESENT:

Councillor Mark Aldred (in the Chair) Wigan Council Councillor Richard Gold Bury Council Councillor Stuart Haslam Bolton Council Councillor John Leech Manchester City Council Councillor Naeem Hassan Manchester City Council Councillor Shah Wazir Rochdale Council Councillor Phil Burke Rochdale Council Councillor David Meller Stockport MBC Councillor Doreen Dickinson Tameside MBC Councillor Warren Bray Tameside MBC Councillor Peter Robinson Tameside MBC Councillor Nathan Evans Trafford Council Councillor Steve Adshead Trafford Council Councillor Joanne Marshall Wigan Council

OFFICERS IN ATTENDANCE:

Eamonn Boylan Chief Executive, GMCA & TfGM Bob Morris Chief Operating Officer, TfGM Alison Chew Interim Head of Bus Services, TfGM Kate Brown Director of Corporate Affairs, TfGM Simon Elliott Head of Rail Programme, TfGM James Baldwin Senior Policy Officer, TfGM Gwynne Williams Deputy Monitoring Officer, GMCA Nicola Ward Governance Officer, GMCA

GMTC 56/20 APOLOGIES

Resolved /-

That apologies be noted and received from Councillor Howard Sykes (Councillor Angie Clark substituting), Councillor Roger Jones, Councillor Angeliki Stogia, Councillor Atteque Ur-Rehman and Councillor Sean Fielding.

GMTC 57/20 CHAIRS ANNOUNCEMENTS AND URGENT BUSINESS

Resolved /-

That there were no Chair’s announcements or urgent business.

Page 21 GMTC 58/20 DECLARATIONS OF INTEREST

Resolved /-

That it be noted that Councillor Phil Burke declared a personal interest in relation to item 6, Transport Network Performance as an employee of Metrolink.

GMTC 59/20 MINUTES OF THE GM TRANSPORT COMMITTEE MEETING HELD 10 JULY 2020

Resolved /-

1. That the minutes of the meeting held 10 July 2020 be approved. 2. That an update on Road Safety Schemes be considered at a future meeting of the GMTC.

GMTC 60/20 GOVERNANCE REPORT

Gwynne Williams, Deputy Monitoring Officer GMCA introduced a report which gave Members the opportunity to review the governance arrangements of the Greater Manchester Transport Committee to ensure they could most effectively undertake their role and functions as set out in the Committee’s Terms of Reference.

Members sought clarification as to whether they would be able to substitute for one another across sub committees, officers confirmed that the appointed substitutes would be asked to attend if a Member of the sub-committee was not available.

Resolved /-

1. That it be agreed to establish two sub committees to specifically look at Bus Services and Metrolink & Rail Services.

2. That Chairs for the sub committees be appointed as follows –  Bus Services – Cllr Roger Jones  Metrolink & Rail Services – Cllr Doreen Dickinson

3. That the following Members be appointed to each of the Sub Committees.

Bus Services Councillor Roger Jones Councillor Angeliki Stogia Councillor Mark Aldred Councillor Sean Fielding Councillor Warren Bray Councillor Phil Burke Councillor David Mellor Councillor Barry Warner Councillor John Leech Councillor Nathan Evans

2 Page 22 Councillor Roy Walker

Metrolink & Rail Services Councillor Peter Robinson Councillor Richard Gold Councillor Joanne Marshall Councillor Atteque UrRehman Councillor Dzidra Noor Councillor Steve Adshead Councillor Shah Wazir Councillor Naeem Hassan Councillor Howard Sykes Councillor Doreen Dickinson Councillor Stuart Haslam

GMTC 61/20 TRANSPORT NETWORK PERFORMANCE UPDATE

Bob Morris, Chief Operating Officer, TfGM took Members through a report which provided an overview of Transport Network Performance in Greater Manchester for July 2020 during the Coronavirus pandemic.

Regarding Metrolink, Government had recently confirmed funding up until 26 October which totalled £1.6m weekly and would allow the continuation of the current service pattern. Members thanked those officers who had successfully negotiated with Government for this further funding. However, concern was raised as to the illustrated spike in anti-social behaviour on Metrolink services in May 2020, officers confirmed that this was attributed to the key performance indicator being measured against the number of journeys, so as patronage levels fell but incidents of ASB remained the same, this looked like a spike but actually was nothing significant. Members further asked whether incidents of ASB could be defined clearly by location within future reports, so that potential hotspots could be identified.

It had been a steady period for rail services, however there had been a recent announcement from Northern regarding the temporary removal of the Rose Hill – Piccadilly service. TfGM had opposed this removal, and had continued to work with Northern to ensure alternative provision was available for passengers. In response to this, Northern explained the reasons for the temporary removal of this service between 14 September and 14 December, including a number of staff remaining shielding, a delayed driver training programme, significantly low patronage compared to other routes and the potential other transport links within this area. It was confirmed that if possible, the service would be reinstated before December, and that specific complaints would be dealt with as a matter of priority. Members expressed their strong dissatisfaction with the removal of this service, due to the significant impact on passengers. It was reported that TfGM had put a number of options to Northern, however, each option was not deemed possible. Therefore, it was suggested that the GMTC write to the Rail Minister to express their concerns with this proposal and Northern’s overall communication with the relevant stakeholders. Members reminded the Committee that Northern was now a nationalised service, and therefore the Rail Minister needed to address this inequality for the Rose Hill/Marple area that also impacted the whole of Greater Manchester.

3 Page 23 Members added that the Rose Hill service has often been unfairly impacted by Northern, and that passenger numbers were substantive. Rose Hill station serves both Marple Hall High School and Marple Sixth Form and the current proposals for rail replacement services would not allow sufficient time for journeys to school and the impact of congestion on the local road work in September. Current timetables allow 10 minutes, whereas commercial services allow for 30 minutes. There was a strong local feeling against this decision, with a petition of over 5000 signatures to evidence the views of residents. Members felt that Marple already suffered from a poor local transport offer, and had recently also had bus services removed. Northern reported that there had only been a 4% increase in passenger numbers from Rose Hill in comparison to a 77% increase from Marple, and therefore capacity has been allocated where it was needed most.

Rail operators reported that there had been a slight decline in face covering compliance during the recent hot weather, but that there were a number of communications campaigns running to encourage and advise of their use, with the possibility of a fine for non-compliance. Members asked whether there were figures available in relation to the number of fines issued for non- compliance, officers confirmed that this specific data was not currently available, but that an educate and persuade approach had been used over enforcement in most instances. Members were concerned that some members of the public were aware of the guidelines but choosing not to comply, and therefore a stronger enforcement approach should be pursued.

In relation to rail stations, 25 lifts across Greater Manchester were now operational when ticket offices were closed, resulting in improved access levels for passengers with mobility issues. Members welcomed this improvement.

Northern confirmed that there would be an introduction of new trains before the end of the year on south east routes in Greater Manchester, which would also require some additional training.

In relation to bus services, patronage had continued to increase across all operators and the Bus Priority Programme early findings report had been submitted to DfT in relation to Oxford Road Scheme and Vantage Service on Leigh Guided Busway. Furthermore, bus stations and interchanges had returned to normal opening levels.

Highways levels had now reached 85% of normal levels. Members asked how many of these journeys could be attributed to people moving from public transport to their cars, as some routes seemed to be busier than they were pre-covid. Officers confirmed that the regional centre trips were on a par with other GM areas, however future travel surveys would be the only way to determine how many of those would have previously been trips made on the public transport network. Further to this, Members asked whether there would be a tipping point to congestion levels being reached. Officers confirmed that each road has an individual tipping point, and that some roads were already reaching levels of congestion.

Members questioned as to how often public transport units were cleaned, officers confirmed that cleaning regimes had been increased across all modes, with regular deep cleans and fogging having been introduced.

In relation to communications, Members were pleased to see clear messages regarding the return to use of public transport. However, urged that capacity is made available for the envisaged increase in passengers in September once schools return. Officers confirmed that Metrolink was now operating at its maximum capacity, but that bus and rail were stepping up in increments to

4 Page 24 reach full capacity as soon as possible.

Resolved /-

1. That the report be noted.

2. That it be noted that funding for Metrolink for the period of 4 August – 26 October had been received by TfGM.

3. That it be noted that TfGM had objected to the temporary removal of rail services to Rose Hill between 14 September and 14 December 2020, and were working with Northern to ensure alternative services would be provided.

4. That a breakdown of the location of anti-social behaviour incidents on Metrolink be brought to a future meeting of GMTC.

5. That it be noted that the 85% current level on the highways are cross GM but that this does not indicate that congestion levels have been reached as each road has its own tipping point.

6. That it be noted that in relation to ensuring the highest level of face covering compliance, personal accountability was also vital to support current communications and enforcement activity.

7. That the GM Transport Committee write to the Rail Minister to urge for the re- instatement of the rail service to Rose Hill between September-December.

8. That it be noted that Northern would review the timings of the rail replacement timetable for Rose Hill/Marple – Romiley and liaise directly with Councillor Clarke.

GMTC 62/20 SCHOOL TRANSPORT: PREPARATIONS FOR SEPTEMBER

Alison Chew, Head of Bus Services, TfGM took Members through a report which provided an update on the approach to planning for the return of pupils to schools in September and the wider transport implications.

Following the publication of the report, further guidelines had been issued by Government, including confirmation of a £40m funding package for additional transport capacity to be provided for schools during the first term of 2020/21. Greater Manchester has been allocated £2.25m of this fund which would be fully auditable to DfT.

There had been further guidance published by DfE on 11 August which covered transport to places of education. It particularly focussed on key issues including managing public transport demand, promoting active travel, engaging with employers, staggered start and finish times, providing dedicated transport to schools and places of education, social distancing, appropriate ventilation and face coverings for over 11’s, and how to respond to any case of infection.

Officers across GM had recently met and TfGM had provided an update on this guidance. Work

5 Page 25 was ongoing with operators regarding potential pressures on network, and additional available capacity and officers were now analysisng the best places for this funding to be used to support pupils in returning to school in liaison with Local Authorities.

A back to school communication campaign had also been launched this week, which promoted advice within this guidance to parents, pupils and general members of the public.

Members asked whether there was a model DfT survey to parents across GM to ensure consistency, officers agreed to look into this, liaise with Local Authority leads, and report directly back to the Committee.

In relation to the available funding to support additional school services, Members asked whether it could be applied to train services for pupils who use this mode. Officers agreed to check this and also review rail services particularly to Knutsford school and report back to Cllr Adshead.

In respect of bus services, Members asked whether this funding would allow for pre-covid levels of patronage. Officers confirmed there would be full capacity available on school services, but that there was no available funding to increase capacity on the commercial network.

Resolved /-

1. That the report be noted.

2. That TfGM endeavour to ensure that the DfT parents’ survey in relation to schools transport be coordinated across GM, and report back to the GMTC.

3. That details as to how available Government funding for additional school services is also be applied to rail be reported direct back to Councillor Adshead, specifically in relation to school travel to Knutsford.

4. That it be noted that Northern would share their ‘Guidance for Parents’ in relation to social distancing once schools re-open with Members of the GMTC.

GMTC 63/20 GM TRANSPORT COMMITTEE WORK PROGRAMME

Gwynne Williams, Deputy Monitoring Officer for the GMCA took Members through the draft Work Programme for the Greater Manchester Transport Committee and the two newly constituted sub committees.

Resolved /-

1. That the Work Programme be noted.

2. That there be an update on Road Safety Schemes be provided at a future meeting.

6 Page 26 The Town House Page 27 Page

Executive Leader Agenda Item 6 Councillor Brenda Warrington

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17 This page is intentionally left blank Agenda Item 7

GREATER MANCHESTER COMBINED AUTHORITY

Date: 2nd September 2020 Subject: Greater Manchester Living with Covid Resilience Plan Report of: Andy Burnham, Mayor of Greater Manchester, Portfolio Lead for Policy & Strategy and Eamonn Boylan, GMCA Chief Executive, Portfolio Lead for Policy & Strategy

PURPOSE OF REPORT: To provide GMCA with the final draft Living with Covid Resilience Plan for review and endorsement. Approval is also sought for the proposed mechanisms to drive system wide change within the development and delivery of policies and activities to tackle inequalities highlighted and exacerbated by Covid. The successful implementation of this plan will build resilience for further outbreaks and enable mechanisms for Greater Manchester to build back better.

RECOMMENDATIONS: GMCA are asked to: 1. Review, and subject to comments, agree the Living with Covid Plan, and support its implementation as a system wide driver for change and improvement.

2. Consider an approach whereby all GMCA reports include recommendations that assess and identify the impact of the proposal on inequalities, environmental and financial issues in relation to the topic. This would be supported by a commitment to collect, analyse and report on data, including community intelligence, to understand that impact.

3. Building on the recommendation above, develop a mechanism to utilise the established and developing partnership governance for the Age-friendly and Equalities Portfolio to support system wide responses. This would include actions to address equalities issues identified and unresolved through the above assessment process.

4. Consider whether adopting minimum targets or standards for each locality or neighbourhood would support the effective targeting of resources across all GMCA activity. This would ensure that there is an ongoing recognition that address

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inequalities in all communities is fundamental to the whole of Greater Manchester being able to achieve its collective ambitions.

CONTACT OFFICERS: Simon Nokes, Executive Director, GMCA [email protected] Amy Foots, Strategy, GMCA [email protected]

Equalities Implications: Previously existing and newly arising inequalities in our society have been clearly evidenced by the coronavirus pandemic. The Living with Covid plan seeks to fully understand those differential impacts and begin to redress the inequalities through the actions in the plan and also the proposed mechanisms in the recommendations on future ways of working, enabling the GMCA to better understand and more robustly respond to inequalities where they are evidenced. Climate change impact and mitigation measures: The Living with Covid plan includes actions which aim to support our climate change ambitions. Actions contained in the plan will help reduce carbon emissions and to retain and improve recent environmental improvements, along with supporting Greater Manchester to be better equipped to respond to climate change going forward. It should however be noted as more of the Greater Manchester economy restarts and travel levels increase, the temporary environmental gains seen during lockdown, may in part be reversed. Risk Management: N/A Legal considerations: N/A Financial Consequences – Revenue: The specific actions contained in the Living with Covid Plan will be delivered within existing resource. The Plan does however contain actions, and support wider Greater Manchester activity making the case for additional resources from Government, and distribution of funds to support strategic ambitions. Financial Consequences – Capital: The specific actions contained in the Living with Covid Plan will be delivered within existing resource. The Plan does however contain actions, and support wider Greater Manchester activity making the case for additional resources from Government, and distribution of funds to support strategic ambitions.

Page 46

Number of attachments to the report: N/A Comments/recommendations from Overview & Scrutiny Committee Will be considered by O&S committees in September BACKGROUND PAPERS:

TRACKING/PROCESS

Does this report relate to a major strategic decision, as set out in No the GMCA Constitution

EXEMPTION FROM CALL IN

Are there any aspects in this report which means it should be considered to be exempt from call in by the relevant Scrutiny Committee on the grounds of urgency?

GM Transport Committee Overview & Scrutiny Committee

1. INTRODUCTION AND BACKGROUND

1.1 The Greater Manchester Living with Covid Resilience Plan is a one year delivery document, which considers the impacts arising from Covid and captures the actions to be taken in the short term to build resilience and begin to respond to those impacts. The Plan recognises the significant and disproportionately impacts arising from Covid on Greater Manchester residents, businesses and places, but also seeks to acknowledge the positive gains and innovations which supported Greater Manchester’s response to the pandemic.

1.2 The Living with Covid Plan provides a bridge between the existing Greater Manchester Strategy and the refresh now due to take place next year. The one year plan is not intended to be the long term strategy for Greater Manchester, it is a delivery plan to support Greater Manchester’s people, places and businesses over the next year, building resilience for further outbreaks of the virus or other emergencies and supporting Greater Manchester to rebuild and develop our economy and society. The Plan focuses on the major issues that GM as a whole

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needs to respond to in order to build resilience for the ongoing pandemic and in the event of future emergencies and to respond to inequalities revealed or exacerbated by Covid.

1.3 As stated above the Living with Covid Plan is not intended to be the long term plan for Greater Manchester. When finalised this plan will sit alongside a wider package of proposals which will include: the Greater Manchester submission to the Comprehensive Spending Review and Devolution & Local Recovery White Paper, as our mechanism to secure further powers and resources from Government to drive the longer term recovery of the city-region; an economic proposition on the economic renewal and growth case to be made to Government; GMSF and Clean Air consultations; and, place based investment activity including Brownfield Land Fund and Transforming Cities Fund. This comprehensive package together will set out again Greater Manchester’s bold plans, demonstrating our ability to live with, and learn from Covid, and Greater Manchester’s clear and focused direction and plans for the future.

1.4 The final draft of the plan is attached for comment and endorsement. The Plan is structured in three parts:

 An opening contextual narrative;  An articulation of the impacts observed (both positive and negative), with a package of GM deliverables responding to those impacts; and,  A table of actions to be delivered

1.5 It is important to recognise that the GM deliverables identified in the plan will require system wide action, rather than action by one partner alone. The table of actions therefore identifies a lead partner to coordinate that action, key actions by that partner and examples of supporting actions by the wider system which will drive the attainment of the GM deliverables. These tables do not seek to capture all the actions that GM will be taking but give a flavour of actions from across the system. In the main it also focuses on actions within current resource constraints rather than committing to actions which might have a significant financial consequence.

1.6 In developing the plan, how GM responds to the inequalities that Covid has laid bare has been a recurrent theme. Obviously many of the action identified will help to address inequalities but there is a concern that these alone will not be enough. GMCA approval is therefore sought for the range of mechanisms set out in the recommendations (over and above the individual actions) that could support the system and behaviour changes which will be required if GM is to genuinely tackle inequalities and not simply build back our previous approaches but provides the framework to enable building back better.

2. LIVING WITH COVID PLAN IMPLEMENTATION GOVERNANCE

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2.1 The development of the Living with Covid Resilience Plan has been overseen by the multiagency Recovery Coordination Group (RCG). This group will not continue to regularly meet in its current form, but will continue to meet quarterly to maintain oversight of the Plan’s implementation. The RCG’s oversight will seek to ensure progress is being made against the GM deliverables, and that system wide developments and innovations continue to shape and inform our ongoing response to the Covid pandemic. It will also ensure that actions are being delivered in the spirit in which they have been developed, providing a platform for Greater Manchester to build back better.

2.2 In addition to the ongoing role for the Recovery Coordination Group, the Age-friendly GM and Equalities Portfolio will have responsibility for the oversight and implementation of the recommendations set out in this paper about mechanisms to drive effective responses to evidenced inequalities.

2.3 As per existing arrangements, monitoring of the Greater Manchester Strategy performance metrics will continue to be provided to the GMCA, the LEP and VCSE Leadership Group for comment and endorsement.

3. RECOMMENDATIONS:

3.1 GMCA are asked to: 1. Review, and subject to comments, agree the Living with Covid Plan, and support its implementation as a system wide driver for change and improvement.

2. Consider an approach whereby all GMCA reports include recommendations that assess and identify the impact of the proposal on inequalities, environmental and financial issues in relation to the topic. This would be supported by a commitment to collect, analyse and report on data, including community intelligence, to understand that impact.

3. Building on the recommendation above, develop a mechanism to utilise the established and developing partnership governance for the Age-friendly and Equalities Portfolio to support system wide responses. This would include actions to address equalities issues identified and unresolved through the above assessment process.

4. Consider whether adopting minimum targets or standards for each locality or neighbourhood would support the effective targeting of resources across all GMCA activity. This would ensure that there is an ongoing recognition that address inequalities in all communities is fundamental to the whole of Greater Manchester being able to achieve its collective ambitions.

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Greater Manchester Living with Covid Resilience Plan

Context:

The Living with Covid Resilience Plan frames Greater Manchester’s response to the pandemic, capturing actions to be delivered in the next year, which will support our ability to respond to the ongoing pandemic and will build resilience in our city-region for both now and in the future. In responding to, and living with coronavirus, the position of Greater Manchester, like the rest of the UK and even the world, is highly changeable. This plan therefore seeks to be dynamic and provide a framework to our collective responses as we continue to adapt and flex to meet the changeable needs in terms of responses.

At the time of writing, Greater Manchester is in a partial lockdown, no vaccine has been developed, and therefore for the next year or maybe longer, we will be living with Covid. This plan tries to learn the ongoing lessons from the coronavirus pandemic, building resilience to our ongoing response and seeking to lay the foundations to enable the city-region to build back better.

As the situation continually changes, ongoing evidence based decision making and strong leadership will be paramount. Led by the epidemiology, and balancing the health, economic and societal needs, Greater Manchester will continue to face those challenging decisions head on. Recognising that tough choices and trade-offs may be required.

This plan does not seek to capture everything that will be delivered in the next year. Our existing strategies, long term plans and aspirations still stand, and across the Greater Manchester system, our localities, policy areas, sectors and agencies reframing, recovery and re-start activity following the lockdown are now underway. This plan is complementary to that activity and seeks to draw together interventions which are required to build resilience while living with Covid and where the whole system has a role to play in their delivery. This plan also has a key role to play in driving system change, and provides a bridge between the existing Greater Manchester Strategy and the refresh of that document now planned for next year.

The plan takes account of Greater Manchester’s overarching principles which were determined early on in our response to the pandemic, and continue to shape and guide the development of our Living with Covid Resilience Plan:

 Inequalities / poverty  Safe GM / Standards  Co-design, civil society and social infrastructure  Building a confident city-region  Resilient city-region  Recovery in the context of GMS (opportunities to achieve our aims faster; risks to achieving our aims)  Behaviour change

Living with Covid:

Greater Manchester is a place which believes everyone should reach their potential. A place where we all pull together: collaborating, contributing and working together to help everyone thrive.

In the Greater Manchester Strategy we set out our collective ambitions. We would: deliver a good start in life for everyone; good opportunities for our young people to equip them for life; good work

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and the best jobs in a valuable, productive, zero carbon economy; safe, secure housing in inclusive and diverse communities; a good cultural and leisure offer for everyone; a green city-region; good health and support for people to live fulfilling lives, with quality care for those who need it; to be a good place to grow older and to be a place where everyone is connected – socially, digitally and by a clean, integrated and accessible transport system.

Since agreeing our collective ambitions, we have made huge progress; helping people take charge of their own lives, achieve their potential and have a sense of hope and optimism for the future of their city-region remains our priority.

But Covid has required us to re-consider our agreed values, our long term strategy and the ambitions and priorities in it. As part of our recovery and rebuilding planning we have considered how Covid may have disrupted our strategy and review our priorities in light of the impacts evidenced by the pandemic.

It has affected every person and every business in every part of our city-region. To some it has been inconvenient, to some challenging, and to many, devastating. The impact has been unequal and unfair, starkly highlighting and deepening the inequalities we know have existed for many years and which we were beginning to change. There is now a substantive body of evidence proving that more deprived areas are experiencing higher mortality rates from Covid than more affluent areas. The impacts are ongoing. Many more people in Greater Manchester are now experiencing unemployment, businesses have closed or reduced staff numbers, with far more redundancies and business closures anticipated.

The impacts of Covid have been experienced differently across our city-region. Individual localities, towns and the regional centre have all seen varied challenges and opportunities presented by the outbreak. One of the strengths of Greater Manchester’s response to the pandemic was the ability of the system as a whole to respond to that variation and locality led need. As evidenced by our effective partnership responses, Greater Manchester is now putting in place partnership governance to drive, lead and coordinate equalities activity across the city-region to accelerate the speed of our responses, and increase the impact of our activities to respond to evidenced inequalities.

The pandemic has also shown the strengths, positives and agility in Greater Manchester’s coordination of activities and ability to respond. It has also highlighted the importance of the values, principles and ways of working that are core to the Greater Manchester approach. It has demonstrated the effectiveness of our partnerships, networks and relationships to quickly put in place responses and systems to support our people and places as the pandemic hit. The Greater Manchester way of working has been tested and our partnership working proven effective and strengthened through the outbreak, a positive reinforcement and opportunity as Greater Manchester recovers from the first wave and responds to ongoing outbreaks, and builds our resilience for the future.

A fundamental element, and key enabler of Greater Manchester’s ability to respond to, and to live with Covid, is to provide a highly effective, timely, test and trace service. The service draws on multiagency coordination and relies on effective local collaboration, along with data, intelligence and information provided by Government. An effective test and trace system will be the single greatest tool available to Greater Manchester, allowing our economy and society to restart in the safest possible way, enabling the conditions for the successful implementation of the deliverables and actions in this plan, and providing the most effective mechanism to respond quickly and efficiently to future outbreaks.

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As we seek to rebuild our economy, there is an unprecedented opportunity to do so in a way which does not forfeit the observed environmental improvements by building back better to tackle our climate emergency, and builds a fairer society. It is our aspiration to develop and rebuild with a more inclusive economy, where everyone can contribute and benefit. Through more effective targeting and prioritising of resources, Greater Manchester has the opportunity to reshape our future with greater inclusivity of growth and prosperity, with no-one left behind.

The virus outbreak has also forced innovation and significant shifts in the ways services are designed, delivered and accessed. The rapid switch to online has tested our digital infrastructure but has also provided some of the fastest adoption of digital technologies and adaptations and innovations ever seen. Novel operating models developed as part of Greater Manchester’s response to the outbreak need to be embedded and developed as our city-region continues on this digital progression. Alongside innovation however, we must also ensure accessibility, and support our residents and businesses to overcome digital exclusion to ensure everyone has equality of access to services and support and people are not disadvantaged by the rapid digital switch.

Covid forced change upon us; some of which we had been trying to implement for some time, and highlighted the deep connections which our communities and those working with them have built. These must not be lost, and must be built on with our communities and citizens at the centre. Greater Manchester as a Marmot city-region, must grasp the opportunities to achieve greater equity for all in the key social determinants of health. If we do not embed and secure these improvements now, collectively we may have missed the single greatest opportunity to change how we respond to issues and providing a platform to a fairer, more resilient city-region.

We’re confident our values still stand, but we must rethink and reprioritise some of our ambitions to focus on those people and places which, without our collective focus, will not achieve their potential. Covid has exacerbated inequalities in our society, and we need to now ensure our responses to the pandemic and our future rebuilding and growth strategies are fairer, healthier, greener, and more equitable, with inclusivity at their heart.

This one year plan aims to strengthen our resilience whilst also living with the crisis. This is to ensure that we are in a good state of preparedness for further outbreaks of the virus and other emergencies, but that we also respond to those stresses which weaken our society, economy and environment. Building that resilience is dependent upon recognising, and addressing, chronic stresses such as poverty, polluted environments and social inequality and unequal access to opportunities, that weaken the fabric of society and can undermine attempts to respond to crises and to create a stronger future in their aftermath. The agility and responsiveness seen across the Greater Manchester system as part of the initial response to the pandemic must be retained and developed enabling Greater Manchester to live with Covid, with rapid understanding of needs as they change or arise, and responding quickly to support our people and businesses, as far as possible minimising the long term affects.

If Greater Manchester is to truly build back better and fairer, we need to develop our long term inclusive growth models, we need to change how we drive growth and we need to find ways of putting social and natural infrastructure on the same footing as hard economics and traditional physical infrastructure. One of the really positive takeaways from the Greater Manchester response to the pandemic has been understanding the need and value of locally driven, community based

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support, interventions and responses. This plan sets the foundations to shore up the existing community infrastructure as part of the city-region’s ongoing support and preparedness for further outbreaks, and provides the opportunity to bring forward a mature, system wide conversation about how inclusivity can be the driver of our future strategies, seeking to reduce inequalities in all forms, and providing equality of opportunity for all of Greater Manchester’s people and places.

This recovery and resilience plan focuses on our activity for the next year around three areas:

 where the impact of Covid has been significant and even devastating;  where the impact has caused challenge, and;  where the impact has driven innovation and accelerated new approaches.

The activity captured in the plan takes account of the unequal impacts on different people and communities, and the actions being taken to start to fix the problem or maintain the improvement.

The development and the delivery of this plan also provides Greater Manchester with an opportunity and a platform from which to innovate. Greater Manchester now needs to drive that innovation, finding new models, with more diverse representation across the board, enabling fairer and more equitable distribution of health, wealth and opportunities for our people, but also across our agencies and infrastructure. We need to lead and drive culture, system and behaviour change. These are not things which can be changed overnight, but now is the time to begin to challenge the status quo, to learn from our recent experience and to truly build back a better, greener and fairer Greater Manchester.

As part of our recovery and building our future resilience, Greater Manchester must also look outwards. The significance of our place in the region and nationally, international relationships, partnerships and positioning globally will form a key part to the future success of Greater Manchester and the UK more generally. International collaborations, learning and sharing must continue to form a key part of our ongoing response to the virus and must shape our future responses and wider ambitions.

The aim is to quickly get us to a better place, ensuring we are resilient enough to live with Covid and in a good place to look to a future beyond Covid, supporting Greater Manchester to achieve our collective ambition of being one of the best places in the world to grow up, get on and grow old.

This Plan is structured in two tables:

Firstly, an articulation of the impacts observed (both positive and negative), with a package of GM deliverables responding to those impacts; and, Secondly, a table of actions to be delivered recognising that the GM deliverables identified in the plan will require system wide action, rather than action by one partner alone. The table of actions therefore identifies a lead partner to coordinate that action, key actions by that partner, and examples of supporting actions by the wider system which will drive the attainment of the GM deliverables.

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GM Covid Recovery and Resilience Plan – Impacts identified and GM Deliverables

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GM Deliverable Main responsibility for deliverables and examples of supporting actions Policy area / Partnership leading actions delivery Implement a system wide The main responsibility for coordinating the system to achieve the deliverable is GMCA, their activity will approach to assessing and include: responding to evidenced  Deliver Independent Inequalities Commission, with recommendations provided to portfolio partnership  Strategy inequalities in the ongoing governance board to be taken forward management of the covid  Develop, and further existing, cross cutting approaches for the use of data and intelligence to effectively  PSR / Digital response and the design and identify need and vulnerability and develop targeted, tailored responses delivery of recovery and And, wider system examples of the actions which will support its attainment are: restart activity  Deliver Ageing Well Winter programme to support older people at greater risk of adverse outcomes from  PSR covid  Deliver campaign to promote uptake of Pension Credit  PSR  Conduct an EIA on the GM Digital Blueprint Delivery plan and continue to review activity and its impacts on  Digital Page 55 Page different communities in GM  Inequalities addressed through place based working approach, taking account of local need and context,  PSR delivered though / interdependent on integrated neighbourhood model  Establish Women & Girls’; Race; Faith equalities advisory panels  Strategy  Explore opportunities for establishment of Older People’s Panel  PSR  Establish partnership governance for Age-friendly and Equalities Portfolio with responsibility to oversee and  Strategy direct activities to drive equality and reduce inequalities experienced by GM’s people and places  Advice to be provided as required in relation to travel inequalities  TfGM  Consideration of disproportionality in criminal justice system with a focus on CYP as part of Independent  Police & Crime Inequalities Commission scope and remit  The GM VCSE Leadership Group will work with GMCA to ensure that Covid-19 impact data is collected by  VCSE Leadership age, disability, ethnicity, gender, gender identity, religion or belief, sexual orientation and social class Group  The VCSE sector will share our research and insight in order to inform the development of comprehensive  VCSE Leadership Equality / Equity Impact Assessments and action plans, particularly in relation to Economic Policy Group  Deliver GM response to PHE Disparities in risks and outcomes of Covid-19 review  GMCA / H&SCP  Deliver diverse communication and engagement approaches to extend effectiveness and reach of  Comms communications and further develop use of community advocates, with provision of targeted messages and recognising communities who may be digitally excluded Sustain support to care The main responsibility for coordinating the system to achieve the deliverable is Local Authorities and H&SCP, homes and extend Living their activity will include:

Well at Home to strengthen  Develop a GM Care Home Assurance framework which will enable provision of system wide support to Care  H&SCP the resilience of adult social homes in managing Infection Prevention and Control, preventing local Covid 19 outbreaks and managing care provision local outbreaks if they occur  Continue to develop the Living Well at Home programme outlining future phases and building on progress to  H&SCP date And, wider system examples of the actions which will support its attainment are:  Continuation of C19 Situation Reporting  Digital  Support Healthy Ageing pre-procurement assisted living initiative  Digital  Deployment of an integrated digital tool into to care homes and domiciliary settings to include falls risk  H&SCP / HInM assessment, Covid-19 symptom tracker and soft signs of deterioration (Safe Steps)  Deliver Virtual Hospital Programme, including Urgent & Emergency Care by Appointment Programmes  H&SCP / HInM  Adult social care provision delivered through / interdependent on integrated neighbourhood model  PSR  Develop stage 2 bid submission for UK Healthy Ageing Trailblazer (c.£6m) aimed at developing place based  Economy approach to creating new markets for innovations Boost physical activity The main responsibility for coordinating the system to achieve the deliverable is H&SCP and the GM Moving Page 56 Page programmes and social Exec Group, their activity will include: prescribing, including for  Ensure temporary and permanent changes to policy and practice in transport, urban and street design to  GM Moving Exec people with long term enable safe spaces for walking, cycling, plan and physical activity and to create the conditions for culture and & network conditions behaviour changes through activities programmes and investment  Ensure support to the physical activity and sport sector, voluntary and community sector and networks,  GM Moving Exec including Greater Manchester’s leisure trusts so that they can play their full part in maintaining and & network rebuilding active lives during lockdown release and beyond.  Deployment of GM wider social prescribing system - continue to develop social prescribing offer, working in  H&SCP / GM the support from PCNs and the VCSE Moving Exec  Continue to support redesign for active lives across the system; in health, education, transport, planning,  GM Moving Exec adult care, early years etc in the context of Covid-19 recovery and resilience & network And, wider system examples of the actions which will support its attainment are:  Deliver winter Ageing Well programme / campaign including risks for older people in winter  PSR  Social prescribing delivered through / interdependent on integrated neighbourhood model  PSR  CYP programme to deliver improved physical health, reduce obesity  CYP  Development of cycling & walking infrastructure across GM  TfGM  Supporting social prescribing via enhanced natural environment (subject to funding)  Environment  Explore opportunities to collaborate with Street Games to enhance community sport offer in communities  Police & Crime most affected by violent crime  Use of devolved Community Safety Partnership funding for youth outreach and engagement activity  Police & Crime

 Ensure clear, consistent public narrative and messaging across the system on how to stay active during each  GM Moving Exec phase of lockdown release with adherence to government guidelines. & network  Targeted work with priority places and demographic groups, most affected by Covid-19 and those most likely  GM Moving Exec to become inactive, in particular ensure transition from ‘pilots’ into embedded place based ways of working & network (eg local pilot and walking ambition) Sustain food availability The main responsibility for coordinating the system to achieve the deliverable is GMCA, their activity will networks include:  Improve the accessibility and sustainability of food provision models for everyone in GM, taking account of  PSR ethnically diverse communities requirements And, wider system examples of the actions which will support its attainment are:  Delivery of no child going hungry provision  CYP  Ensure surplus food goes to food banks/charities/communities and not into waste streams  Environment Complete ‘Everyone In’ and The main responsibility for coordinating the system to achieve the deliverable is Local Authorities supported deliver a transition by GMCA, their activity will include: programme and ongoing  Delivery of new phase of A Bed Every Night, delivered through / interdependent on neighbourhood model  PSR support for homeless people And, wider system examples of the actions which will support its attainment are: Page 57 Page  Support design & deployment of GM homelessness systems (GMThink)  Digital  Undertake vulnerability modelling for homeless people and people at risk of homelessness (MHCLG funded)  Digital  Support development of property investment solution as part of bid for the national Next Steps  Place Accommodation Programme  Support transport elements of homelessness programmes  TfGM  Develop Probation Dynamic Commissioning Framework  Police & Crime  Strengthen links established between Drug & Alcohol services and LA Homelessness leads, encouraging  Police & Crime treatment entry & retention and providing harm reduction support for ABEN properties  Continue work with Stop The Traffik, improving understanding of exploitation of homeless people and find  Police & Crime ways to improve their safety  Homeless healthcare development as part of ABEN 3  H&SCP Building on the Community The main responsibility for coordinating the system to achieve the deliverable is Local Authorities and GMCA, Hubs experience and closer their activity will include: working with schools,  To draw together and apply the learning from the crisis response alongside our existing Unified Public  PSR develop integrated Services ambition. This will include describing how all-age early help, Community Hubs and Health & Care neighbourhood services that teams come together to form an integrated neighbourhood model share people, information, And, wider system examples of the actions which will support its attainment are: money and stories  Deliver Community Hub Digital Solution in Bury & Rochdale  Digital  Deliver shared data & intelligence capabilities with a common understanding of social, economy and health  Digital vulnerability

 Deliver digital applications and data management that support these ambitions using the Digital Platform  Digital  Develop and implement a GM system approach to information sharing to deliver place-based working,  Information building on the Bury Engine Room Pilot Governance  Provide direct practical support to localities, GMP, GMFRS and VCSE organisation to implement integrated  PSR neighbourhood model  Promote the ‘team around the school’ model as a way of connecting schools into integrated neighbourhood  CYP model  Undertake work to improve alignment with labour market responses, providing support in place  Skills & Work  Provide Local Energy Advice Programmes and potentially ‘care & repair hubs’ via neighbourhood model  Environment  Deliver HMPPS Probation Programme: unified probation service  Police & Crime  Undertake GM review of offender management & co-location opportunities  Police & Crime  Continue Safer Streets investment facilitating collaboration in localities  Police & Crime  Development of neighbourhood policing offer, aligned to GM Model of Unified Public Services  Police & Crime  Pilot Violence Reduction Unit’s community-led programmed in six sites, giving residents more power in  Police & Crime decision making about solutions to violence in their community Page 58 Page  Continued development of the Locality Care/ Neighbourhood model, strengthening the focus on Integrated  H&SCP Neighbourhood working and how it links with Primary Care Networks in the Localities Launch a targeted plan to The main responsibility for coordinating the system to achieve the deliverable is GMCA, their activity will tackle digital exclusion include:  Development of a cross-cutting Digital Inclusion Strategy, working with Industry, Localities and VCSE sector  Digital / VCSE to implement best practice to reduce inequality of digital access and opportunity And, wider system examples of the actions which will support its attainment are:  Deliver research into the scale of digital exclusion and how it impacts GM communities  Digital  Provide grants to LA’s to support digital inclusion for residents  Skills & Work  Use Adult Education Budget funding to provide L2 digital skills over and above statutory entitlement  Skills & Work  Deliver GM Tech Fund Phase 2  Skills & Work  Ensure where possible, new energy installations are digitally enabled and begin to design a local energy  Environment market platform  Deliver Victim Service Review: Digital Discovery Phase & address feedback from C19 risk assessment  Police & Crime Ensure the provision of The main responsibility for coordinating the system to achieve the deliverable is H&SCP, their activity will comprehensive mental include: health and wellbeing  Work at pace to initiate programmes to support their comprehensive mental health and wellbeing support  H&SCP support accounting for for people in GM in light of the pandemic, recognising variation in approaches will be required for different growth in demand and cohorts and communities severity across all ages  Maximise benefits from deployment of mental health and wellbeing digital tools and apps  H&SCP / HInM

And, wider system examples of the actions which will support its attainment are:  Deliver online mental health guidance  Digital  Deliver transformational digital projects enabled by the GM Care Record and the GM Digital Platform for  Digital wider public services, enabling improved data flows across a range of settings  Provision of mental health & wellbeing support delivered through integrated neighbourhood model  PSR  Plan effective capacity for projected surge in demand for CYP mental health services inc coordinating  CYP capacity plans with CAMHS teams, and surge planning to coordinate community and paediatric capacity across GM  Deliver mental health support in four localities as part of national trailblazer, supporting young people with  CYP mild to moderate mental health issues  Extension of mental health practitioner support to an additional 10% of high risk schools & colleges  CYP  Work with health colleagues to ensure mental health sits as part of the Young Person Guarantee  Skills & Work  Increase specialised mental health support through Working Well programmes  Skills & Work  Work with schools & colleges to implement programmes around mentally healthy institutions  Skills & Work  Work with GMP mental health lead & partners to develop partnership arrangements in place as part of NHSE  Police & Crime Reconnect Prison Healthcare Pathway pilot Page 59 Page  Deliver mapping exercise to understand crossovers between homelessness, mental health and substance  Police & Crime misuse service provision, commissioning and funding streams  Continue to ensure Trusted Relationships psychotherapists are embedded in complex safeguarding teams  Police & Crime  The VCSE Mental Health Leadership group will continue to identify and support the existing inequalities  VCSE Leadership exacerbated by Covid 19 and support the anticipated surge in sub-threshold and complex presentations Group across the system  Breakthrough UK will lead and continue to provide the GM Text service beyond its current 6-month pilot (via  VCSE Leadership GM VCSE Leadership Group) Group  Breakthrough UK will lead on supporting the development of accessible comms and messaging during Covid  VCSE Leadership recovery (via GM VCSE Leadership Group) Group Restore proactive care and The main responsibility for coordinating the system to achieve the deliverable is H&SCP, their activity will support for both children include: and adults with long term  Step up routine care as we move through recovery phases  H&SCP health conditions and  Community Coordination Cell are continuing with a locality led assurance process that people recovering  H&SCP support those who are from Covid are being followed up appropriately recovering from Covid  Deliver digital activity to support people with long term conditions  H&SCP / HInM  Digitally reimaging urgent and emergency care pathways, including UEC by Appointment  H&SCP / HInM And, wider system examples of the actions which will support its attainment are:  Implement digital innovations to enhance clinical imaging capabilities across GM providers  H&SCP / HInM  H&SCP / HInM

 Maximise the benefits of digital primary care solutions to improve outcomes for patients and transform service models  PSR  Proactive care and support delivered through integrated neighbourhood model  Provision of support for children with long term conditions, by building specialist paediatric capacity within urgent and emergency care, and establish monitoring process for safety and wellbeing of CYP, with the  CYP inclusion of CYP safety siren and dashboard  Undertake review of CYP with SEND who do not return to education in autumn term, and consider what provision will be needed to meet needs links to opportunities for GM SEND joint commissioning plan  CYP  Work with TfGM to scope out GM wide joint commissioning of SEND transport  Support activity through flexed Working Well and Work & Health programmes  CYP  Create new c£13m GM Working Well ‘Lite’ programme to support additional 13,000 people  Skills & Work  Skills & Work Supporting successful return The main responsibility for coordinating the system to achieve the deliverable is Local Authorities and GMCA, to school and college for all their activity will include: learners, with inclusion of  Development of GM education recovery plan, focusing on medium to longer term strategies to bring about  CYP / Skills & Page 60 Page catch up and wellbeing successful educational change, improving presence, participation and progression of all CYP, paying Work support if needed particular attention to those vulnerable to underachievement, marginalisation and exclusion  Develop Young Person Guarantee  Skills & Work  Through the work of ESAP; support the work of the GM Colleges Group to ensure 16-18 and adults can  Skills & Work return safely

And, wider system examples of the actions which will support its attainment are:  Digital  Deployment with localities of Early Years digitisation across GM, using analytics to identify children with

greatest needs  Digital  Provision of IT equipment via Technology Fund  PSR  Wellbeing support delivered through integrated neighbourhood model  CYP  Deliver GM programme of research seminars (autumn term) supporting primary school leaders and teachers

to develop 1yr recovery curriculum  CYP  Development of early years specific resources in partnership with H&SCP to enable parents and settings to

ensure right social and emotional support are in place to support successful return  CYP  Deliver GM campaign to promote take up of 2 year old funding early education entitlement for children from

most deprived communities  CYP  Capture intelligence around wellbeing need of young people as part of Young Person Guarantee  Skills & Work  CSR submission on catch up provision for CYP  Skills & Work  Maintain prioritisation of Life Readiness agenda through Bridge GM / National Careers Strategy

Learning from each other on The main responsibility for coordinating the system to achieve the deliverable is Local Authorities and GMCA, how best to manage any their activity will include: increases in safeguarding for  Track levels of demand for children’s safeguarding services across GM using existing key groups to share  CYP children & young people and learning about how to tackle increases in volume and complexity vulnerable adults  Strengthen offer for looked after children as priority group through acceleration of plans for improving  CYP sufficiency of GM placements  Accelerate work to implement universal 4b assessment model for 18 month olds, across GM to support early  CYP intervention with families and to identify vulnerable children

And, wider system examples of the actions which will support its attainment are:  PSR  Early intervention and prevention of safeguarding issues for children and targeted support for adults at risk

delivered through all-age early help, interdependent on integrated neighbourhood model  Police & Crime  Continued delivery of GM Youth Justice Resettlement Consortium; Whole System Approach for Women;

Sexual Violence Harm Reduction Plan; GM Victim Services Review; Home Office Child Sexual Abuse Support

Services Transformation Fund seeks to promote best practice and improve support delivered to children who

experience sexual abuse  Police & Crime 

Page 61 Page Ensure Operation Encompass (notification to schools of children present at a domestic violence incident) is

operating strongly and consistently ready for Sep return to school and beyond  Police & Crime  Continue delivery of multiagency Complex Safeguarding programme Deliver GM employment and The main responsibility for coordinating the system to achieve the deliverable is GMCA, their activity will skills recovery plan with include: evidence based targeted  Deliver employment & skills recovery plan with targeted activity for, Young people; Apprentices; Furloughed;  Skills & Work programmes of support Reskilling/retraining; Newly unemployed; Longer term unemployed/inactive. Along with cross cutting activity looking at sectors and specific support required, including the potential impact on older workers And, wider system examples of the actions which will support its attainment are:  Deliver range of cross-cutting collaborative initiatives addressing skills gap and introducing GM citizens to  Digital education, learning and employment opportunities in the digital sector  Deliver a Smart GM Places discovery on ‘Bridge GM’ to explore how covid has impacted young people and  Digital their access to education, training and employment opportunities  Provision of travel support to employment & skills programmes  TfGM  Create opportunities for skills development in natural environment and building retrofit programmes  Environment  Deliver Probation Dynamic Commissioning Framework – ETE pathway  Police & Crime  The VCSE sector will provide Intermediate Labour Market opportunities to GM residents as part of local  VCSE employment initiatives (e.g. Kickstarter)

Immediate implementation The main responsibility for coordinating the system to achieve the deliverable is GMCA, their activity will of the GM Social Value include: Framework  Publish a refreshed Greater Manchester Social Value Framework and new social value policy for GMCA and  Strategy its partners operating at a GM footprint, including guidance for commissioning and procurement And, wider system examples of the actions which will support its attainment are:  Ensure embedded in all digital procurements  Digital  Leveraging social value commitment gained in Full Fibre procurement  Digital  Continue to deliver social value through employment & skills commissioned programmes and further  Skills & Work through labour market recovery support programmes  Continued support through transport activities / operations  TfGM  Undertake research to underpin Social Value goals with deeper sustainable public procurement policy  Environment including utilisation of local levers affecting behaviour changes towards sustainable business models and lifestyles  Continue work with Co-op to coordinate GM modern slavery business network to drive up recruitment  Police & Crime standards, purchasing and supply chains to combat modern slavery

Page 62 Page  Work with GMP to implement the framework in their procurement practices  Police & Crime Appropriately contracted The main responsibility for coordinating the system to achieve the deliverable is GMCA, their activity will provision from the VCSE include: sector as part of ongoing  Support a review of commissioning and investment in the VCSE sector, including the grant funding which  Strategy networked support goes into VCSE leadership and infrastructure organisation at a GM level infrastructure And, wider system examples of the actions which will support its attainment are:  VCSE sector provision central to integrated neighbourhood model  PSR  Continued commissioning of VCSE organisations for delivery of employment & skills programmes  Skills & Work  Deliver Probation Dynamic Commissioning Framework from June 2021 - All Pathways - VCSE Engagement  Police & Crime Plan; GM Victim Services Review and Contracts/Grants; MoJ Extraordinary Covid-19 funding for domestic abuse / sexual violence services seeks to support VCSE providers of such services through the initial Covid-19 recovery phase  The GM Leadership Group Commissioning Group will work with commissioning and procurement leads to  VCSE Leadership implement the GM VCSE Commissioning Framework and delivery plan Group  Further work to be undertaken with the sector to embed VCSE organisations into locality working - ensuring  H&SCP commissioning of VCSE provides the capacity required for new models of community based care. Develop a database to track VCSE support and capacity in relation to the HSC system, and strengthening commissioning arrangements between HSC and VCSE, in particular the connections between Primary Care and Voluntary services as recovery proceeds. Develop system wide The main responsibility for coordinating the system to achieve the deliverable is GMCA with Local Authorities , responses to maintain and their activity will include:

develop social infrastructure  Develop sustainable and progressive social infrastructure proposals as part of integrated neighbourhood  PSR as part of driving more model and wider provision inclusive economic growth in And, wider system examples of the actions which will support its attainment are: the future, including system  Obtain necessary approvals to enter Tripartite Agreement between GMCA, GMHP and H&SCP and develop  Place changes, investment and appropriate implementation plan and complete associated actions formal collaboration with  Deliver Probation Dynamic Commissioning Framework from June 2021 - All Pathways: ETE/Finance, Benefits  Police & Crime new infrastructure & Debts; Accommodation; Recovery & Dependency; Wellbeing, Inclusion, Family, BAME; Women. Deliver housing and public The main responsibility for coordinating the system to achieve the deliverable is GMCA working with Local building retrofit programme Authorities, their activity will include: as part of greener economic  Work with Registered Providers to develop and implement a Social Housing Retrofit programme  Place recovery And, wider system examples of the actions which will support its attainment are:  Explore potential to exploit Full Fibre deployment and One Network  Digital  Deliver construction talent retention scheme to support the redeployment of workers at risk of redundancy,  Skills & Work kick start to target sectors  Design and deliver a programme of social housing retrofit with Districts and RSLs (subject to bid)  Environment Provide support to enable The main responsibility for coordinating the system to achieve the deliverable is GMCA and LEP via the Growth Page 63 Page businesses including social Hub and other partners including our Universities, their activity will include: enterprises to innovate and  Delivery of the Business, Productivity and Inclusive Growth programme to sustain businesses and support  Economy adapt those with growth aspirations in key sectors, inclusion social enterprises  Deliver support to those who have recently become unemployed, to start their own business, with a focus on  Economy BAME communities and older workers  Deliver workforce development and Leadership & Management programmes to support business leaders to  Economy survive Covid impact  Deliver a range of digital innovation support programmes to further optimise opportunities to improve  Economy productivity that have been identified as a result of the pandemic  Provide access to finance for businesses to support recovery and growth through Business Growth Hub and  Economy GC Business Finance CBILS/BBLS funding and the Co Angel investment service And, wider system examples of the actions which will support its attainment are:  Delivery of a number of investments in the digital sector to support the creation and scaling of SMEs and to  Digital attract investment in Greater Manchester. Showcasing GM Digital successes on a global platform to establish its position as global digital influence  As Gov guidance continues to emerge, identify and support delivery of GM activity that support high quality  CYP early education and childcare provision during recovery and ensure sufficiency of provision  Development of GM pulse surveys to gather intelligence on local early education and childcare market  CYP challenges during next 12 months. Data used to inform future GM market shaping activity to maximise opportunities to strengthen provider market and workforce

 ESF funded support for SME’s focusing on leadership and management and also adapting business models  Skills & Work  Support innovation through promotion/utilisation of Circular Economy practices/waste hierarchy principles  Environment to stimulate clean growth and resilience to supply chains. Continue to deliver Green Growth business support programme (Growth Co) and expand scale and scope (subject to bid)  Use Innovation Partnership on Healthy Ageing to create new products and services in GM that can be  Economy adopted across the UK and exported. Pipeline to be live and engaging circa 25 SMEs by Mar 2021, with roadmap to engaging further 75 SMEs by March 2022  Use Greater Manchester Advanced Materials and Manufacturing Alliance (GAMMA) to drive investment into  Economy GM's manufacturing sectors and link them with the advanced materials and manufacturing science in GM's universities and other national centres. This includes support for the Northern Gateway development in Rochdale, Bury and Oldham  Support GM businesses to thrive in the new international setting being created by covid 19 and Brexit.  Economy Refreshed International Strategy for: Opening-up new markets and develop new relationships; Leading internationalisation digitally (e.g. virtual trade missions); Maintaining or rebuilding business confidence, the visitor economy and inward investment pipelines and embedding business champions in delivery. There will

Page 64 Page also be a renewed focus on GM's international connectivity and city-region diplomacy Targeted support to sectors The main responsibility for coordinating the system to achieve the deliverable is GMCA and LEP with Local facing lasting impacts from Authorities, their activity will include: Covid, and growing sectors  Use GM’s policy, convening role and resources to drive faster improvements to jobs and productivity in  Economy with investment where they the Foundational Economy including hospitality and retail, in line with the Local Industrial Strategy can exploit new And, wider system examples of the actions which will support its attainment are: opportunities  Deliver programmes under labour market recovery plan, including; Stimulating demand for Apprenticeships;  Skills & Work Increase in funding to support 19+ on sector specific qualifications to support them into work, Focus on retraining and reskilling; supporting those being redeployed/redundant through furlough; Fast Track 3; Sector based work academies working with JCP  Develop enabling mechanisms to support growth in GM’s Environmental Technologies sector including an  Environment / Energy Innovation Agency and Retrofit Accelerator Economy  Deliver collaborative work across digital sector on range of digital activities aimed at supporting digital  Digital businesses, and the wider economy, including retraining programmes for unemployed due to Covid  Publish Greater Manchester Spatial Framework, setting the spatial planning framework in which  Place development can be brought forward within GM  Provision of kick start to target sectors; retraining/reskilling programmes; stimulating demand for  Skills & Work apprenticeships, working well to target where employers can support those furthest away from the labour market  Support existing business support programmes for eco-innovation and resource efficiency across all sectors  Environment and expand where feasible (subject to funding). Encourage carbon-intensive sectors (e.g. construction) to

use carbon-reduction as a tool to improve productivity, quality and reduce waste by requiring reporting of all material and operational carbon costs. Look to promote PAS2080 carbon management philosophy of involving the Value Chain in reducing carbon emissions  Assess the impact of covid 19 response and recovery activity on GM LIS Implementation Plan and strategic  Economy priorities, and in line with new vision for GM’s economy, being developed with the GM LEP in the first instance  Build on our strengths in health innovation to cultivate a rich pipeline of industry-led innovations that  H&SCP / HInM / address health inequalities and stimulates economic growth Economy Significantly expand the GM The main responsibility for coordinating the system to achieve the deliverable is GMCA and LEP via the Growth Good Employment Charter Hub, their activity will include: to drive more secure work,  Working with the LEP and Growth Company to update the GM Good Employment Charter to account for  Economy higher pay and better covid 19 impacts and to significantly expand the Charter's membership and supporters, to drive more secure employment standards work, higher pay and better employment standards And, wider system examples of the actions which will support its attainment are:  Clear link with jobs and how GM ensures it can use the Employment Charter to create 'good jobs' particularly  Skills & Work through Kick Start Page 65 Page  Connect the expansion of Good Employment Charter to include Young Person Guarantee  Skills & Work  Undertake work to understand the impacts of covid 19 for GM’s drivers of growth including GM’s anchor  Economy / Place institutions, major employment sites and across different types of ‘place’ Develop and deliver a The main responsibility for coordinating the system to achieve the deliverable is GMCA working with Local Cultural Recovery Plan, Authorities, their activity will include: recognising the role of a  Lead development of Culture Recovery Plan, and associated actions and obtain necessary approvals to  Place sustainable cultural sector as implement a key driver of wellbeing and And, wider system examples of the actions which will support its attainment are: a vibrant GM  Explore the potential for significant cultural / music element within Digital City Festival 2021  Digital  Delivery of programmes under the labour market plan that support this work: Stimulating demand for  Skills & Work Apprenticeship; Increase in funding to support 19+ on sector specific qualifications to support them into work, Focus on retraining and reskilling; supporting those being redeployed/redundant through furlough; Fast Track 3; Sector based work academies working with JCP  Transport actions to support successful implementation of Cultural Recovery Plan  TfGM Continue the SafeGM The main responsibility for coordinating the system to achieve the deliverable is GMCA, their activity will campaign to provide include: reassurance about getting  Continue to develop, deliver and promote the Safe GM campaign in partnership with Growth Co, TfGM and  Comms back to work others inc Business Organisations And, wider system examples of the actions which will support its attainment are:  AEB funded activity to focus on training for business and employees to safely return to work  Skills & Work

 Transport activity to support safe reopening  TfGM  GM HSC Comms team continued roll out the 'NHS Open for Business' strategy to encourage people to  H&SCP interact with routine health services.  GM Testing intelligence work aimed to ensure that testing results are able to flow directly to people's  H&SCP employers in order to advise workforce planning re: those isolating etc. Secure infrastructure The main responsibility for coordinating the system to achieve the deliverable is GMCA and Local Authorities, investment needed to kick their activity will include: start the economy  GMCA lead on discussions with Government about the GM Infrastructure Programme  Place And, wider system examples of the actions which will support its attainment are:  Deliver transformation digital project enabled by the GM Care Record (for health & care) and the GM Digital Platform (wider public services), enabling improved data flows across a range of settings  Enable pan-GM data sharing by ensuring robust information governance practices are in place, while building  Digital / H&SCP trust amongst the public and professionals  Work with telecoms organisations to increase pace and breadth of fixed and wireless gigabit connectivity  Digital / H&SCP across GM Page 66 Page  Skills capital requirements to support learning  Digital  Transport infrastructure delivery and support of wider infrastructure programmes  Establish a range of grant and loan offers to facilitate and incentivise the uptake of low carbon measures (the  Skills & Work difference between business as usual and low carbon transition)  TfGM  Environment Swiftly progress investment The main responsibility for coordinating the system to achieve the deliverable is GMCA and Local Authorities, opportunities as part of their activity will include: economic stimulus and push  Submission to Gov on LA funding, overall CSR submission and funding flexibilities  Strategy for wider government And, wider system examples of the actions which will support its attainment are: funding for councils and  Manage recently announced funding - Getting Building Fund and Brownfield Land Fund  Place locally controlled devolved  Invest in public building retrofit and local energy generation  Environment resources  Transport delivery and support of wider economic growth strategies  TfGM  Working with GM's universities to develop new translational R&D facilities to drive new jobs and the creation  Economy of new businesses as well as adoption of innovation by existing GM businesses  The GM VCSE Leadership Group will work with public and private sector partners to try and secure capital  VCSE investments for the VCSE sector, including digital / tech, alongside identifying shared use of vacant premises to support social action  Review and consideration of the Devolution White Paper and Spending Review representation to Gov by the  Digital GM Digital Portfolio Executive and Steering Group, LEP and advisory groups  Integrated neighbourhood services/model is part of GM’s USP for securing better outcomes, addressing  PSR inequalities and making the best of Gov funding (linking to Reform Investment Fund)

 Delivering the Made Smarter North West Pilot, which is supporting manufacturing companies across the  Economy North West region to be Industry 4.0 ready  Continued and further ask of Gov for long term funding strategy for Social Care. Separate guidelines for  H&SCP Phase 3 recovery for Adult Social Care to be published by DHSC in near future  Maximise GM’s position as a leading life sciences cluster to form industry partnerships, building on the  H&SCP / HInM existing MoU with the pharma and medtech industries  Deliver a place-based approach to transforming communities and addressing health inequalities, powered by  H&SCP / HInM digital, data and technology  Support a national review of destination management organisations, to create a portfolio DMOs that will  Economy provide the local framework, capacity and resource to support recovery of the GM and UK visitor economy Develop sustainable mutual The main responsibility for coordinating the system to achieve the deliverable is GMCA , their activity will aid and support networks include: that add value locally and  Support the development of favourable conditions at locality and neighbourhood level so that mutual aid  Strategy / PSR provide a better way of and other similar types of local support can grow and be sustained working And, wider system examples of the actions which will support its attainment are:  Deliver support for Community Hub system adoption; Trace + Track case management; Victim’s Services  Digital

Page 67 Page discovery project  Mutual aid groups and local volunteer networks key to future integrated neighbourhood model  PSR  Use GM’s policy, convening role and resources to drive faster improvements to jobs and productivity in  Economy the Foundational Economy  Continued development of the SitReps for each Sector, which can be used to escalate and prompt mutual aid  H&SCP when required  Rollout of best practice guides from the assurance processes performed during covid  H&SCP Deliver the Cycling and The main responsibility for coordinating the system to achieve the deliverable is Local Authorities with TfGM, Walking Plan, and build on their activity will include: positive shift in travel  Districts / TfGM working closely to best utilise available funding to enhance physical infrastructure for cycling  Local Authorities behaviour and walking, and more broadly encourage more sustainable travel patterns through Travel Demand / TfGM Management And, wider system examples of the actions which will support its attainment are:  Continue to support via the MappingGM capability  Digital Progress more integrated The main responsibility for coordinating the system to achieve the deliverable is TfGM, their activity will public transport system with include: support from DfT  Close co-ordination of public transport system, continued close working with operators and with support  TfGM from DfT And, wider system examples of the actions which will support its attainment are:

 Deliver Smart Ticketing solutions and Mobility As A Service initiatives  Digital  Driving close working with businesses – building our networks and leading the recovery conversation  Economy Progress GM Clean Air Plan The main responsibility for coordinating the system to achieve the deliverable is Local Authorities with TfGM, their activity will include:  Consult on Clean Air Plan and subject to outcomes and funding introduce appropriate measures and funding  Local Authorities And, wider system examples of the actions which will support its attainment are: / TfGM  Smart GM Places Discovery with Connected City Alliance: exploring the challenges in shifting culture and  Digital behaviour change for an environmentally sustainable future Progress Environment Plan The main responsibility for coordinating the system to achieve the deliverable is GMCA, their activity will to continue to reduce carbon include: emissions and create an  Develop a pipeline of Natural Environment projects to deliver nature based solutions for investment and a  Environment improved, more resilient wider framework for natural environment funding through the development of a GM Environment Fund natural environment for And, wider system examples of the actions which will support its attainment are: socially distanced recreation  Assess the potential for the creation of new open spaces to support social distancing in deprived areas and  Environment implement subject to funding Page 68 Page  Undertake research to assess the potential for carbon reduction in new build and existing domestic  Place properties  Develop local area energy plans to increase energy resilience. Finalise and commence delivery of pipeline of  Environment identified energy generation, heating and retrofit projects, across public, domestic, commercial and industrial estates to increase energy resilience. Incentivise investment across the private domestic `able to pay' and commercial sectors.  Develop key messages to create wider awareness of environment, health and wellbeing impacts of Covid  Environment (increase confidence in the use of public transport, use of green space, safe homeworking and better waste and water management) to support 'build back better'  Developing and realising a GM Clean Energy Innovation Agency to aggregate demand for innovations and  Economy create a new market for energy innovation in GM, creating new businesses and jobs as well as supporting the 2038 carbon neutral target

Abbreviations and acronyms

ABEN A Bed Every Night HSC Health and social care AEB Adult education budget IT Information technology BAME Black, Asian and Minority Ethnic JCP Job Centre Plus BBLS Bounce Back Loans Scheme L2 Level 2 C19 Covid-19 LA Local Authority CAMHS Children and Adolescent Mental Health Service LEP Local Enterprise Partnership CBILS Coronavirus Business Interruption Loans Scheme LIS Local Industrial Strategy Comms Communications MHCLG Ministry of Housing, Communities & Local Government CSR Comprehensive spending review MoJ Ministry of Justice CYP Children and young people MoU Memorandum of understanding DMO Destination Management Organisation NHS National Health Service DfT Department for Transport NHSE National Health Service England DHSC Department of Health and Social Care PCN Primary care network EIA Equalities impact assessment PHE Public Health England

Page 69 Page ESAP Employment and Skills Advisory Panel PPE Personal protective equipment ESF European Social Fund PSR Public service reform ETE Education, training and employment R&D Research and development GM Greater Manchester RSL Registered social landlords GMCA Greater Manchester Combined Authority SEND Special educational needs and disability GMFRS Greater Manchester Fire and Rescue Service SitRep Situation report GMHP Greater Manchester housing providers SMEs Small and medium-sized enterprises GMP Greater Manchester Police TfGM Transport for Greater Manchester Gov Government UEC Urgent and emergency care H&SCP Health and Social Care Partnership UK United Kingdom HInM Health Innovation Manchester USP Unique selling point HMPPS Her Majesty’s Prison and Probation Service VCSE Voluntary, Community and Social Enterprise

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Agenda Item 8

Date: 2 September 2020

Subject: Young Person’s Guarantee

Report Of: Councillor Sean Fielding: Skills, Work, And Apprenticeships & Digital and Councillor Eamonn O’Brien: Children & Young People

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PURPOSE OF REPORT

The decision to close schools and colleges as part of the national response to the Coronavirus (Covid-19) pandemic has already had a significant impact on the lives of thousands of young people across Greater Manchester, and with uncertainty continuing to remain around the conditions and timescales for re-opening education settings at both a local and national level, the consequences on young people’s cognitive development, attainment and wellbeing could be severe.

Also in the last recession, young people saw their unemployment rate grow three times faster than their older counterparts, and whilst participation rates in further and higher education are expected to remain relatively stable, there is strong evidence to suggest that the impact of this crisis is going to be even greater for young people seeking work, or trying to remain in employment, due to the “perfect storm” of weak economic demand and the high competition for available jobs, particularly in sectors that have been most effected by the lockdown.

The aim of the report is to set out initial ideas around a Young Person’s Guarantee for those aged 11-30 in Greater Manchester during and following the pandemic; this supports the Life Ready agenda by bringing together coherent commitments from education, business and health, setting out the opportunities and messages that are there for young people and young adults to continue to prosper (see Annex 1). This work does not look to add more complication into the agenda; it is the result of ongoing work to deliver on the commitments and recovery plans for the GM Children & Young People’s Plan, under the direction of the GM Children’s Board and the work of the Employment & Skills Advisory Panel.

To add value to this collaboration, a Youth Task Force for GM is also being developed to help us drive forward the Young Person’s Guarantee in respect of its design, development and delivery. The Task Force will be chaired by Diane Modahl and will have multi-agency representation, working closely with the Youth Combined Authority (YCA) and wider youth groups to better understand the views and concerns of young people from across Greater Manchester. This will strengthen the scope of Guarantee, ensuring its offer and entitlements reflect what young people have told us. It will also provide us with an overarching framework

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for the delivery of opportunities for young people, bringing together key initiatives such as ‘Our Pass’ and our expanding mental health support.

RECOMMENDATIONS

The GMCA is requested to:

1. Agree the approach to the emerging Guarantee and comment on the scope. 2. Agree the implementation of a ‘youth task force’.

CONTACT OFFICERS

[email protected];

[email protected]

[email protected]

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1. Introduction

1.1. The Coronavirus pandemic has had an unprecedented impact on the lives of our young people in Greater Manchester and will continue to shape and influence the way they live, learn and work for many years to come. We know young people are one of the groups most heavily impacted by periods of recession and economic downturn, and when juxtaposed with the societal changes and disruptions to learning caused by the pandemic, there is a real risk of this generation losing hope for their future.

1.2. As the city-region begins to emerge from the crisis, our recovery plans and strategies need to be joined up, utilising the combined strengths of our communities, schools, colleges, local authorities, delivery partners and central government to build back better for all of our young people. Collectively, we want to ensure they are able to prosper from this experience, both in terms of their personal capacity and resilience, and by the measure of how opportunities and pathways are offered to them by our partners, providers and businesses, both now and in the future.

1.3. To support this work, we are proposing to introduce a new guarantee for our young people that will aim to safeguard their future by delivering a range of consistent, tangible benefits to support their future learning, wellbeing and economic prosperity. In this paper, we outline the key components that will support this new GM Young Person Guarantee, including:

 The impact of the Coronavirus and how it is shaping our recovery plan;  What our young people are telling us is needed;  The introduction of a Youth Task Force and Youth Advisory Group  The resources that have already been supporting the pandemic response and how we intend to develop, repurpose and enhance these to support the Guarantee; and  What additional support may be needed to shape and mobilise further action and activity.

2. The impact of the Coronavirus pandemic on young people 11-30 year olds

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2.1. In the last recession, young people saw their unemployment rate grow three times faster than their older counterparts, and whilst participation rates in education are expected to remain relatively stable, there is strong evidence to suggest that the impact of this crisis will be even greater for young people seeking work, due to the “perfect storm” of weak economic demand and high competition for available jobs, particularly in sectors that have been most effected by the lockdown.

2.2. Employment data released by HMRC this month showed that half of all teenagers who were in employment during the pandemic had been placed on furlough. Of these, seventeen-year-old women were the most impacted upon, with 61% of them having wages paid by the state. Young people aged 20-29 also make up nearly a third of all Universal Credit claimants in GM:

3. Designing and delivering a Youth Guarantee for GM

3.1. For the purpose of this offer, the term ‘young person’ does not solely refer to those at or around the school leaving age, but encompasses everyone from ages 11 to 30, meaning the challenges, experiences and responses required to support the pandemic recovery need to be flexible and varied.

3.2. We know the development of a holistic and dynamic Guarantee is needed for our young people, covering improved access, inclusion, health, learning and employment. To support and strengthen this approach, we have structured our work into four thematic areas:

1. Keeping Connected – securing better access and inclusion for all of our young people

2. Staying Well – improving our young people's wellbeing, resilience, hope and optimism

3. Preparing for Successful Transitions – supporting our young people to be ready for life, further learning and work Page 74

4. Removing Economic Inequalities – reducing labour market barriers and challenges to safeguard our future workforce

3.3. As we take these collective steps to avoid a 'pandemic generation', we must also recognise that bringing together the full range of services that already support young people in the city-region – from key organisations in mental health, safeguarding, crime, transport, culture, employment, education and training, as well as those critical services offered at a locality level by Local Authorities and the voluntary, community and social enterprise (VCSE) sector – strengthens our asset base and increases our capacity to build and deliver an effective recovery.

3.4. To add value to this collaboration, a Youth Task Force has been proposed for GM, which will help us to drive forward the Young Person Guarantee in respect of its design, development and delivery. The Task Force will have multi-agency representation and will work closely with the Youth Combined Authority (YCA) to:

 Engage young people and organisations to find out what they want from the Guarantee;

 Explore the different elements that could constitute the Guarantee (e.g. expanded provision via Our Pass, apprenticeships, training/re-training courses, digital bundles, free workspace for entrepreneurs and those wanting to start their own business etc.);

 Build contacts with businesses to see what they can provide and deliver, in respect of support for job seekers and for those seeking experiences and encounters with the workplace;

 Build contacts with young people’s groups and organisations to actively test out new ideas and proposals, including hooks to increase young people’s engagement and personal and professional development, such as the critical mass of live opportunities, peer to peer content, music, sport, arts, competitions, recognition, financial incentives and personalised employment support.

3.5. The Task Force will be chaired by former Olympian and Commonwealth Gold Medal Winner, Diane Modahl, whose foundation has been supporting disadvantaged young people through sport and positive engagement activities since 2002.

4. Young Person Voice

4.1. Young people will be critical in the design and development of an effective and meaningful Guarantee. Their views need to inform the offer and their voices must support the messaging that Greater Manchester continues to be a positive and progressive place to live, learn and work.

4.2. A series of consultation and engagement sessions have started to take place to capture the views and concerns of young people, whilst a Youth Advisory Group is also being established to work alongside the Task Force, helping to guide and sense- check its ambitions and delivery. Recruitment to the Advisory Group is underway, with its first meeting scheduled for the 7th August. Page 75

5. Emerging ambitions around a ‘Young Person’s Guarantee’

5.1. Our ambition is for the Guarantee to protect, promote and progress the opportunities needed to help secure young people’s future prosperity in Greater Manchester. Our consultative work with young people, and our partners and stakeholders, is already starting to shape and influence the content of the Guarantee; the Task Force, in partnership with the Youth Advisory Group will then be responsible for co-designing a programme of opportunities and commitments that lead to meaningful outcomes for young people in education, employment, health and society.

5.2. We know that a significant part of the offer will come from our existing assets and resources. This includes an expansion to our most impactful programmes, alongside a re-purposed offer with additional investment where needed.

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6. Driving the demand side: A strong business position driven by the LEP.

6.1. In order for the Guarantee to work business must help to drive the demand side and be a serious part of the solution, mitigating against economic disadvantage where possible. The LEP has been asked to take a very specific role in mitigating the impact of Covid-19 on the residents of GM. In the first instance we would ask the LEP to support the work outlined for young people and the Mayor’s youth commitment that sends a positive message for young people, for parents/carers, and for organisations, agencies and businesses, that there will be a positive future and Greater Manchester will Build Back Better for young people. The LEP, along with other strong business organisations, will help design an approach to businesses of all kinds working with Diane Modahl to seek out the necessary levers and incentives that will drive businesses to action in these difficult times.The LEP have committed to the following:

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7. What else do we need to consider for the Young Person’s Guarantee?

7.1. The long-term implications for how education and training is delivered in the future will be an important contextual factor when considering the design and development of our offer to young people. The closure of education settings, albeit temporary, may still result in long-lasting changes to the way learners access education, with a shift to online and remote delivery rapidly increasing across all levels of education, as a mechanism to both safeguard the health and wellbeing of students and staff, and to secure the financial health of the delivery organisations. As an example, the University of Manchester has already taken the decision to deliver all of its teaching online in the first term of the next academic year amidst concerns that it could lose 15-25% of its annual budget, largely from a reduction in overseas fee income. If these sorts of changes begin to characterise the future of learning, then our infrastructure and support (e.g. transport, digital connectivity, careers guidance) will need to be adapted and re-purposed to align with these new conditions, both in the short and longer term.

7.2. Over the medium term, the ability of sectors to ‘build back’ will be dependent on their adaptability to new ways of working, as well as the detail of the government’s lockdown exit strategy. It should also be noted that there are opportunities for certain sectors to thrive (e.g. Digital, health and social care), so we must ensure our recovery work focuses on the opportunity to expand and create thematic employability programmes that support young people into the jobs of the future.

7.3. In relation to this, our work to develop effective employment models must consider the scale and impact of national labour market interventions schemes (e.g. Kickstart) and how the cohort(s) most in need of support - alongside the areas/sectors of the labour market that are best placed to facilitate the demand – are positioned and supported. As part of this development, it will be important to consider what role new and existing apprenticeships can play, and how these opportunities can be suitably safeguarded and secured in a competitivePage 78 and volatile labour market.

7.4. The demographical diversity of the young people we expect to support through the Young Person’s Guarantee will also require us to improve our understanding of, and connectivity to, cohorts that may not have typically been supported by the services and youth support programmes we have typically offered. Work is already being carried with Local Authorities, Colleges and the VCSE sector to improve the arrangements for tracking and supporting young people beyond the end of the academic year in which they turn 18, but we will need to explore more robust mechanisms for engaging with young adults up to the age of 30 who may be seeking support from services for the first time.

7.5. As part of this offer, we will also need to consider the role and function of the Adult Education Budget and our existing employment provision for adults, including In Work GM (Work & Health Programme) and Enterprising You (Self-employment pilot) as we begin to deconstruct the offer to try to remove arbitrary age ranges and access points to support.

8. Working locally with partners

8.1. A Guarantee of this scale and ambition cannot be done by a single organisation. Throughout July and August a series of engagement sessions and roundtables are being planned to capture as many views as possible. On 16th July Diane Modhal hosted a roundtable with over 80 people from the education and training sector. It was a successful event showing great appetite from our partners to get behind this as well as offering us a blueprint to do more both virtually and in some cases face to face. Health & Inclusion and Business roundtables are planned on 4th August with smaller more in-depth engagement sessions happening with a wide range of individuals and groups.

9. Working with Government

9.1. The structural interventions and new announcements made in the Chancellor’s statement are welcomed, as Government has a critical role in supporting and underpinning the approach we choose take in Greater Manchester. To be truly effective, we will need to work with Government – through the LEP, the ESAP and the new Youth Task Force – to develop measures and interventions that add value to the national offer, and ensure our young people and young adults have access to the education, skills, careers guidance and wrap-around support needed to progress and achieve in learning and work.

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Annex 1

Key messages:

 The decisions that we make now have the potential to be life-changing for our young people, for better or for worse. None of us think that those decisions will easy or that support for one cohort comes without cost to another. But we have a strong economic imperative, as well as a moral one, to invest now in our young people in order to make sure that no-one is held back and no-one is left behind.

 Our young people and young adults – the generation upon whose shoulders our future economy and society rest – must have the support that they need in the coming months to ensure that they can look ahead with confidence and hope, and so that Greater Manchester, and the UK as a whole, can build back better.

 Whilst we are cautiously optimistic that parts of the UK are now starting to pass the peak of the crisis, we can be in no doubt that there is a long road ahead for all parts of our society and our economy as the focus begins to shift from response to recovery. We need to support all of our residents on that journey but will be working particularly hard to support those who will fare worst.

 Sadly, in times of economic downturn, young people tend to be amongst the hardest hit – from those who are due to leave education this summer all the way up to young adults throughout their 20s who are trying to establish careers and pathways for the future – and it is crucial that, with government, we take steps to avoid a ‘pandemic generation’ of young people and young adults whose prospects and hopes for the future suffer long-term damage as a result of the pandemic.

 Our message to young people is this: we will be working for you and with you to make sure that there is a fulfilling future ahead of you, a future in which you can still make informed choices, progress in learning and work, and not be held back where it is within our power to make a difference for you

 We need to turn to our young people and show them we care, show them that they are not forgotten and that their future matters as much as anybody else's. There are opportunities waiting for them and we want all our young people to have the hope and optimism that they had before we faced this crisis. We also need them to help us create our ‘new normal’ and our new world - young people are as much a part of the solution to our recovery as any other member of society and we must protect them, nurture them and demonstrate that Greater Manchester’s future belongs to them.

 To make a commitment to our young people that they have a place for their onward life ready journey, our Youth Guarantee will send a positive message to them, their parents/carers, and to the organisations, agencies and businesses that are able to contribute to the recovery, that there will be a positive future and that GM will Build Back Better for its young people.

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Annex 2

How are we already supporting our young people in GM?

Keeping Connected:

 We have recently launched a GM Technology Fund, in partnership with public and private sector supporters, to tackle digital exclusion and to ensure young people’s access to digital equipment and connectivity is not a barrier to learning during lockdown. So far, more than 1,700 pieces of equipment have been distributed to schools and colleges in GM, with the second phase of the scheme due for rollout later this month.

 In addition to this, the Prince’s Trust have introduced a technology offer for 16- 25 year olds who are NEET in GM, to ensure they have access to digital equipment and technology to help them re-engage in education and training during this period. Approximately 25 pieces of kit are being made available each month.

 The Our Pass scheme continues to operate for 16-18 year olds in Greater Manchester, improving their access to learning and work through free bus travel. Membership also opens up a world of experiences to young people, connecting them to sport, retail and cultural opportunities they might not have otherwise discovered. Although patronage on GM buses is down by more than 80% based on pre-COVID-19 levels, the lifting of travel restrictions, and the opening up shops and services, is expected to increase usage and engagement amongst young people. The scheme will open to new applicants towards the end of June.

 Care Leavers are also able to access free bus travel via a transport and support offer provided by the Prince’s Trust. This provision has continued to be offered throughout the lockdown period, to ensure these young people are not isolated from vital services and support networks.

 The Apprentice Bike Offer for GM Apprentices has been fast-tracked for those operating in Key Worker roles. As part of the #SafeStreetsSaveLives campaign, Local Authorities from across GM are also putting in place a number of temporary measures to give pedestrians and cyclists more space to travel safely.

Staying Well:

 The GMCA has been working with a range of cultural, voluntary and health partners to develop two Creative Care Packs for young people aged 13-20, who may be experiencing digital exclusion during the lockdown. The first pack was distributed in early June, and is made up of creative activities and resources that support and encourage increased resilience, well-being and self-care. A second pack is scheduled for release in mid-July and will help young people to reflect on the changes that have taken place, and to think about the future they want to see and make happen.

 The Combined Authority is also working with Health partners and the Teaching School Alliance to build an integrated package of resources for schools and colleges, which will progress the delivery of quality PSHE from the start of new academic year. This work is also being supported by the Prince’s Trust and Hopscoth, who will work with the partnership to design and implement new digital resources for schools and colleges to deliver as part of a rebranded Curriculum for Life.

 A range of new and additional digital mental health services and online packages of support for young people have been rolled out by the GM Health and Social Care Partnership, with the aim of minimisingPage 81 the need for individuals to attend GP surgeries or hospital. The services can be accessed by young people and adults

who are already experiencing issues with their mental health, or by people who may be struggling with issues caused by lockdown restriction and/or social isolation. These services include:

o Shout – a confidential 24/7 text service for people aged 16+ that is operated by trained crisis volunteers who will chat using text responses. Advice is available for anyone struggling with issues relating to anxiety, depression, suicide, abuse or assault, self-harm, bullying or relationship issues. The service is designed to help individuals to think more clearly and to take their next steps to feeling better.

o Chat Health – a secure and confidential text messaging service for children and young people which allows patients to easily and anonymously get in touch with a healthcare professional for advice and support.

o Kooth – an online counselling and emotional wellbeing platform for children and young people across GM. A variety of resources are on offer, including a live chat function that allows young people to contact a qualified counsellor, chat forums with other young people, crisis information and self- help resources.

o Blue Ice – an evidence-based app to help young people manage their emotions and reduce urges to self-harm. It includes a mood diary, toolbox of evidence based techniques to reduce distress and automatic routing to emergency numbers if urges to harm continue. An evidence-based app to help young people manage their emotions and reduce urges to self-harm. It includes a mood diary, toolbox of evidence based techniques to reduce distress and automatic routing to emergency numbers if urges to harm continue. The app is available via CAMHS clinicians.

o Silver Cloud – an online therapy programme for people aged 16+ proven to help with stress, anxiety, low-mood and depression. SilverCloud is only available via an NHS referral, or some non-NHS organisations, such as universities.

 There are also plans to introduce additional and/or expanded mental health services for young people who are care experienced or who have a special educational needs – these discussions are being supported by Health Innovation Manchester, the Prince's Trust and 42nd Street.

Preparing for Successful Transitions:

 Bridge GM is continuing to ensure that all young people in the city-region's schools and colleges benefit from a robust, universal careers provision that includes personal guidance to open up and expands horizons to business opportunities. Bridge GM is also working to ensure schools and colleges continue to have access to the support and careers resources needed to inform and guide young people during these uncertain times, with a particular focus on supporting those learners at key transition phases.

 Through the Combined Authority’s investment in the Future Workforce Fund, the Prince’s Trust has begun work on the development of a virtual transition programme for Year 11s who are at risk of becoming NEET in September and may have limited or no access to personal guidance over the summer. The programme will be piloted this month and will work closely with FE Colleges to ensure progression opportunities can be secured and sustained.

 Greater Manchester’s FE Colleges have also committed to offering every 16-18 year old in GM a guaranteedPage place 82 at College from September, as well as offering students the opportunity to sit cancelled examinations and receive

extended learning hours to help them catch up on education missed following the closure of schools and colleges in March

 GMCA was one of the first CA’s to commit to continuing to pay our Colleges & providers of AEB to ensure sustainability in the system; this has also supported them to moving their learning online

 The Greater Manchester Apprenticeship and Careers Service (GMACS) is also playing a critical role in helping to improve the level of information young people obtain about the education and training opportunities offered in GM, as well as the apprenticeships and re-engagement activities that are available. Thousands of young people have started to be 'on-boarded' to the system by their current school or college, but any young person can use the service to access information, content or support about their career options in GM.

 The National Citizen Service has also re-purposed its offer in response to the Coronavirus pandemic and will be looking to initiate a range of social action and volunteering projects – physically and digitally – from summer through to the autumn term, to help young people contribute and engage with the community response and recovery.

Removing Economic Inequalities:

 We are continuing to promote and develop employer encounters through Bridge GM and Meet Your Future so that young people get to experience and engage with workplaces and employers whilst in learning.

 Online pre-employment programmes have started to be delivered by the Prince’s Trust for the first time in Greater Manchester, with more employers looking to support and recruit young people through innovative technology and remote recruitment methods;

 The Combined Authority has started to explore the development of an Intermediate Labour Market (ILM) scheme and other employment programmes, in partnership with Local Authorities, providers, JCP and other key partners that will look to incentivise and subsidise the employment of young people and adults that risk the greatest labour market marginalisation post-pandemic. In addition, exploration is also taking place to ensure young people coming to the end of a Level 2 or Level 3 qualification are given access to appropriate employability support and training that 'levels up' the experience gap and increases employer confidence in the skills and attributes of our younger workforce.

 We are also providing funding to employers and providers to remove barriers to Apprenticeships for disadvantaged and underrepresented groups of young people, including Care Leavers, those with learning difficulties and disabilities and those with caring responsibilities. Successful programmes are expected to begin this summer and will offer progression into new and flexible apprenticeship programmes across a range of different occupational roles.

 Working Well & Work & Health Programme: Now offering a remote service. Every participant is being contacted by telephone and SMS/text service every week as a welfare check, alongside providing advice for services still available and employment support given the current situation. Particularly vulnerable participants have been identified and prioritised.

 Working Well Early Help: Still providing telephone based Vocational Rehabilitation Service to residentsPage in GM83 which includes referrals to an Expert Practitioner Network that provides on-line and telephone based Cognitive Behavioural Therapy and Physiotherapy.

 Launched in February 2020, EnterprisingYou is one of three government-funded skills pilots being delivered in GM. It is designed to support self-employed individuals, gig economy workers and small business owners across Greater Manchester who are aged 18+, by offering free advice and access to training, from personal skills and career development to business finance and mentoring.

 Our Guarantee and Core Offer for Care Leavers in GM has already helped to engage more organisations in the development and delivery of suitable employment and training opportunities. We are continuing to work with these organisations, including a number of public sector champions, to ensure they continue to support and prioritise the creation and growth of opportunities for care experienced young people.

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Annex 2: Programme of support for ESAP

ESAP has agreed to 3 overarching actions:

1. Equality and assessment 2. Data to inform and shape 3. Impact on people and sectors: universal & targeted approaches required.

 Segmenting the labour market to ensure support to all who need it 1. Young People/Adults 2. Apprenticeships 3. Furlough/risk of redundancy/retrain 4. Newly unemployed 5. Long-term unemployed  Focusing on sectors in terms of: 1. Those who need to amend their business model 2. Are making redundancies and who want to retrain staff 3. Skills offer to move people into new vacancies, health, digital and retrofit

Equality and place are important throughout.

Actions to be grouped:

Prevention: What can we do to prevent impact?

Repurpose: what can GM do already?

React at scale: where are the gaps and how do we get to scale?

Page 85 This page is intentionally left blank Agenda Item 9

Date: 2 September 2020

Subject: Funding for Additional Dedicated Home to School and College Transport

Report of: Eamonn Boylan, Chief Executive Officer, GMCA & TfGM

PURPOSE OF REPORT

This report provides an update on the proposed approach for the allocation of the £2,249,016 grant received from the Department for Education for Additional Dedicated Home to School and College Transport.

RECOMMENDATIONS:

The GMCA is requested to:

1. Note and endorse the approach being adopted to allocate the £2,249,016 grant received by Greater Manchester from the Department for Education for ‘Additional Dedicated Home to School and College Transport’.

CONTACT OFFICERS:

Alison Chew Interim Head of Bus Services 0161 244 1726 [email protected]

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Equalities Implications: n/a at this time Climate Change Impact Assessment and Mitigation Measures – n/a Risk Management: n/a Legal Considerations: Internal legal advice has been sought to ensure the allocation of funding is state aid compliant Financial Consequences – Revenue: This report considers the allocation of a grant received by Greater Manchester from the DfE, therefore there are no direct revenue implications for GM Financial Consequences – Capital: n/a

Number of attachments to the report: n/a

Comments/recommendations from Overview & Scrutiny Committee

BACKGROUND PAPERS: n/a

TRACKING/PROCESS Does this report relate to a major strategic decision, as set out in the No GMCA Constitution

EXEMPTION FROM CALL IN Are there any aspects in this report which n/a means it should be considered to be exempt from call in by the relevant Scrutiny Committee on the grounds of urgency?

GM Transport Committee Overview & Scrutiny Committee n/a n/a

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1 INTRODUCTION/BACKGROUND

1.1 The implications of Covid-19 mean that school transport as it existed before lockdown cannot be replaced in the same form. Social distancing on public transport, with a significant reduction in available capacity, means there is an inability to fulfil current demand requirements.

1.2 On 2 July, DfE released guidance on the full reopening of schools from September. The guidance sets out a new framework for supporting transport to and from schools from the autumn term and makes a distinction between dedicated school transport and wider public transport.

1.3 Dedicated school transport refers to services that are used only to carry pupils to school. This includes statutory home to school transport but may also include some existing or new commercial travel routes, where they carry school pupils only. Wider public transport services refers to routes which are also used by the general public.

1.4 As pupils on dedicated school services do not mix with the general public, the standard advice for passengers on public transport to adopt a social distance of two metres from people outside their household or support bubble, or a ‘one metre plus’ approach where this is not possible, will not apply from the autumn term on dedicated transport.

1.5 In many areas, pupils normally make extensive use of the wider public transport system, particularly public buses. Government expects that public transport capacity will continue to be constrained in the autumn term. The guidance states that its use by pupils, particularly in peak times, should be kept to an absolute minimum.

2 FUNDING FOR ADDITIONAL DEDICATED HOME TO SCHOOL AND COLLEGE TRANSPORT

2.1 On 8 August, Government announced a £40m funding package for dedicated school and college transport. The purpose of the funding is to enable the provision of additional transport capacity for journeys to school and college and has been allocated dependent on the number of students in each local area and how far they have to travel.

2.2 DfE guidance states that funding has been provided because, although there needs to be a major focus on managing demand for peak time transport, there is also a need to boost transport capacity for dedicated school and college services. Funding is intended to be spent on ensuring there is sufficient transport capacity so children and young people can get to school and college safely and on time.

2.3 The funding is being provided to support the costs of additional transport provision for the first Autumn half term only with the position beyond then being kept under review, based on the social distancing guidance in operation for public transport, as well as on information on demand for additional transport capacity at a local level.

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2.4 Local areas have the flexibility to decide where the funding is spent, provided it supports transport to school or college for pupils of compulsory school age and students in 16-19 education.

2.5 DfE wrote to Local Transport Authorities on 11 August to outline the funding allocations and conditions. Greater Manchester has been allocated £2,249,016. Any unused funding will be returned and DfT will be requesting further information from LTAs in relation to home to school transport, including spend, contracts, capacity and fare revenues.

2.6 The short-term nature of the funding means that the grant is not intended to pay for addressing long-standing requests for bespoke school services.

2.7 This report sets out the proposed approach for the allocation of the £2,249,016 grant received from the DfE.

3 ALLOCATION OF FUNDING

3.1 The funding will be largely used in Greater Manchester to provide additional capacity on the commercially operated bus network, where social distancing restrictions still apply. This is for the following reasons:

 Pre-Covid analysis shows around 90% of school children in Greater Manchester who use the bus travel on the commercial bus network; and  Social distancing restrictions mean commercial bus services currently have their capacities reduced to around 35% of pre-Covid levels.

3.2 The additional capacity will be delivered through the funding of duplicate trips on the commercial bus network operating as dedicated school services, which are not subject to social distancing restrictions.

3.3 A proportion of the funding may be reserved to provide additional SEND capacity, depending on need.

4 PRIORITISATION OF SERVICES

4.1 Legal advice has stated that a consistent, data driven approach should be adopted to select which services receive funding to protect against State Aid issues. Subsequently, potential hotspots across the network have been identified and pre-Covid level patronage data for services operating through these hotspots has been analysed.

4.2 A long list of potential duplicate trips has been identified using the following criteria

• More than 10 children or Our Pass holders carried; • Patronage exceeds 150% of available capacity; and

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• Service does not operate to a high frequency (the expectation is that commercial bus operators will address this issue themselves e.g. by operating specific existing trips as dedicated school services).

4.3 Operators have been approached to establish how they can deliver the additional services, which is likely to be a mix of different mechanisms:

• The operator provides the duplicate trips themselves; • The operator sources the duplicate trips through their commercial group provision; • TfGM provide a vehicle, but the operator takes responsibility for the operation of the service; or • TfGM procure the duplicate trip.

4.4 Following returns from operators, confirming how they can deliver the additional services and the cost, TfGM will confirm the initial list of duplicate services.

5 IMPLEMENTATION

5.1 The additional trips will commence on Monday 7th September. A robust monitoring system will be put in place to ensure the additional services are located correctly.

5.2 It is probable that some areas will not see the predicted demand for services, or that there may be new areas of high demand. To mitigate against this risk the contracts for the additional resource will be flexible, so that the resource can be moved if required.

5.3 During the first week of September, when schools are not expected the return full time, operators will be expected to reserve spare school resource, so it can be deployed if needed.

5.4 Some floating resource will also be secured, which can be deployed immediately where problems are identified. It is expected that this will reduce over time.

6 COMMS AND CUSTOMER INFORMATION

6.1 The details of the additional services will be communicated via the following channels:

• Directly to schools – who will be encouraged to communicate with parents and students. • On www.tfgm.com – where all relevant information will be displayed. • On social media – where targeted messages will be considered. • Via bus drivers – inevitably there will be questions for drivers on both affected and other routes.

6.2 It is not intended to provide any information at stops due to the timing available and the lack of flexibility this will provide.

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6.3 The above will be in addition to on-going travel advice which is encouraging pupils to consider active travel options for their journeys from September, in line with government messaging.

7 RECOMMENDATIONS

7.1 Recommendations are set out at the front of this report.

Eamonn Boylan

Chief Executive, TfGM

Page 92 Agenda Item 10

Date: 2nd September 2020

Subject: Recovering from Covid-19 & Tackling Inequality: Social Value & Public Procurement

Report of: Cllr Allen Brett, Portfolio Lead for Co-operatives, Communities and Inclusion Pam Smith, Portfolio Lead Chief Executive for Co-operatives, Communities and Inclusion, Brenda Warrington, Portfolio Lead for Equalities and Older People ______PURPOSE OF REPORT

This report presents proposals for how Greater Manchester can build back better from the impact of Covid-19, including tackling inequality, by updating the city region’s existing Social Value Policy with a refreshed set of priorities for the Social Value Framework, containing priority actions linked to public procurement.

RECOMMENDATIONS:

The GMCA is requested to:

1. Agree the refreshed Greater Manchester Social Value Framework 2. Endorse the link between the Framework and public procurement in Greater Manchester

CONTACT OFFICERS:

Steve Wilson, Treasurer, GMCA [email protected]

John Wrathmell, Director, Strategy, Research & Economy, GMCA [email protected]

Anne Lythgoe, Principal – VCSE Accord Implementation, GMCA [email protected]

Nick Fairclough, Strategy & Policy Officer, GMCA [email protected]

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Equalities Implications The proposed Social Value Framework will include actions that promote equality and address areas where discrimination might occur, particularly in employment, skills and training. Climate Change Impact Assessment and Mitigation Measures Addressing climate change is a fundamental facet of the Social Value Framework and this approach and the priorities listed have been endorsed by the GM Environment Plan Executive Risk Management – none Legal Considerations – This Framework will be embedded into social value considerations in CA commissioning and procurement exercises, and be used to guide compliance with the requirements of the Social Value Act Financial Consequences – Revenue – none Financial Consequences – Capital – none

TRACKING/PROCESS Does this report relate to a major strategic decision, as set out in the No GMCA Constitution (paragraph 14.2) or in the process (paragraph 13.1 AGMA Constitution) agreed by the AGMA Executive Board: EXEMPTION FROM CALL IN Are there any aspects in this report that mean No it should be considered to be exempt from call in by the AGMA Scrutiny Pool on the grounds of urgency? GM Transport Committee Overview & Scrutiny Committee

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1. INTRODUCTION

1.1. The COVID-19 pandemic has had an acute impact upon people and organisations across the public, private and voluntary, community & social enterprise sectors. It has led to dramatic challenges associated with health, the economy, employment, provision of essential goods and services, and public sector finances. The crisis has also occurred in an era of global climate emergency.

1.2. Many organisations have responded positively to these challenges. We have seen changes in the behaviour of large businesses as they seek to become more socially responsible; greater levels of cooperation between organisations across sectors; increased cycling and walking, with subsequent health and environmental benefits; cleaner air in our cities, and a growth in citizen activism, with a commensurate desire amongst communities to improve their places. As we move forwards and begin to look beyond the pandemic, there is an appetite not to return to the old ways of doing things, but instead to accelerate and augment these positive changes.

1.3. At the June 2020 meeting of the Combined Authority, Leaders agreed the process for the development of an initial one-year recovery plan, that will enable GM to achieve more, reduce risks, increase resilience and ultimately build back better. A key area for inclusion in the plan, highlighted in the June 2020 report, was ‘Publication of GM high level framework for social value, and implementation including reviewing opportunities available in existing procurement systems’ building on the existing Social Value Framework which has been developed and implemented in GM for several years. In response, and in association with local authority Heads of Procurement from across the city region, an initial proposal for the refresh of the existing Greater Manchester Social Value Framework in the light of the likely impacts of the Covid-19 pandemic has now been developed.

1.4. This refreshed framework will sit at the heart of work to tackle the widening inequalities which now exist, and to build back a better, fairer and greener economy in Greater Manchester. Social value can be everyone’s business.

2. BACKGROUND

2.1. The Public Services (Social Value) Act 2012 placed an obligation on local authorities and other public bodies to consider the social good and wider impact that could come from the procurement of services before they embark upon it. The effect of the Act has been to alter the commissioning and procurement processes by ensuring that councils give consideration to the wider impact. This requirement is reflected in the GMCA’s Constitution, which requires the organisation to include considerations of social value in all purchasing and disposal procedures.

2.2. Greater Manchester was an early adopter of the Social Value Act. In 2014, GMCA published its first Social Value Policy, which set out how the Combined Authority would deliver social value through its commissioning and procurement activities. Greater Manchester’s local authorities have used this policy to formulate their own arrangements, with adjustments

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made to fit the locality and its unique characteristics or requirements. The city region is seen as one of the leading areas for social value in the UK, and recently hosted the national Social Value Leaders’ Conference. The city region has won awards for its work around social value and several districts are acknowledged for their long-standing commitment to local supply chains, sustainable procurement and creating job opportunities for local people.

2.3. The Combined Authority has used the GM Social Value Policy across all its procurements since 2014, incorporating the existing objectives into procurements of large scale and diverse programmes such as the Adult Education Budget contracts and the GM Full Fibre programme. These contracts have realised new jobs, new opportunities for young people, enhanced the environment and supported work with voluntary, community and social enterprise sector partners.

2.4 In January 2020, the Greater Manchester Co-operative Commission’s report ‘A Co-operative Greater Manchester’ called for all contracting authorities in the city region to consider the adoption of principles to place more emphasis on the added social value of a contract in their corporate strategies, so that they can then be used to inform commissioning and procurement practice.

2.5. At the current time, there is considerable interest in social value across the business and voluntary, community & social enterprise (VCSE) sectors, amplified by the COVID-19 crisis. An opportunity now exists to redefine and strengthen the way ‘social value’ is used in Greater Manchester, both through procurement and as part of a broader, more purposeful, outcomes-focussed and inclusive approach to operating and doing business for organisations across all sectors.

2.6 Furthermore, there also exists an opportunity to better align our Social Value Policy and Framework with the current Greater Manchester Strategy, Local Industrial Strategy and other relevant strategic and policy drivers which have been put in place since 2014.

3. STRATEGIC CONTEXT

3.1. The refreshed Framework is grounded in the Greater Manchester Strategy and the emerging recovery planning work. A long-term plan will be developed for each objective and specific and hard-edged measures and targets co-produced for Greater Manchester. This will enable organisations to build the priorities into their own policy-making and business planning. Public sector partners will be able to use the Framework to update their own procurement and commissioning strategies; looking for opportunities to embed the priorities across their work.

3.2. The Greater Manchester Local Enterprise Partnership (LEP) has been closely involved in the development of these proposals, ensuring that there are clear links between this work and the broader work to support the city region’s economic recovery and efforts to build back better.

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3.3. The Framework will continue to guide delivery of social value within public sector contracts across the GMCA, individual local authorities and NHS organisations. It will support commissioners to set out their procurement and contract management requirements to maximise relevant social value, and providers to develop and submit proposals.

4. AREAS FOR PROMOTION THROUGH THE FRAMEWORK

4.1. Whilst the COVID-19 pandemic has wrought significant damage across Greater Manchester, it has also presented the conurbation with opportunities to build back better than before and, in particular, to tackle some of the engrained inequalities, extant within our city region, that COVID-19 has so cruelly illuminated.

4.2. Good Employment

4.2.1. One area upon which the crisis has shone a particularly harsh light is the poor employment practices that have, in some cases, exacerbated the impact of COVID-19. As we emerge from the crisis, it will therefore be vital to reassert Greater Manchester’s belief that higher employment standards improve productivity, reduce costs and are ultimately better for business.

4.2.2. One clear mechanism by which the city region can promote these values is the Greater Manchester Good Employment Charter, which was launched in January 2020. Employers can become supporters of the Charter, by committing to improving their practice, or Charter members by demonstrating excellent practice across seven characteristics of good employment:  Secure Work  Flexible Work  Real Living Wage  Engagement & Voice  Recruitment  People Management  Health & Wellbeing 4.2.3. Already, 111 Greater Manchester employers, employing almost 185,000 people, have signed up as supporters of the Charter, and 11 Supporters’ Network events and webinars have been held.

4.2.4. In the wake of the COVID-19 pandemic, work is now being undertaken to reflect on how the Good Employment Charter criteria operate in a different employment environment and how they can contribute to Greater Manchester’s long-term aspirations to build back better.

4.2.5. Links to public procurement have been a key priority in the development of the Charter development and the refreshed Framework will allow these to be made clear. The ambition will be that GMCA buys goods, works and services from organisations which was demonstrate high standards of employment practice. Membership of the GM Good

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Employment Charter will be a way of demonstrating social value through high employment standards across a range of areas in a straightforward way for employers.

4.3. Green Recovery

4.3.1. COVID-19 has also provided opportunities to reassess what actions can be taken in Greater Manchester to improve air quality and play our part in mitigating the global climate emergency.

4.3.2. During the pandemic, we have seen a notable drop in air pollution and a significant increase in the use of active travel modes (walking and cycling). As the crisis begins to subside, Greater Manchester will need to maintain these changes wherever possible as we seek to become a greener city region.

4.3.3. The refreshed Framework therefore asks employers to play their part in keeping Greater Manchester’s air clean and making their own organisations greener, for example, by putting in place an action plan to reach carbon neutrality by 2038 and putting in place green business travel options.

4.3.4. This approach and the environmental priorities listed within the Framework have been endorsed by the GM Environment Plan Executive

4.4. Bridge GM

4.4.1. Bridge GM is a network of Greater Manchester businesses, education leaders and careers professionals working to develop the city region’s young people and support them to learn the skills that they will need later in their working life.

4.4.2. COVID-19 has highlighted significant inequalities and disparities across our city region. By becoming part of Bridge GM, employers can support efforts to develop skills in all communities of Greater Manchester and help young people from all backgrounds to access the city regional labour market. Simultaneously, this will help to develop a strong and effective talent pool in the region for their businesses.

4.4.3. Engagement with Bridge GM is therefore a suggested measure by which organisations can demonstrate their delivery of social value.

4.5. Community Action

4.5.1. The pandemic has also seen a significant community response, with individuals and businesses alike offering support to their communities.

4.5.2. Over the course of the COVID-19 outbreak, there has been a notable increase in volunteering with local VCSE organisations, which have played a key role in delivering Greater Manchester’s humanitarian response to the crisis.

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4.5.3. Businesses too have provided vital support: many have manufactured and/or donated personal protective equipment to public services, whilst others have provided significant donations of food to VCSE organisations within the conurbation.

4.5.4. Not only do these actions demonstrate the public spirit that exists within much of Greater Manchester society, they are also good examples of the delivery of social value. As it develops, the Framework will build on these strong foundations and look to engage people and businesses across the city region.

5. THE REFRESHED SOCIAL VALUE FRAMEWORK

5.1. The refreshed Social Value Framework aims to take a high-level, systematic approach to the delivery of social value and sits at the heart of building a movement for change in Greater Manchester. Grounded in the UN Sustainable Development Goals, the Greater Manchester Strategy and Local Industrial Strategy, it is not a benchmarking scheme or just a procurement tool, but a driver of actions aimed at making a difference in the post-COVID period.

5.2. VISION: As we rebuild our economy in Greater Manchester following the crisis caused by COVID-19, we will seek to use social value to make the economy impact-focussed, fair and sustainable. We will encourage every organisation in Greater Manchester to carry out its primary activity, managing the resources that it controls and drawing in investment, in such a way that it encourages them to tackle inequalities and create lasting benefits to society and the economy, whilst making positive impacts (or at least minimising damage) on the environment.

5.3. The refreshed framework is built around six objectives:

 Provide the best employment that you can  Keep the clean air in Greater Manchester  Create the employment and skills opportunities that we need to Build Back Better  Be part of a strong local community  Make your organisation greener  Develop a local, GM-based and resilient supply chain

These objectives align strongly with the Greater Manchester Strategy, but have been lifted out as being relevant and achievable as ‘social value’, backed up by accessible brokerage and support, and having increased priority as a result of the coronavirus pandemic. The following image shows how the Social Value Framework might be presented.

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6. NEXT STEPS

6.1. It is proposed that the Social Value Framework will be presented using a web-based portal, structured around the six objectives, with links through to a range of suggested actions and sources of support and guidance. Each objective will have a tile on the home page behind which will sit:

 An overview of the objective, its drivers, suggested actions and projected outcomes  Links to named GM programmes and initiatives which any organisation can join or receive support (e.g. GM Good Employment Charter or Bridge GM)

A basic introduction to the concept of ‘responsible business’ / ‘social value’ will also be provided. In order to make social value part of ‘business as usual’, this Framework should be free to use and easy to implement.

6.2. The following products will be developed to support the refreshed Framework:

 Policy - Public sector partners will use the Framework to develop their own procurement and commissioning strategies, looking for opportunities to embed the priorities contained in the Framework across their work.  Measurement - Measurable objectives will be set out to enable a robust evaluation criteria within the procurement process  Promotion – Key to the success of the Framework will be that organisations are aware of it and understand its purpose and content. A communications plan will be required to support the launch of the refreshed Framework.  Brokerage – The web portal will not be static and, as new projects, programmes and initiatives come on stream, they will be added to the website. As far as possible, the

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actions described in the Framework should be easily achievable, with support provided and a mechanism for taking action in place. It is anticipated that, as opportunities allow, further brokerage arrangements will be developed to make the strong and sustainable connections, which add resilience to the economy.  Support – It will be important that training and support are available for people and organisations to better understand social value, how they can maximise it from their actions, how to embed it into business, commissioning or procurement strategies, or how to measure and account for the difference that the activities are making.

6.3. Formed in 2015, the Greater Manchester Social Value Network has several hundred members across GM and nearly 1,000 followers on Twitter. This community of practice has been involved in the development of the draft Framework and has indicated their full endorsement. They will play a key role in promoting, embedding and refining the Framework.

The Network offers:

 A repository of good practice through its own website www.GMSVN.org.uk, including case studies, stories, blogs and practice notes  Training, workshops, webinars, and a Network to share learning  A community of experts  Access to wider networks and sources of training and support

GMSVN has driven forward the Social Value agenda in Greater Manchester and has a vision that Social Value should be at the heart of everything that Greater Manchester does, whether that be the contents of the GM Strategy and the activities of the Mayor, the process of procurement, the behaviour of business, or the activities of people.

6.4. Initial work to develop and publish this Framework can be contained within the existing resources of the Combined Authority. However, additional arrangements and systems for monitoring, promotion, training and brokerage may carry an added requirement for funding. Every effort will be made to work with partners to realise the resources required.

6.5 A report with further detail and future proposals to accompany the Framework will be brought to a future meeting of the Combined Authority.

7. RECOMMENDATIONS

7.1. Recommendations are included at the front of this paper.

Page 101 This page is intentionally left blank Agenda Item 11

GREATER MANCHESTER COMBINED AUTHORITY

Date: 2nd September 2020

Subject: Greater Manchester Co-operative Commission

Report of: Cllr Allen Brett, Portfolio Lead Leader for Co-operatives, Communities and Inclusion and Pam Smith, Portfolio Lead Chief Executive for Co-operatives, Communities and Inclusion

PURPOSE OF REPORT

In January 2019, the GMCA approved the detailed arrangements and Terms of Reference for the Greater Manchester Co-operative Commission.

This report presents the final Report of the Commission, which was published in January 2020, and an update on subsequent progress which has been made to implement the recommendations of that Report.

RECOMMENDATIONS:

The GMCA is requested to:

1. Endorse the recommendations made in the Report of the Greater Manchester Co-operative Commission

2. Provide a commitment for GMCA involvement in implementing the recommendations.

3. Consider how the recommendations made might be applied across all Greater Manchester local authority areas, and through the work of the Combined Authority.

CONTACT OFFICERS:

Andrew Lightfoot - Deputy Chief Executive, GMCA [email protected] Anne Lythgoe - VCSE Accord Principal, GMCA [email protected]

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Equalities Implications: The Co-operative Commission is an independent Commission advising the Mayor and GMCA. The Report notes that there is a lack of diversity in people who lead co-operatives and makes recommendations to address this in Greater Manchester. Climate Change Impact Assessment and Mitigation Measures –

Many co-operatives take an active role in environmental protection and several are active partners in the GMCA Green Strategy work. This report will have no carbon or climate change implications. Risk Management: This report represents a low level of risk. Legal Considerations: There are no specific legal considerations associated with this report. Financial Consequences – Revenue: Not applicable Financial Consequences – Capital: Not applicable

Number of attachments to the report: One: Appendix 1 – Report of the GM Co-operative Commission.

Comments/recommendations from Overview & Scrutiny Committee Not applicable

BACKGROUND PAPERS: None

TRACKING/PROCESS Does this report relate to a major strategic decision, as set out in the No GMCA Constitution

EXEMPTION FROM CALL IN Are there any aspects in this report which means it should be No considered to be exempt from call in by the relevant Scrutiny Committee on the grounds of urgency? GM Transport Committee Overview & Scrutiny Committee Not applicable Not applicable

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1. INTRODUCTION

1.1 In July 2018, GMCA Members approved a proposal for a Co-operative Commission for Greater Manchester. This report presents the final Report which has been published by the Commission, for consideration of how its recommendations might be acted upon. It will also provide an update on subsequent progress which has been made to implement the recommendations of that Report.

1.2 Greater Manchester is the home of the co-operative movement. The Rochdale Society of Equitable Pioneers was established in 1844 and Greater Manchester remains the home of the Co-operative Group, the world’s largest consumer owned business.

1.3 The building blocks of co-operation in Greater Manchester are strong, with over 160,000 people already members of a co-operative. Co-operative businesses with their headquarters in Greater Manchester collectively have an annual turnover of more than £11.5 billion, employ over 66,000 people, and have almost 5 million members. The city-region is also home to the Co-operative College providing education for individuals and organisations, as well as conducting international research, with the co-operative values at the heart of all projects, as well as the national association Co-operatives UK, which unites, develops and promotes co-operatives. Co-operatives include credit unions providing financial services to communities, ten housing co-operatives, and retail, which is the largest sector and includes a number of organisations that are reporting significant increases in turnover. Co-operatives are also starting to emerge in key growth areas such as digital and green technology.

1.4 Greater Manchester should be the most co-operative region of the country and be the most natural place for new co-operatives and mutuals to establish and thrive. The Greater Manchester Local Industrial Strategy has acknowledged this role and its implementation plan contains a workstream around supporting co-operatives and social enterprises to thrive in Greater Manchester.

2. THE COMMISSION

2.1 The Greater Manchester Co-operative Commission met formally seven times between its launch in February 2019 and the publication of its final Report nearly a year later. It operates as an independent panel, making policy recommendations to support the continued development of the co-operative sector in Greater Manchester and to ensure that Greater Manchester Combined Authority (GMCA) is drawing on the benefits that co-operatives can bring to our local economy.

2.2 The remit of the Commission has included:

 Consideration of the evidence which exists to support the role of the co-operative and mutual sector generally and the benefits which it could generate for Greater Manchester  How Greater Manchester can build from best practice in the sector, the business advice and support available to grow this sector  How Greater Manchester can overcome the challenges that the sector faces.

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2.3 The Commission examined how the sector can support the delivery of the Greater Manchester Strategy, exploring 4 opportunities for co-operative business and working:

 Housing  Digital  Transport  Co-operative Business Development

2.5 The Commission was chaired by Cllr Allen Brett, Leader of Rochdale Borough Council, supported by Cllr Angeliki Stogia of Manchester City Council, and nine appointed Commissioners who have provided a breadth of expertise to the discussion.

3. REPORT AND RECOMMENDATIONS

3.1 Appendix 1 contains the full Report of the Greater Manchester Co-operative Commission – ‘A Co-operative Greater Manchester – People and Communities working together to improve the environment, create good jobs and sustainable growth’. It should be noted that printed copies of the Report can be provided on request once lockdown ceases.

3.2 The Report summarises the findings from an extensive trawl of evidence which was submitted to the Commission, and provides practical policy recommendations for future consideration. It sets out a vision for Greater Manchester to be the most co-operative place in the country.

3.3 The recommendations contained in the Report are aimed at achieving this vision, building upon good practice and opportunities which already exist and addressing some of the barriers which are faced by co-ops and co-operative ways of working. These recommendations are framed around three broad areas for action:

 Creating the conditions for co-operatives to thrive

 Co-operation in Communities

 Supporting the Co-operative Business Model

3.4 There are also a number of sector-specific recommendations around co-operative and community housing, transport and the digital sector.

3.5 The report recommends that the whole of Greater Manchester should be designated a ‘Co- operative Zone’ – a place where the value of community-led, co-operative and mutual ways of doing business is seen and understood; where people choose to buy from co-ops, and are co-operating with each other in our communities. A place where mainstream support includes setting up a co-op as a business option and where specialist support to run a co-operative is readily available.

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3.6 The report also refers to a number of specific innovations, including:

 Use of co-operative ‘backbone’ organisations – to enable smaller organisations to co- operate in the delivery of public contracts, for example in digital, in social care or in transport.  Drawing together ‘freelancers’ and people in precarious employment into powerful and functional economic units.  Setting up a Greater Manchester Community Housing Hub  Setting up a place-based pilot programme for the development of community-owned ‘total transport’ business models / community transport to link up with shared modes and mainstream network as part of the ongoing work around bus reform

3.7 The recommendations are aimed at a range of audiences, ranging from the leadership of the co-operative sector to national government. However there are a number which could be directly relevant to both individual local authorities and the Greater Manchester Combined Authority, particularly around political leadership, provision of business support and consideration of social value in procurement.

3.8 One recommendation is that all Greater Manchester local authorities become members of the Co-operative Councils Innovation Network, and a collective membership offer has been made for Greater Manchester councils wishing to join.

3.9 The Commission has also identified that there are a huge number of opportunities available to work collaboratively to realise Greater Manchester’s co-operative vision. For example, the Co-operative Group is offering to expand the geographical scope of its innovative ‘Co- operate’ App, which enables individual people to link up with each other, services and groups, and ‘co-operate’ within their communities. This could have an application in the reform work across Greater Manchester. Co-operatives UK has offered to extend the reach of its ‘Hive’ specialist business support service in Greater Manchester. Further offers have been received from individual Commissioners with help around legal matters, digital technology and housing, for example.

3.10 Implementation of a further recommendation as part of the Co-operative Zone would require consideration of the accessibility and nature of business support which is available to co-operative and mutual organisations. This would include drawing together relevant support within the Growth Hub and extending access to existing co-operative business support programmes such as the Hive and UnFound.

4. PROGRESS MADE SINCE THE REPORT WAS LAUNCHED

4.1 Following the launch of its Report, the GM Co-operative Commission agreed to meet again to discuss how best to test out the feasibility of its recommendations, identify what needs to happen first, where success of one action is dependent on others and who is best placed to drive this forward. This work had just got under way before the lock down period.

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4.2 However, Commissioners have continued to meet and work is progressing on a small number of areas of opportunity, some of which will be the spaces left vacant by market failure and others will be where co-operative and mutual approaches are the best way to do business.

The following sub-sections describe the progress which has been made to respond to a number of opportunities which have been presented.

Build Back Better

4.3 The Co-operative Commissioners have identified the co-operative way of approaching business to be one which could play a major role in the recovery from the coronavirus crisis. Appendix 2 contains the paper that has been submitted to the Local Enterprise Partnership, which explains how co-operatives can support Building Back Better:

Co-operation and co-operative ways of working present Greater Manchester with a big opportunity for building back better after the ravages of Coronavirus – creating a fairer, sustainable and more resilient economy focussed on:

 Partnerships, inter-trading and support, and mutuality  Community wealth building  Solidarity, with a local, circular economy  Strong relationships and shared risk  Social, environmental and economic impact and sustainability

Greater Manchester Innovation Co-operative

4.4 The Commission has put forward a proposal for a Greater Manchester Innovation Co- operative. This is a ‘backbone’ organisation as described in section 3.6, and will create a protected space where businesses can build collaborative relationships based on trust. At the same time it will provide a shared contractual and commercial interface with the outside world. Rather than creating new, separated legal structures for each individual collaborative venture in the ecosystem, the shared protocols will permit the creation of ‘virtual cooperatives’ to organise supply, and sometimes demand. The Innovation Co-op itself will provide a range of services to members to support innovation, such as digital hosting, accounting, insurance.

4.5 The Innovation Co-op might facilitate the development co-operatives in the following areas:  Freelancer and gig economy cooperative, inspired by the example of the SMART cooperative now operating in 9 European countries.  Neutral host fibre co-investment cooperative, inspired by the example of B4RN (Broadband for the Rural North).  SME mutual credit circle, inspired by the example of Sardex in Sardinia, responsible for €31m of transactions last year.  Neutral host EV charger network, inspired by the example of the Charge My Street project in Lancaster.

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Middleton Co-operative Community Partnership

4.6 Originating as an initiative with a focus on Warwick Mill, in Middleton, a partnership has been established between local residents and businesses, along with organisations from the voluntary, community and public sectors, working together to deliver community-led economic development based on a co-operative approach to community wealth-building, to create Middleton Co-operative Community Partnership. The aim of this Partnership is to implement an innovative community-led economic development approach in Middleton, and create a place-based ‘co-operative zone’ as described in the Report of the GM Co- operative Commission. It is hoped that the Innovation Co-operative organisation described above can support the Middleton Partnership to realise its ambitions.

Co-operative Councils’ Innovation Network

4.7 The Co-operative Councils’ Innovation Network is a collaboration between local authorities who are committed to finding better ways of working for, and with, local people for the benefit of their local community. The Network is a Special Interest Group of the Local Government Association and is non-political. Both officers and members can actively participate in the activities, which includes activities to learn, share and develop innovative new approaches to turning co-operative principles into local practice.

4.8 In order to share learning from the whole Network with GM stakeholders, a webinar was arranged for 22nd July. This brought together officers and politicians from across Greater Manchester, together with the Chair of the Network and case studies from across the country. It is anticipated that the four local authority members in GM and GMCA will shortly be joined by others, to create a sub-regional group to drive forward coproduction and community involvement.

Co-operation in communities

4.9 The clear evidence of the last few weeks and months is that in times of difficulty, community- based co-operation doesn’t wait for permission, funding or structures: it just gets on with it. Mutual Aid groups have sprung up across Greater Manchester, and thousands of people have volunteered to help out in their communities. Profit-driven and extractive ambitions have been put on hold, and local collaboration, community action and mutual aid have taken their place.

Lots of organisations are doing lots of good, community-supportive things, not just cooperatives. In the crisis they have instinctively behaved in a collaborative and co-operative way, and solved problems, without structures or anybody’s authorisation. Co-ops are the business manifestation of what is happening at the moment. This different way of behaving is actually a possible alternative basis for doing business, or even a different way of organising society.

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4.10 The Co-op College is an independent educational charity which celebrated its centenary in 2019. Over its history the College has variously worked with and on co-operative schools; research; partnerships with higher education, charities and voluntary organisations locally and globally; training for co-operative members, societies, Boards and Councils and co- operative educational capacity building more generally in existing and emerging co-ops.

The College provides opportunities to gain accredited qualifications, whilst strengthening the co-operative movement. Projects include:

 Youth Co-operative Action – for young people aged 14-19 to take back control of the issues that matter to them through co-operation and social action.  Co-operative (Ad)venture - a series of engaging activities to equip young people with learning difficulties, disabilities and autism with the skills needed to assist with the smooth transition from compulsory education to further education, training and employment.  Together Enterprise - Empowering people to set up their own co-operative enterprises.  Online Youth Series - Sessions which focus on co-operation, community and social action, designed with young people to offer help and support through Covid19.  Young Co-ops - a school-based enterprise project that has given thousands of 8-18 year olds the chance to set up and run their own co-operative businesses

Other, sector specific developments

4.11 A group of Manchester students have convened to establish the city's first student housing co-op. They have incorporated and become members of Student Co-op Homes and are now looking to secure their first property. This is an impressive group that have achieved a lot in a short space of time - if they're able to maintain momentum, it is entirely possible to secure their first property in time for the 2020/21 academic year. As exemplified in other cities, student co-ops can help raise the profile of cooperation and cooperative enterprise in a target demographic. Co-operative student homes have been a way to introduce more young people to the concept of co-operation and has significantly increased the diversity of involvement in the sector.

4.12 Early discussions are taking place between the Growth Company and Co-operatives UK about joint working to increase accessibility of support for the development and growth of co-operative businesses.

4.13 A further recommendation from the GM Co-operative Commission related to the establishment of a Community Housing Hub. Progress on this is described in another item on the agenda for this meeting.

5. NEXT STEPS

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4.1 The Co-operative Commission has successfully raised the profile of co-ops, identified good practice from which GM may wish to build and learn, and set out a clear set of actions to enable co-operatives to grow and thrive across GM.

4.2 However, is important that a process of wide engagement now takes place as part of the feasibility testing process. This engagement will be used to inform the delivery of the implementation plan for the Local Industrial Strategy, but it should be noted that as many of the recommendations will rely on a broad, multi-sectoral partnership approach to delivery. Furthermore, it is important that the recommendations are embedded into the economic and other relevant portfolios.

4.3 Following the launch of the report of the GM Co-operative Commission, it was agreed that Commissioners would meet to develop an Implementation Plan for the recommendations which had been made. It is proposed that this piece of work takes into account the emerging impacts of Covid-19 and is completed by September 2020. The work of the Commission in its current form would then be complete.

4.4 The Implementation Plan will present an opportunity to embed co-operative ways of working where they can make the most difference in terms of other sectors, for example social care, housing, transport and business. This will give a chance to refresh membership of the steering group that drives forward the work, bringing in diverse and expert voices from the relevant sectors.

4.5 It is proposed that officers from the Combined Authority will continue to support the Commission into its next phase.

5. RECOMMENDATIONS

Recommendations appear at the front of this report.

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A Co-operative Greater Manchester People and Communities Working Together to Improve the Environment, Create Good Jobs and Sustainable Growth

A report of the Greater Manchester Co-operative Commission

Page 113 Greater Manchester Co-operative Commission

Table of Contents

Foreword ...... 3

Executive Summary ...... 4

Introduction: Background and Rationale for the Commission ...... 19

Informing the Commission ...... 35

What are the key barriers and challenges to co-operative development? ...... 36

Creating the Conditions for Co-operatives to Thrive ...... 38

Co-operation in Communities ...... 45

Supporting the Co-operative Business Model...... 53

Concluding Remarks ...... 74

Appendix A: Greater Manchester Co-operative Commission Terms of Reference ...... 77

Appendix B: Commissioner Biographies ...... 82

Appendix C: Call for Evidence ...... 86

Appendix D: A list of individuals who presented evidence to the Commission and the titles of their presentations ...... 94

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Foreword by the Chair of the Greater Manchester Co-operative Commission Cllr Allen Brett, Leader of Rochdale Council

On behalf of the members of the Greater Manchester Co-operative Commission, I am pleased to present our report. We have considered evidence from across the world, as well as some of the exciting work happening closer to home, and have made recommendations which we believe will grow co-operation and co-operative business in

Greater Manchester. Our vision for Greater Manchester is one where people collaborate, communities are empowered and co- operatives grow and thrive. The creation of

a Greater Manchester Co-operative Zone and a supportive strategic, financial and legal environment will enable this vision. Devolution gives Greater Manchester the mandate to deliver an economy fit for the

future, with prosperous communities across the city-region, and co-operation can be the mechanism by which citizens are able to take part.

The Pioneers set up their first co-operative shop in Rochdale and we believe that

Greater Manchester should continue to lead the way in co-operative innovation, applying the principles and values to create

an economy based in maximising impact and productivity for all. The following report provides expert guidance on how this can be achieved.

Cllr Allen Brett

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Executive Summary

Background to the Commission

Rochdale in Greater Manchester is commonly credited with being the birthplace of the international co-operative movement. In 1844, a group of 28 local people founded the Rochdale Society of Equitable Pioneers and opened a store to sell food and household items at affordable prices in a time when working people were increasingly being pushed into poverty due to how business was operating in the context of the Industrial Revolution. The Pioneers developed their own set of principles which were the foundation of those followed today by co- operatives across the globe.

Today, Greater Manchester is home to almost 300 co-operative organisations across a range of industries (see case study A for some examples), including the Co-operative Group – the UK‟s largest consumer co-operative. Co- operatives with their headquarters in Greater Manchester collectively have an annual turnover of more than £11.5 billion, employ over 66,000 people, and have almost 5 million members. The city-region is also home to the Co- operative College providing education for individuals and organisations, as well as conducting international research, with the Co-operative values at the heart of all projects, as well as the national association Co- operatives UK, which unites, develops and promotes co-operatives.

However, whilst the co-operative movement in Greater Manchester has a long and rich history, co-operatives make up less than 0.5% of all businesses in the city-region. Whilst the revenue and employment figures look promising, the Co-operative Group make up the vast majority of both of these figures (more than 90%).

It is clear that co-operative developments which have come about in other countries or other parts of the UK have not happened in Greater Manchester. There are examples, both nationally and internationally, where co- operatives play a much more fundamental part in the local economy than is seen in Greater Manchester. Spain, Italy and Sweden, amongst others, provide examples that Greater Manchester can learn from of how to implement a system that provides the opportunities for co-operatives to thrive..

To help to understand the challenges and opportunities to developing the co-operative sector in Greater Manchester, In July 2018, the Greater Manchester Combined Authority (GMCA) agreed to set up the Greater Manchester Co-operative Commission to ensure that the city-region stays at the forefront of co-operative development. The Commission would sit as an independent panel, making policy recommendations to support the continued development of the co-operative sector in Greater Manchester and to ensure that GMCA is drawing on the benefits that co-operatives can bring to our local economy.

The Commission was chaired by Cllr Allen Brett, Leader of Rochdale Borough Council and Vice Chaired by Cllr Angeliki Stogia, GMCA Deputy Portfolio Lead for Community, Voluntary and Co-ops. Nine independent Commissioners were appointed with the aim of bringing a wide range of experience and expertise from across the co-operative movement.

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The nine Commissioners were:

 Cliff Mills, Consultant - Anthony Collins Solicitors  David Batten, Chair – Credit Unions for Greater Manchester  James Wright, Policy Officer - Co-operatives UK  Jo Platt - Former Labour and Co-operative MP for Leigh  Kellie Bubble, Director - Unicorn Grocery  Mike Blackburn OBE, Chair - Greater Manchester Local Enterprise Partnership  Paul Gerrard, Campaigns and Public Affairs Director - Co-operative Group  Shaun Fensom - Cooperative Network Infrastructure  Simon Parkinson, Chief Executive and Principal - Co-operative College UK

Informing the Commission

To inform the Commission, a formal Call for Evidence was launched, providing individuals and organisations with the opportunity to directly contribute on the Commission‟s Key Lines of Enquiry and opportunity areas. A total of 46 responses were received, two from individuals and the rest from organisations. A wide range of organisations from a wide range of sectors provided evidence, including small, local businesses to large, international organisations.

To complement the formal Call for Evidence, a desktop review of data and research has been analysed. This included a review of both national and international literature, as well as a review of the ongoing work across Greater Manchester. For each opportunity area, a designated meeting was held to discuss and debate the evidence received and guest speakers with expertise in the area were invited to present evidence to the Commission. This information was used to facilitate discussion, debate and ultimately to inform the findings of the Commission, supporting the recommendations made.

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The Commission focused on three opportunity areas:

 Housing  Transport  Digital

Plus, an additional cross cutting theme of business development. From the evidence gathered, it was clear that there are a number of overarching themes that affect all of the opportunity areas. Therefore, the findings and recommendations are grouped based on three key areas:

 Creating conditions for co-operatives to thrive  Increasing co-operation between people in communities and organisations both public and private  Enabling people to see how they can play a significant part in improving communities across Greater Manchester through the co-operative approach to business.

A number of additional considerations for the individual opportunity areas are then discussed.

What are the key barriers and challenges to co-operative development?

The Commission identified the following key challenges:

A lack of real awareness and practical understanding of alternatives to traditional business.

A perception that the challenges and complexities involved in setting up or converting to a co-operative outweigh the benefits; therefore, the option is not adequately explored.

The mainstream service provision available to businesses (advisors on finance, accounting, law, governance and regulation) are not professionally trained in co-operative approaches and are not necessarily equipped to advise of co-operative businesses

The distinct legal and organisational structure of co-operatives can create challenges for investment and lending for banks, public and private sector investors, credit reference agencies and people doing due diligence, because they are not familiar with the different purpose of such organisations, and their different strengths.

The purpose and ownership structure of co-operatives are incompatible with some established approaches to financing businesses, including angel investment and venture capital.

Often a co-operative approach is not considered as a mainstream option in strategy development, if at all.

Creating the Conditions for Co-operatives to Thrive

In order to help people to be able to play a part much more easily in meeting local needs through co-operative and social business, whether as users, workers, residents or volunteers, Greater Manchester needs to do more to

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create conditions where such enterprises can not only exist but thrive. In order for Greater Manchester to effectively overcome the barriers and challenges faced, five key changes are needed:

 Increased political leadership  New approaches to public sector procurement  Legal reform  Increasing financial enablers  Greater Manchester should be designated as a Co-operative Zone with a dedicated resource to offer business advice and support for both existing co-operatives and those who wish to start or convert to a co-operative approach

Specific recommendations to help to create the conditions for co- operatives to thrive in Greater Manchester

1. Call for the review and strengthening of co-operative law in the UK alongside any review of company law.

2. The constitution of Greater Manchester Combined Authority to expressly recognise co-operative and social business for the benefits they bring to an economy in keeping with International Labour Organization recommendation 193; and that GMCA should encourage the 10 Greater Manchester local authorities to do likewise.

3. GMCA should establish a democratic charter articulating the values of self-help, self-responsibility, equality, equity and solidarity. The charter should promote the involvement of users, employees, volunteers and citizens in the provision of goods and services in the city-region and encourage the 10 Greater Manchester local authorities, Transport for Greater Manchester, the Greater Manchester Health and Social Care Partnership and other relevant organisations in the region to sign up to it.

4. All of Greater Manchester‟s local authorities should consider becoming members of the Co-operative Councils‟ Innovation Network.

5. All Greater Manchester and local authority strategies to include consideration of how the engagement of citizens and communities through co-operatives and co-operation can help to deliver the strategy and how this can be facilitated in associated delivery plans.

6. A „study tour‟ should be organised so Greater Manchester‟s policy makers can learn from places where co-operative innovation is playing a large part in re-invigorating local democracy and economic regeneration – this includes both in the UK and nationally.

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7. Support small organisations in Greater Manchester to co-operate in the delivery of public contracts, specifically by creating a legal/organisational solution for such co-operation, to be accompanied by guidance/support for organisations to make use of it.

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8. An up-to-date toolkit and learning programme being devised to address this.

9. All contracting authorities in the Greater Manchester giving consideration to the adoption of the principles to place more emphasis on the added social value of a contract in their corporate strategies so that they can they then be used to inform commissioning and procurement practice.

10. Procurement officers receiving training on the benefits of the co-operative as a legal form for a stable supplier of services, especially in terms of financial strength.

11. More capacity-building being provided to enable co-operatives to bid effectively in the public procurement arena.

12. The Greater Manchester Co-operative zone to work with banks and other financial organisations to help reduce the barriers to co-operatives accessing finance.

13. Actively promote the funding of community-based initiatives through community share offers, exploring the option of a Greater Manchester community investment platform.

Co-operation in Communities

To improve co-operation in Greater Manchester‟s communities, five key changes are required:

 An increase in community-led, placed based approaches to community ownership and economic development  Increased promotion of the benefits that credit unions can offer to individuals  Improved support for communities to help them to understand their co-operative options  An increased focus on evaluation  Increasing the diversity of co-operative members and users

Specific recommendations for increasing co-operation in Greater Manchester’s communities

14. Actively encourage the participation of the co-operative sector and individual co-operatives in Bridge GM and the GM Enterprise Adviser Network to improve awareness and understanding of co-operatives.

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15. The need for a strategic approach of the co-operative sector that includes all relevant organisations across Greater Manchester, this includes a co-ordinated media campaign between the Co-op Group, Co- ops UK and relevant partners, which is aimed at the general public about the value of co-operatives in Greater Manchester, including promoting the success of local community ownership schemes, including the benefit of credit unions.

16. The Mayor of Greater Manchester should lobby Government for the relaxation of capital requirements and to request a review of the Credit Union Act; this would enable credit unions to provide more financial services to a wider range of people.

17. Greater Manchester should develop practical ways to evaluate, understand and celebrate the benefits co-operatives generate for their members and their communities. These benefits might include decent livelihoods, access to opportunities, the availability of socially beneficial products and services and the

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creation and recirculation of locally controlled wealth. They might also include being more responsive and flexible in meeting local needs, building local engagement, capacity and community aspiration. Approaches would need to assess both the quality of these benefits and also how broadly these benefits are shared.

18. In implementing the Greater Manchester Local Industrial Strategy, the GMCA should empower place- based partnerships of residents, local businesses and community organisations to design and implement initiatives for skills, livelihoods, enterprise development and infrastructure. The focus should be on nurturing, mobilising and connecting social capital alongside economic capital. This could draw in emerging practice in „community-led economic development‟, such as the EU‟s little-known „Community Led Local Development‟ model, as well as recent and ongoing community-led economic development pilots that utilise of co-operative and community business models.

19. Greater Manchester local authorities should consider alternative forms of social provision, including strategic use of co-operatives (service user and/or staff led), local social enterprises and socially driven SMEs as part of their commissioning and provider arrangements in order to maximise social and economic benefits.

20. To enable credit unions to provide more financial services to a wider range of people, the Mayor of Greater Manchester should lobby Government for:

 a relaxation of capital requirements  maintenance of proportionate regulation  a review of the Credit Union Act  investment in credit unions

Supporting the Co-operative Business Model

To support co-operative business through the whole of the business lifestyle, five key changes are required:

 Increased support for commercial businesses to convert to a co-operative approach  Increased support for co-operative businesses to understand the market and the needs of the consumer  Encouraging all Greater Manchester co-operatives should work towards the principles laid out in the Greater Manchester Good Employment Charter  An increase in awareness raising of co-operative ways of working, Greater Manchester co- operatives should actively engage with initiatives which teach and develop young people about business  More support available to co-operatives to help to measure, understand and celebrate the impact that they have

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Specific recommendations for ways in which Greater Manchester can support the co-operative business model

21. Greater Manchester Co-operative Zone to work with the Greater Manchester Chamber of Commerce, Greater Manchester Centre for Voluntary Organisation, Manchester Digital and the Greater Manchester Growth Hub to equip business advisors with a basic practical understanding of co-operative approaches.

22. The Greater Manchester Co-operative Zone to help „family owned‟ SMEs in Greater Manchester plan for ownership succession and explore conversion to co-operative ownership as a succession option; and to provide access to expert support when business leaders and their workers decide a co-operative conversion is the right option.

23. The Greater Manchester Co-operative Zone to work with the co-operative and mainstream business advice sectors to improve access to expert advice and support for co-ops in the city-region, including business planning, organisational design, culture, governance and HR capability.

24. The Greater Manchester Co-operative Zone to facilitate co-operation between co-operatives in Greater Manchester.

25. A piece of research is needed into the detailed market opportunities which exist in Greater Manchester for co-operatives, including emerging sectors, localities and communities across the city-region.

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26. All Greater Manchester co-operatives should aim to work towards the principles in the Greater Manchester Good Employment Charter in order to demonstrate their commitment to employees and members.

27. Co-operatives across Greater Manchester need to be supported to offer work experience opportunities through Bridge GM and to consider the benefits of the Apprenticeship Levy to support the development of apprentices in co-operative businesses and the Greater Manchester Co-operative Zone to advertise these opportunities.

28. Greater Manchester should lead on developing a city-region version of the pioneering SMART co- operative. A Greater Manchester version could draw on the Belgian experience adapted to the unique conditions in the city-region and the UK. This could draw together „freelancers‟ and people in precarious employment into a powerful economic unit.

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29. The Greater Manchester Co-operative Zone must provide evaluation support so that the co-operative sector can prove its collective value. This would support individual co-operatives can use tools and business approaches, to measure and evaluate the benefits they create for their members and their communities, including „social accounting‟, to „prove, improve and be accountable‟ for the social value.

Co-operation in the Commission’s Three Opportunity Areas

From the three opportunity areas which the Commission looked at, a number of sector specific challenges were identified which need to be addressed to enable citizens and communities in Greater Manchester to engage in finding their own solutions.

Housing

The average selling price of a house in Greater Manchester in November 2019 was just over £200,000; a 3.43% rise compared to November 2018. With fewer people being able to afford their own home, a greater proportion of Greater Manchester residents are privately renting than ever before1. This has led to a significant increase in rental costs across the city-region as landlords seize the opportunity to increase profit margins. Co-operatives provide an ideal opportunity for tenants to have control over their housing through co-operative ownership to maintain a decent standing of living at an affordable cost. To enable co-operatives to offer the most benefit the following changes required:

 Further exploration the opportunities that mutual based social housing offer  Increased use of innovative solutions to access housing / land stock  Creation of a specific Greater Manchester Community Housing Hub

Specific recommendations for seizing the co-operative opportunities to improve Greater Manchester’s housing options

30. GMCA should explore the application of mutual and member ownership in social housing, including through the Greater Manchester Housing Strategy.

31. Requirements for co-operative and community ownership of housing should be embedded into Greater Manchester and local housing strategies, including the Greater Manchester Spatial Framework and local plans. This would include consideration of strategic planning, land allocation and economic strategy to incentivise co-operative and community housing models.

1 Office of National Statistics (2011). 2011 Census data. Available at: https://www.ons.gov.uk/census/2011census/2011censusdata

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32. The Commission supports the proposal of a Greater Manchester Community Housing Hub and recommends that the GMCA and all relevant housing organisations also pledge their support.

33. The GMCA, Mayor of Greater Manchester and Mayor of Salford to lobby government for continuation of national Community Housing Fund.

Transport

The Commission looked at a number of examples of where transport planning is co-operative both in the UK and abroad. The main benefits associated with community-led and co-operative transport were found to include:

 Reducing emissions and congestion  Managing demand better  Enabling modal shift from polluting cars to greener and public transport  Making public money go further  Building local economic resilience

There were felt to be strong opportunities for co-operative development in the following areas:

 Around Greater Manchester’s bus reform programme of work  Social care transport  Taxies and private hire vehicles  Rail  Car and cycle sharing schemes / business vehicle use  Electronic charging points

Specific recommendations for seizing the co-operative opportunities to improve Greater Manchester’s transport links

34. Transport for Greater Manchester to carry out a place-based pilot programme for the development of community-owned „total transport‟ business models/community transport to link up with shared modes and mainstream network as part of the ongoing work around bus reform.

35. Transport for Greater Manchester, Greater Manchester Health and Social Care Partnership, GMCA as well as wider public sector partners should create opportunities and infrastructure for co-operative and community-led transport options through mainstream integrated transport planning.

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36. Transport for Greater Manchester, the Greater Manchester Health and Social Care Partnership and the GMCA explore opportunities for co-operative approaches to support Greater Manchester‟s health and social care transport needs.

37. Greater Manchester could be an ideal market for the creation of a co-operative taxi app, encouraging all taxi firms to join and creating a single app that works for all of Greater Manchester.

Digital

The vast majority of the digital technologies that are widely used and interacted with on a day to day basis are owned and controlled by private corporations; some of whom are very large and have significant impacts on local economies. There are good examples of co-operating at scale, however, the evidence reviewed by the Commission showed that there is huge potential in the digital sector for the development of co-operatives, both in Greater Manchester and nationally.

Specific recommendations for seizing Co-operative Opportunities to improve Greater Manchester’s digital infrastructure and use of technology

38. Consult on the creation of a Greater Manchester digital umbrella co-operative to facilitate formation of consortia for collaborative tendering and SME delivery of big digital projects. This would enable „pop-up‟ digital co-operatives to respond to shifting market opportunities and needs as well as facilitating resource sharing e.g. a pool of people with developer skills that companies could utilise when needed.

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39. GMCA should work with public and private sector to extend the co-operative neutral host model successfully pioneered in Tameside to other parts of Greater Manchester, aggregating digital infrastructure assets for public use and sharing them with digital and telecoms businesses, including locally based SMEs.

40. GMCA should launch a Greater Manchester-wide user-investment vehicle “Fibre GM” so that communities and business clusters can invest in full fibre and make it available to Internet Service Providers, including local and SME providers.

41. Apply the „Digital Exchange‟ notion used in Brighton and Tameside to create focal points for digital business development outside the city centre, using cooperatively-owned carrier-neutral access and hosting points based on the LINX ownership model.

42. Encourage collaboration in Greater Manchester on initiatives opportunities such as cooperative cloud - taking advantage of the lively digital sector, the strength of Coop Digital and CoTech members in Greater Manchester and wider.

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Conclusions

Greater Manchester has all the growing conditions for co-operation. The political awareness and will is there, there are the emerging strategic drivers in the establishment of the GMCA and its Greater Manchester Strategy, the Local Industrial Strategy, and opportunities to develop further across health and social care, housing, transport and environmental agendas. Greater Manchester has the markets for co-operatives and is a place of innovation using the co-operative model and in addition to all of this, Greater Manchester also has the people who can form and benefit from the opportunities that co-operatives bring.

The Greater Manchester Co-operative Commission has created the intelligence and a learning resource from which to build. It has also raised the profile of the ambition beyond the city-region and given us contacts across the world – many of whom are willing to help achieve this ambition.

Acting upon the recommendations made in this report will only serve to strengthen the political, strategic and business environment for co-operatives to thrive.

The time is right for Greater Manchester to radically change the focus from traditional business towards wider productivity, communities and the creation of an inclusive economy. By encouraging open and voluntary membership of activities which create social impact; supporting democratic member control and economic participation in business; promoting local accountability; supporting education, training and the sharing of information, as well as co-operation amongst businesses, we can achieve our vision of Greater Manchester being the most co-operative place in the country. Most importantly, we have concern for our communities – supporting local people and giving back to our members.

Greater Manchester must seize the moment - if not now, then when?

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1. Introduction: Background and Rationale for the Commission 1.1 What is a co-operative?

1.1.1 A co-operative is an independent group of people or organisations (known as members) who come together voluntarily to meet common economic, social and / or cultural needs and aspirations through a jointly owned and democratically controlled initiative. Each member has an equal share of the voting rights of the organisation, regardless of the amount of capital or resource that they put in2.

1.1.2 Co-operatives take many forms, but can broadly be grouped under five categories:

 Consumer co-operatives – which are owned and controlled by users (consumers or customers) seeking access to goods and services  Worker co-operatives – which are owned and controlled by those working for an enterprise  Enterprise co-operatives – co-operatives which are owned and controlled by other businesses seeking to work together to provide themselves with goods or services including processing and marketing of members’ own outputs  Community co-operatives – co-operatives which are owned and controlled by a community of place and/or interest, where the purpose is to generate benefits for their community  Multi-constituency - co-operatives owned and controlled by more than one interest group such as users, workers, producers, local residents and volunteers.

1.1.3 Co-operatives take their inspiration from the International Co-operative Alliance‟s Statement of the Co-operative Identity, which have been “the globally recognised core of co-operative philosophy since 1844”3.

1.1.4 The Principles which co-operatives work towards are not rigid rules, but are practical, ethical principles to be applied with vision and proportionately according to the national economic, cultural, social, legal and regulatory context and particularities within which each co-operative enterprise operates4.

2 International Co-operative Alliance (2018). Cooperative identity, values & principles. Available at: https://www.ica.coop/en/cooperatives/cooperative-identity

3 International Co-operative Alliance (2017). Guidance notes to the Co-operative Principles. Available at: https://www.ica.coop/sites/default/files/publication-files/ica-guidance-notes-en-310629900.pdf

4 Ibid

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1.1.5 The fundamental benefit of co-operation is that it provides an alternative basis for business from the dominant shareholder controlled, traditional profit-seeking or state provision. It therefore challenges, and potentially disrupts, business models which are working unfairly (or not at all) for some people – such as employees working in poor conditions for low pay, or because the model is failing entirely and has become unsustainable.

1.1.6 Co-operation is a valuable concept because it is based on self-help and solidarity. It is based in the foundation of people coming together as users, workers, producers or communities to find their own solution for mutual benefit; it does not essentially depend upon external agency such as investors, government or philanthropy.

1.1.7 Co-operatives are not the only type of enterprise today seeking to challenge established approaches to enterprise. The last two decades have witnessed the rapid expansion of the concept of business which aim to deliver social benefits5. The energy and motivation for this sort of enterprise comes from the opportunity to combine social impact with private gain. Co-operatives are formed by people within communities seeking to work together for the common good.

1.1.8 A co-operative, as narrowly defined, is the only form of enterprise with an internationally agreed and recognised definition and set of values and principles. However, co-operatives are part of this much wider social business sector, including sometimes overlapping concepts such as social enterprises and mission led businesses. This report seeks to promote and advance co-operative approaches in the wider economy, wherein social and economic value is co-created through the collective agency of empowered communities of interest and place.

1.1.9 At individual level, co-operatives provide a mechanism for ordinary people to have a voice and play a part in a joint endeavour with others for their mutual benefit. At community level, co-operatives provide mechanisms for locally-owned and locally-inspired enterprises to be catalysts alongside public and private institutions to stimulate local regeneration, to strengthen local identity, and to develop aspiration through collaborative endeavour.

5 Advisory Panel to the Mission Led Business Review (2016). On a mission in the UK economy: Current state of play, vision and recommendations from the advisory panel to the Mission Led Business Review. Available at:

https://www.gov.uk/government/publications/understanding-mission-led-businesses-terms-of-reference

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1.1.10 Both in Greater Manchester and across the UK there is a strong voluntary sector and a growing social enterprise sector6, however the co-operative approach to business has not flourished as well as other forms of social business. Greater Manchester needs this sector to help find solutions to its current and growing needs. Co-operatives and other social business, driven by the energy and enthusiasm of citizens and communities, have an enormous amount to contribute in Greater Manchester, particularly where dominant business models, markets or the state cannot meet needs and aspirations; of which many examples are provided in this report. Citizens and communities have much to offer through co-operatives and social businesses and the Commission aimed to highlight where the opportunities are to enable more co-operation to happen and with greater ease, to best enable those communities and citizens in Greater Manchester to contribute to the common good of the city-region.

1.1.11 Businesses that operate co-operatively offers Greater Manchester something different to only-for- profit, shareholder controlled business. They are:

 Less likely to fail in the first five years of business7  More resilient in times of economic crisis8  Can reduce inequalities of power9 and wealth1011  Are very effective at meeting the common needs and aspirations of workers12,13, communities14,15, consumers and small businesses16,17

6 Vickers, I., Westall, A., Spear, R., Brennan, G., & Syrett, S. (2017). Cities, the social economy and inclusive growth: A practice review. Available at: https://www.jrf.org.uk/file/50288/download?token=-ybik_3U&filetype=full-report

7 Co-operatives UK (2019). Co-operative business survival. Available at: https://www.uk.coop/sites/default/files/uploads/attachments/co- operative_survival_1.pdf

8 Birchall, J. & Ketilson (2009). Resilience of the co-operative business model in times of crisis. Available at: https://www.google.co.uk/url?sa=t&rct=j&q=&esrc=s&source=web&cd=1&ved=2ahUKEwi25_TCmMHlAhWllFwKHU6gAuMQFjAAegQIARAH&url =https%3A%2F%2Fwww.ilo.org%2Fwcmsp5%2Fgroups%2Fpublic%2F---ed_emp%2F--- emp_ent%2Fdocuments%2Fpublication%2Fwcms_108416.pdf&usg=AOvVaw1XlkOx0Bg4ziLwSkuENGTO

9 Birchall, J. (2017). The Governance of large co-operative businesses. Available at: https://www.uk.coop/resBirources/governance-large-co- operative-businesses-0

10 Pérotin, V. (2016). What do we really know about worker co-operatives? Available at: https://www.uk.coop/sites/default/files/uploads/attachments/worker_co-op_report.pdf

11 C-operatives UK (2018). Gender pay gap report. Available at: https://www.co-operative.coop/ethics/gender-pay-gap-report

12 Pérotin, V. (2012). The performance of worker cooperatives. In P. Battilani & H. G. Schröter (Eds.) The Cooperative Business Movement. Cambridge, UK: Cambridge University Press

13 Mayo E (2015). The Co-operative Advantage: Innovation, co-operation and why sharing business ownership is good for Britain. Manchester: Co-operatives UK.

14 Thornton, E., Litchfield, A., Brooks, S., Britt, R. & Hitchin, J. (2019). Community Business Fund evaluation: Interim report. Available at: https://www.powertochange.org.uk/wp-content/uploads/2019/03/CB-funding-Evaluation-DIGITAL.pdf

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1.1.12 Co-operatives, as well as other types of social business have a role to play in the continuing development of Greater Manchester‟s economy and communities. To successfully develop the co- operative economy further, a combination of awareness-raising, active support, and the removal of barriers is required. The recommendations made in this report are measures which we believe will change things for the better, enabling co-operatives to enhance life for all living in Greater Manchester.

1.2 Co-operation in Greater Manchester

1.2.1 Rochdale in Greater Manchester is commonly credited with being the birthplace of the international co-operative movement. In 1844, a group of 28 local people founded the Rochdale Society of Equitable Pioneers and opened a store to sell food and household items at affordable prices in a time when working people were increasingly being pushed into poverty due to how business was operating in the context of the Industrial Revolution18. The Pioneers developed their own set of Principles which were the foundation of those followed today by co-operatives across the globe.

1.2.2 Today, Greater Manchester is home to almost 300 co-operative organisations across a range of industries (see case study A for some examples), including the Co-operative Group – the UK‟s largest consumer co-operative19. Co-operatives with their headquarters in Greater Manchester collectively have an annual turnover of more than £1.5 billion, employ over 66,000 people, and have almost 5million members20. The city-region is also home to the Co-operative College21 providing education for individuals and organisations, as well as conducting international research, with the co- operative values at the heart of all projects, as well as the national association Co-operatives UK, which unites, develops and promotes co-operatives.

15 Plunkett Foundation (2019). Community shops: A better form of business. Available at: https://plunkett.co.uk/wp- content/uploads/PF_BB_SHOPS19_web-version-1.pdf

16 Dellot, B., & Wallace-Stephens, F. (2017). The self-organising self-employed: Empowering grassroots collaboration in the new economy. Available at: https://www.fsb.org.uk/docs/default-source/fsb-org-uk/self-organising-self-employed---final.pdf

17 Directorate-General for Competition (European Commission) (2017). Study on producer organisations and their activities in the olive oil, beef and veal, arable crops sectors. Available at https://op.europa.eu/en/publication-detail/-/publication/de1d238b-28f9- 11e9-8d04-01aa75ed71a1

18 Co-operative Heritage Trust (n.d.) Co-operative Heritage Trust. Available at: https://www.co-operativeheritage.coop/

19 Co-operatives UK (2019). The Co-operative Economy. Available at: https://www.uk.coop/open-data

20 Ibid

21 https://www.co-op.ac.uk/

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Case Study A - Co-operation in Greater Manchester

Some of the local examples of co-operation and innovation within Greater Manchester‟s communities examined by the Commission included:

Inspiring Communities Together (ICT)22 was established as the successor vehicle to the New Deal for communities regeneration programme in April 2011. Since 2014 the organisation became a Charitable Incorporated Organisation using the membership model (anyone who lives, works or volunteers in Charlestown and/or Lower Kersal and neighbouring districts can apply to become a member). Core funding for the organisation comes via the payment of an annual annuity and the organisation also secures funding through grants and contracted work.

ICT has been successful in securing development funding from the Government‟s Community-led Housing Fund. They will partner with the Seedley and Langworthy Trust to set up a partnership or joint venture organisation, in order to develop 20 new homes across 2 sites working with Salford City Council. The model of community-led housing will focus on young people under the age of 35, who despite working, are unable to afford to rent or buy locally; Salford people living in unsuitable housing; people having a minimum of 5 years‟ connection to Salford; and people who feel that they belong to, participate in and will continue to be part of the local community. All tenants in the scheme will become members of ICT.

ICT and the Seedley and Langworthy Trust have both invested some of their reserves into the feasibility work, but will apply to Phase 2 of the national Community Housing Fund, supported by investment from Power to Change and the GM Housing Investment Fund. In order to repay this investment capital, ICT will take out a mortgage on completion through a social investment company.

The managing organisation is completely embedded in the community and place. ICT has an annual survey of local residents and engages continuously with local people. That gives both intelligence and builds trust. The gap in the local housing market that this

22 https://www.inspiringcommunitiestogether.co.uk/

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project aims to address was identified by local people.

Rochdale Boroughwide Housing23 (RBH) is the UK‟s first tenant and employee co-owned mutual housing society, with over 13,000 homes throughout the local area. By working together they aim to provide better places for members, tenants and employees to live and work.

Drawing on the area‟s rich co-operative heritage, this pioneering model places members at the heart of decision-making, and the values and management arrangements at RBH are aligned with the international co-operative principles. RBH is governed by a board of directors and a representative body. The board is responsible for the overall management of the society and the delivery of services, while the representative body sets the strategy and direction and is responsible for appointing (and removing) the board of directors.

The representative body is elected from and by tenant and employee members, putting members at the heart of RBH decision-making.

RBH also sees itself as an „anchor‟ in the local community, leading by example in terms of generating local co-operation, partnerships and projects all with a focus on local benefit. It has formed „Rochdale Stronger Together‟, which aims to bring residents, communities, local institutions and businesses together to forge a good local economy and spread community wealth24.

Unicorn Grocery25 – Unicorn Grocery Worker Co-operative based in Chorlton, Manchester was established in 1996 to provide high quality, tasty, wholesome food at affordable prices. It offers a genuine alternative to the conventional supermarkets and attempts to trade more responsibly; its range includes a huge choice of organic food, many low or no-packaging products, and fairly traded goods. Due to the success of the business in 2003 Unicorn was able to raise £350,000 from customer loan stock towards the 1 million needed to purchase their own premises and later invested in 21 acres of local land to grow produce for the store, plant 100s of meters of hedgerows to provide habitat for wildlife and produce green energy through 60 solar panels.

The store prides itself on being a hub for the community, offering opportunities for schools to learn about growing and selling decent, affordable produce as well as helping others who may wish to develop their own business with the freely available Grow a Grocery Guide.

23 https://www.rbh.org.uk/

24 https://rochdalestrongertogether.org.uk/about/

25 https://www.unicorn-grocery.coop/

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Unicorn has continued to grow in strength, was named „Best Food Retailer‟ at the 2017 BBC Food & Farming Awards and 'Best Food and Drink Retailer' at the 2019 Manchester Food and Drink Festival. Last year, the co-operative employed around 70 and had a turnover of £7.5 million.

Salford Community Leisure (SCL) is registered under the Co-operatives and Community Benefit Societies Act 2014. An independent legal entity, separate from Salford City Council, Salford Community Leisure Limited is a community benefit society with charitable status which exists “to enhance the lives of people through sport, leisure and cultural opportunities”26. SCL employs over 500 people, 70% of whom live in the city.

SCL is owned by its members - customers, employees and local residents - who direct and support the company mission to "get everyone active". Each member holds one membership share of 1p. All members are invited to attend the Annual General Meeting with everyone aged 16 and over able to vote. Furthermore, SCL has created an innovative way of regularly engaging with its members through an online Leisure Advisory Board, which has around 1,000 participants.

SCL has adopted social accounting techniques to publish a regular social impact report27, ensuring accountability to its members and wider stakeholders.

Wigan Deal - In 2014, Wigan Council launched The Deal which is “an informal agreement between the council and everyone who lives or works in Wigan, to work together to create a better borough”28. The Deal is based on a number of principles that inform its approach. One of the primary principles is creating a “new relationship” of co-operation between all members of the community – from the council, its employees, and public sector workers to residents, community groups and local businesses. This work has seen investment in Credit Unions, local co-operatives and transfer of former Council assets, for example.

Abram Ward Community Cooperative - runs a variety of projects across all ages, from

26 https://www.salfordcommunityleisure.co.uk/about-us/about-our-organisation

27 https://www.salfordcommunityleisure.co.uk/about-us

28 https://www.centreforpublicimpact.org/case-study/the-wigan-deal/

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dementia initiatives to developing digital projects in schools. The Deal for Communities Investment Fund has enabled them to bring together a range of social enterprises and community groups from across the borough, to tackle health and wellbeing issues via partnership working29.

1.2.3 However, whilst the co-operative movement in Greater Manchester has a long and rich history, co- operatives make up less than 0.5% of all businesses in the city-region. Whilst the revenue and employment figures look promising, the Co-operative Group make up the vast majority of both of these figures (more than 90%). .

1.2.4 It is clear that co-operative developments which have come about in other countries or other parts of the UK have not happened in Greater Manchester. There are examples, both nationally and internationally, where co-operatives play a much more fundamental part in the local economy than is seen in Greater Manchester. Spain, Italy and Sweden, amongst others, provide examples that Greater Manchester can learn from of how to implement a system that provides the opportunities for co-operatives to thrive30 (see Case Study B).

Case Study B - International Examples of Co-operation31

Spain: co-operatives schools – there is a well-developed co-operative sector in agriculture and retail in Spain, as well as co-operative schools in Catalonia. The co-operative movement in the country is thought to have benefited from:

A series of government policies designed to support the development of worker co-operatives

An established support network which facilitate the sharing of best practice, staff training and

29 https://www.wigan.gov.uk/Council/The-Deal/Deal-Communities/Big-ideas.aspx

30 Bland J. (2011). Time to get serious: International lessons for developing public service mutual. Available at: https://www.uk.coop/resources/time-get-serious-international-lessons-developing-public-service-mutuals

31 Adapted from Bland J. (2011). Time to get serious: International lessons for developing public service mutual. Available at: https://www.uk.coop/resources/time-get-serious-international-lessons-developing-public-service-mutuals

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development and expert support (e.g. on legal issues, lobbying the Government etc.).

Italy: social co-operatives - There are over 7,000 social co-operatives in Italy that

provide a range of essential social care, health and educational services as well as create employment opportunities for disadvantaged groups who may be excluded from the labour market (such as disabled people, people with substance misuse issues or ex-offenders). Success factors identified in Italian social co-operatives include:

A clearly defined legal structure (including tax and other incentives for the added social value co-operatives offer)

Proactive procurement policies and strong partnership relationships with local authorities

Social co-operatives pay a lower level of corporation tax

Access to finance through local authorities or specialist banks

A strong organisational model through consortia and federation bodies

Sweden: children‟s day care co-operatives - Co-operative provision of children‟s day care developed in Sweden in the 1980‟s as a response to the growing demand for services and the inability of local authorities to provide sufficient capacity. Success has been suggested to be because of:

Support and advice provided by specialist co-operative development agencies – which have been supported and funded by the Swedish Government

A well-established support network, which again is supported by Government funding

1.2.5 Greater Manchester, like other city regions, faces significant challenges to which co-operation might provide a solution. To support the continued development of the co-operative movement in Greater Manchester, Labour and Co-operative Mayor of Greater Manchester, Andy Burnham announced the Greater Manchester Co-operative Commission, an independent panel to ensure that Greater Manchester Combined Authority (GMCA) is getting the optimum benefits from the opportunities that co-operatives can bring to the local economy and communities across the city-region.

1.2.6 The Commission seeks to illustrate how co-operatives can effectively contribute to the achievement of the ambitions of the Greater Manchester Strategy - to make Greater Manchester one of the best places in the world to grow up, get on and grow old – by making it one of the most co-operative places in the UK.

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“Greater Manchester should be the most co-operative region in the UK and the most natural place for new co-ops and social enterprises to start and thrive. This is a very strong commitment to ensure we do that to ultimately benefit the lives of people and businesses across the city-region.” – Mayor of Greater Manchester, Andy Burnham

1.3 Strategic Opportunities for Development of the Co-operative Movement Across Greater Manchester

1.3.1 Parliament‟s devolution of substantial powers and budgets to the GMCA with an elected Mayor represents a significant development in local democracy and provides a powerful platform to explore and establish different ways of doing things. As in other parts of the UK and elsewhere around the world, the devolution of power to a sub-national and therefore more local level can be seen as responding to two contemporary needs:

 A place-based approach which enables statutory bodies in a region to work pro-actively together in responding to local needs and priorities  bringing strategic and future planning much closer to where people live and work, combined with a significant degree of local autonomy through devolved powers and budgets.

1.3.2 Whilst devolution is a radical and bold legislative step to take and undoubtedly provides in its own right a significant platform for change, on its own it is only part of the story. It is only when citizens, communities, local enterprise and the public sector all engage and work collaboratively, that the opportunities provided by devolution for real and fundamental change can be maximised and driven forwards.

1.3.3 The Commission was launched at a time when there are many strategic opportunities for citizens and communities to play a part in making Greater Manchester a better place through the establishment and development of co-operatives and other social businesses. These strategic opportunities include:

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1.3.4 The Greater Manchester Strategy – The refreshed Greater Manchester Strategy32 was published following the election of the Mayor of Greater Manchester, Andy Burnham. The overarching ambition of the strategy is to make Greater Manchester one of the best places in the world to grow up, get on and grow old. Ten priorities set out a number of ambitious targets and references the pioneering work of the co-operative movement in helping to achieve this aim. The Greater Manchester Strategy covers a wide range of aspects which affect people‟s daily lives including health, wellbeing, work and jobs, housing, transport, safer and stronger communities, skills, training and economic growth, and emphasises the vital role that communities play in the success of the city-region. Organisations established by people in communities, such as co-operatives and social businesses, can play an important role in securing their engagement and contribution to the success of the region.

1.3.5 Greater Manchester Local Industrial Strategy - 2019 saw the publication of Greater Manchester‟s Local Industrial Strategy33 which outlines the long-term policy priorities to help guide industrial development and provides a plan for good jobs and growth in Greater Manchester. The Local Industrial Strategy sets out a commitment to “…create the optimum conditions for social enterprises and cooperatives to thrive”. The Strategy recognises that co-operative organisations sit within a wider context of other business models which are value-based and focus on creating social impact.

1.3.6 Greater Manchester’s Plan for homes, Jobs and the Environment: Greater Manchester’s Spatial Framework – The Spatial Framework34 is a strategic plan to ensure that the right land is available in the right places to provide the homes and jobs the city-region needs. The plan will identify the infrastructure – such as transport, schools, health centres, utility networks and green spaces – required to achieve this. The Spatial Framework will ensure strong communities are being built, and are places that people want to live in, feel they belong to, and are proud to call home. To support this work, the plan needs to include appropriate provision for co-operatives. Consultation on the next draft of the framework, which is being produced by all 10 of Greater Manchester‟s local authorities working together in partnership, will take place in summer 2020.

32 Greater Manchester Combined Authority (2017). Our People, Our Place: The Greater Manchester Strategy. Available at: https://www.greatermanchester-ca.gov.uk/media/1084/greater_manchester_summary___full_version.pdf

33 HM Government & Greater Manchester Combined Authority (2019). Greater Manchester Local Industrial Strategy. Available at: https://www.greatermanchester-ca.gov.uk/media/2132/gm-local-industrial-strategy-web.pdf

34 Greater Manchester Combined Authority (2019). Greater Manchester‟s Plan for homes, Jobs and the Environment: Greater Manchester‟s Spatial Framework Revised draft – January 2019. Available at: https://www.greatermanchester-ca.gov.uk/what-we-do/housing/greater- manchester-spatial-framework/gmsf-full-plan/

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1.3.7 Greater Manchester Housing Strategy: Greater Manchester – Doing Housing Differently - the Greater Manchester Housing Strategy35 identifies safe, decent and affordable housing as a priority so that homes fit the needs and aspirations of current and future citizens. It sets strategic actions at a city-region level, designed to maximise the impact of our collective efforts and to complement the huge amount of work and investment going on every day at district and neighbourhood level. The Strategy is built on understanding the connections between housing, people and place, the need to invest in existing homes, and the importance of building the new homes that Greater Manchester needs. The Strategy states the need to explore alternative housing models, including co-operative community ownership and community-led housing projects, with recognition of the social benefits that these models can bring to communities to increase community resilience, social cohesion and tackle loneliness as well as providing affordable and decent housing to residents of all ages.

1.3.8 Greater Manchester Transport Strategy 2040: A sustainable urban mobility plan for the future – In 2017, Transport for Greater Manchester published, on behalf of GMCA and Greater Manchester Local Enterprise Partnership, a long-term framework to improve transport across Greater Manchester focused on creating an integrated, sustainable and well co-ordinated transport system36. The Strategy aims to create a cleaner, greener, more prosperous Greater Manchester, through better connections and simpler travel. In the short term, the plan aims to improve reliability and accessibility of services, transport links to key employment, education and training locations, passenger experience and facilities, cycle and pedestrian environments in towns and cities, as well as connectivity between neighbourhoods. Co-operatives and social businesses offer an alternative option in providing community transport, particularly in areas which may have lost services because the routes are not commercially viable, yet are fundamental to the people living in these communities.

35 Greater Manchester combined Authority (2019). Greater Manchester housing Strategy: Greater Manchester – Doing Housing Differently. Available at: https://www.google.co.uk/url?sa=t&rct=j&q=&esrc=s&source=web&cd=3&cad=rja&uact=8&ved=2ahUKEwju2PiPo4rlAhVOQEEAHT3DDEcQFjA CegQIBRAH&url=https%3A%2F%2Fwww.greatermanchester- ca.gov.uk%2Fmedia%2F2165%2F16a_gm_housing_strategy_final.pdf&usg=AOvVaw1OH_wr00DH6RlmfTx6ii-O

36 Transport for Greater Manchester (2017). Greater Manchester Transport Strategy 2040: A sustainable urban mobility plan for the future. Available at: https://downloads.contentful.com/nv7y93idf4jq/7FiejTsJ68eaa8wQw8MiWw/bc4f3a45f6685148eba2acb618c2424f/03._GM_2040_TS_Full.pdf

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1.3.9 Greater Manchester Resilience Strategy – The Greater Manchester Resilience Strategy, is currently being developed and is due to be launched in late 2019. The strategy will confirm Greater Manchester as a world leading city region in the development of resilience, outlining Greater Manchester‟s ambitions to become more resilient to the physical, social and economic challenges that are a growing part of the 21st century. The strategy will include response to disasters and emergencies, such as earthquakes, fires and floods, as well as the stresses that affect the day to day resilience of the city-region, such as high unemployment, an inefficient public transport system, health inequalities, or skill shortages. A fundamental aspect to resilience is the maintenance of corporate diversity; a plurality of business forms, rather than a monoculture of investor-owned corporations37. Following the financial crisis in 2008, mutual financial institutions were recognised as fulfilling an important function because their shares were not traded on a stock exchange, and their business model meant they did not have the same incentives to pursue high risk financial products to generate shareholder value38. Co-operative organisations have also been found to be

37 The Ownership Commission (2012). Plurality, stewardship and engagement. Available at: http://www.mutuo.coop/wp- content/uploads/2012/03/Ownership-commission-2012.pdf

38 Michie, J. (2010). Promoting corporate diversity in the financial services sector. Available at: https://www.financialmutuals.org/files/files/Corporate_Diversity_Report.pdf

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more likely to be financially stable39 and actually demonstrated a healthy turnover and business growth40. This is important in helping to build economic resilience of a city-region such as Greater Manchester to not only withstand crisis but to main the livelihoods of citizens and communities in times of crisis.

1.3.10 The reforming of public services to better meet the needs of the people of Greater Manchester – Greater Manchester is committed to reshaping services used by the public, supporting as many people as possible to contribute to, and benefit from, the opportunities growth brings. It involves local services working more closely together, focussed on people and place, so that available services meet all the needs of people, are intervening as early as possible and not responding to crises. The approach moves beyond single initiatives, and service silos, to whole system reform. There is a focus on integrated place-based services at a neighbourhood level, that are able to respond to local need and build on the assets of the community. This means one front line team, knowing the area that they work in and what other services are available to communities. The reform places a greater emphasis on evaluation and generating good evidence, to track the impact that investments have on residents and on levels of demand for public services. Key priorities for reform across the life course have been identified, and include: school readiness, life readiness, homelessness and ageing well. The delivery of these priorities is underpinned by a number of system enablers, including leadership and workforce reform, shared financial resources, and digital and information sharing capability. Co-operatives need to be part of the future landscapes of public services.

1.3.11 The Greater Manchester Good Employment Charter – The city-region‟s Good Employment Charter41 encourages and supports employers to develop good jobs, deliver opportunities for people to progress, and help employers to grow and succeed. The model for the charter has been co-designed by business owners, employers, Trade Unions and employees from across Greater Manchester, and involved two public consultations to develop and agree the proposals. Employers will be supported to raise standards across a number of areas, including secure work, a real living wage and excellent recruitment and progression, with a tiered approach to help them progress. Co- operative values align well with what Greater Manchester is trying to achieve through the Good Employment Charter, illustrating the natural link between co-operatives and Greater Manchester‟s ambitions for improving working rights for staff and increasing the number of ethical businesses in the city-region.

39 Matrix Evidence (2010). The employee ownership effect: a review of the evidence. London, Employee Ownership Association

40 Birchall, J. & Ketilson (2009). Resilience of the co-operative business model in times of crisis. Available at: https://www.google.co.uk/url?sa=t&rct=j&q=&esrc=s&source=web&cd=1&ved=2ahUKEwi25_TCmMHlAhWllFwKHU6gAuMQFjAAegQIARAH&url =https%3A%2F%2Fwww.ilo.org%2Fwcmsp5%2Fgroups%2Fpublic%2F---ed_emp%2F--- emp_ent%2Fdocuments%2Fpublication%2Fwcms_108416.pdf&usg=AOvVaw1XlkOx0Bg4ziLwSkuENGTO

41 Greater Manchester Combined Authority (2019). Greater Manchester Good Employment Charter. Available at: https://www.gmgoodemploymentcharter.co.uk/

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1.4 The Greater Manchester Co-operative Commission

1.4.1 The Greater Manchester Co-operative Commission considered:

 Existing evidence of how the role of the co-operative and mutual sector42 supports the region generally and the greater benefits which it could generate for Greater Manchester  How Greater Manchester can build from pioneering and innovating work in the region and beyond, and the business advice and support needed to support it  How Greater Manchester can overcome the challenges and address the barriers that impede this approach to business, and deter its citizens and communities in optimising their contribution to their communities

1.4.2 The Commission also examined how the sector can support the delivery of the Greater Manchester Strategy, exploring three opportunity sectors for co-operative business and working, plus a cross cutting theme of co-operative business development. The opportunity areas explored were:  Housing  Digital economy  Transport

1.4.3 The Commission’s full Terms of Reference can be found in Appendix A.

1.4.4 The Commission was Chaired by Cllr Allen Brett, Leader of Rochdale Borough Council and Vice Chaired by Cllr Angeliki Stogia. Nine independent Commissioners were appointed with the aim of bringing a wide range of experience and expertise from across the co-operative movement. The nine Commissioners were (full biographies of the Commissioners can be found in Appendix B):

Cliff Mills, Consultant - Anthony Collins Solicitors

David Batten, Chair – Credit Unions for Greater Manchester

James Wright, Policy Officer - Co-operatives UK

Jo Platt, Former Labour and Co-operative MP for Leigh

Kellie Bubble, Director - Unicorn Grocery

Mike Blackburn OBE, Chair - Greater Manchester Local Enterprise Partnership

Paul Gerrard, Campaigns and Public Affairs Director - Co-operative Group

42 A mutual is a private organisation that is owned by its customers, policy holders or employees. Onefamily (2019). What is a mutual. Available at: https://www.onefamily.com/talking-finance/finance/what-is-a-mutual/

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Shaun Fensom - Cooperative Network Infrastructure

Simon Parkinson, Chief Executive and Principal - Co-operative College UK

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2. Informing the Commission

2.1 To inform the Commission, a formal Call for Evidence was launched (see Appendix C for full details), providing individuals and organisations with the opportunity to directly contribute on the Commission‟s Key Lines of Enquiry and opportunity areas. A total of 46 responses were received, two from individuals and the rest from organisations. A wide range of organisations from a wide range of sectors provided evidence, including small, local businesses to large, international organisations.

2.2 To complement the formal Call for Evidence, a desktop review of data and research has been analysed. This included a review of both national and international literature, as well as a review of the ongoing work across Greater Manchester. For each opportunity area, a designated meeting was held to discuss and debate the evidence received and guest speakers with expertise in the area were invited to present evidence to the Commission43. This information was used to facilitate discussion, debate and ultimately to inform the findings of the Commission, supporting the recommendations made.

2.3 From the evidence gathered, it was clear that there are a number of overarching themes that affect all of the opportunity areas. Therefore, the findings and recommendations are grouped based on three key areas:  Creating conditions for co-operatives to thrive  Increasing co-operation between people in communities and organisations both public and private  Enabling people to see how they can play a significant part in improving communities across Greater Manchester through the co-operative approach to business.

2.4 A number of additional considerations for the individual opportunity areas are then discussed.

43 A list of individuals who presented evidence to the Commission and the titles of their presentations can be found in Appendix D

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3. What are the key barriers and challenges to co-operative development?

3.1 Co-operative and social businesses remain a small part of the business sector in Greater Manchester; suggesting that the city-region has not benefitted from co-operatives being an integrated part of the economy in the way that other cities have. Part of the reason for this is a lack of knowledge and know-how among those who could find the model beneficial, in communities as well as among entrepreneurs, workers and businesses. Another reason is that there are often barriers and challenges that are not experienced by investor-owned businesses. The key challenges identified include:

3.1.1 There is a lack of real awareness and practical understanding of alternatives to traditional business, and the opportunities for co-operative and social business, among those establishing new

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businesses and crucially those who advise them.

3.1.2 There is a perception that the challenges and complexities involved in the co-operative or social business option outweigh the benefits and, therefore, the option is not adequately explored.

3.1.3 The mainstream service provision available to businesses (advisors on finance, accounting, law, governance and regulation) are professionally trained in one tradition only, namely private investor- ownership, and do not include social businesses. Therefore, they tend to advise people to develop a business based on the traditional or default route and when they work with somebody interested in social business, advisors are often not necessarily equipped to advise properly. Appropriate sources of advice are therefore limited.

3.1.4 The distinct legal and organisational structure of co-operatives can create challenges for investment and lending for banks, public and private sector investors, credit reference agencies and people doing due diligence, because they are not familiar with the different purpose of such organisations, and their different strengths.

3.1.5 The purpose and ownership structure of co-operatives are incompatible with some established approaches to financing businesses, including angel investment and venture capital.

3.1.6 Often a co-operative approach is not considered as a mainstream option in strategy development, if at all. This results in missed opportunities to make use of the valuable alternatives which citizen and community-based engagement offer. It is effectively one of the barriers faced by co-operatives.

3.2 The remainder of this report aims to illustrate ways which Greater Manchester can effectively remove or reduce the impact of these barriers and challenges to open up opportunities to co- operatives that are readily available to other forms of businesses.

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4. Creating the Conditions for Co-operatives to Thrive

4.1 In order to help people to be able to play a part much more easily in meeting local needs through co-operative and social business, whether as users, workers, residents or volunteers, Greater Manchester needs to do more to create conditions where such enterprises can not only exist but thrive. In order for Greater Manchester to effectively overcome the barriers and challenges faced, five key charges are needed:

 Increased political leadership  New approaches to public sector procurement  Legal reform  Increasing financial enablers  Greater Manchester should be designated as a Co-operative Zone with a dedicated resource to offer business advice and support for both existing co-operatives and those who wish to start or convert to a co-operative approach

4.2 Increased political leadership

4.2.1 Greater Manchester already has strong political leadership that recognises the value that co- operatives bring to both the local economy and the added social value achieved in communities with both the Mayor of Greater Manchester, Andy Burnham being a member of the Co-operative Party and Cllr. Allen Brett holding the Greater Manchester portfolio for the Community, Voluntary Sector and Co-operatives. However, there remain numerous opportunities to increase Greater Manchester‟s political leadership for co-operative development. In 2002, the United Nations recommended that Governments should support co-operatives44, and later proclaimed 2012 as the international year of cooperatives.

4.2.2 The strongest co-operative economies tend to be those where this form of enterprise is constitutionally recognised as an approach to business45 which can be done at national or sub- national level. By expressly acknowledging it as a distinct form of business with inherent community benefits and which aims to spread the distribution of power, wealth and wellbeing more broadly, it

44 Resolution 193 of the International Labour Organization recognising “the importance of cooperatives in job creation … their contribution to the economy, …that coopeatives promote the fullest participation in the economic and social development of all people, … recalling the principle … that „labour is not a commodity‟, … that the realization of decent work for workers everywhere is a primary objective of the International Labour Organization” … recommends that “Measures should be adopted to promote the potential of cooperatives in all countries …” Available at: https://www.ilo.org/dyn/normlex/en/f?p=NORMLEXPUB:12100:0::NO::P12100_ILO_CODE:R193 and https://www.ilo.org/empent/Publications/WCMS_311447/lang--en/index.htm

45 Douvitsa,I. (2018). National constitutions and cooperatives: An overview. International Journal of Cooperative Law, 1, pp 128-147.

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provides an essential starting point for that economy to treat such businesses appropriately, and incentivise them where they could have particular benefits to that economy. This is a sure test of whether a region understands and is willing to actively and strategically support co-operative and social business.

4.2.3 The Co-operative Councils Innovation Network (CCIN) is a non-party political active hub which supports co-operative policy development, new ways of thinking and support for UK councils to find better ways of working for, and with, communities. Currently Oldham Council, Rochdale Borough Council, Tameside Metropolitan Borough Council and Salford City Council are members of the CCIN, and GMCA is an associate member.

4.2.4 It is important that co-operative, member-based and other community or social business options are considered at the stage of strategic development. Co-operatives are now starting to appear in a number of high profile Greater Manchester strategies (including the Housing and Local Industrial Strategies referred to above), and further opportunities in upcoming strategies (including the Spatial Framework, and those relating to taxi and bus reform in Greater Manchester) must be seized.

4.3 Reform of public sector procurement

4.3.1 Challenges have been identified which can negatively impact the willingness and ability of co- operatives to tender for public sector contracts. This means that the opportunity of a citizen or community-based co-operative approach is lost to the region. The Commission have identified two key areas in public sector procurement, which, if reformed, would make the procurement market more accessible to co-operatives:

 Increased flexibility which allows co-operation, partnerships and collaboration including making it easier for a consortium to bid – whilst procurement rules allow for a consortium of businesses to bid without a „lead‟ bidder, the way that procurement occurs in practice making it very difficult for a consortium to bid unless it is led by a „prime contractor‟ that subcontracts the other consortium members and ends up carrying all or most of the risk. This presents challenges for consortia made up of smaller organisations. The consortium approach helps the SME sector because smaller organisations generally do not have the capacity and capability to compete for public sector contracts alone. There is an opportunity to use the co-operative model as a legal construct to make it easy for SMEs to work together to co-operate, bid for and win, public sector procurements while sharing risk and without one-sided subcontractor arrangements.  Placing more emphasis on the added social value of a contract – Good procurement does not tack on to it social value as simply an element of added value but is policy-led taking into account the contracting authority‟s corporate aims for the social, economic and environmental well-being of those whom it seeks to serve as individuals, communities and society. There is the opportunity to better align the way that the public-sector commissions services and other goods in ways that embrace the Co-operative Principles, as these are aligned with such objectives. This is best

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achieved by the adoption of policy that puts these principles at the heart of a public body‟s constitution and policies, transcribing them into the corporate strategy of that organisation. An approach that could be taken might be for the public body to:

 adopt the values of self-help, self-responsibility, democracy, equality, equity, and solidarity  promote democracy in the governance of the organisations it does business with, on the basis that this is consistent with their own governance and ways of doing things - to the extent that they have not done so, to change their own constitution so that democracy is embedded within it  promote contribution of capital to business which benefits the community rather than investors, as a way of addressing social injustice  encourage autonomy as a principle that enables self-sufficiency  facilitate education and training for the general public - particularly young people and opinion leaders - about the nature and benefits of co-operation  work together with co-operatives in their area  work for the sustainable development of their communities through policies approved by local people

The adoption of such aims in the corporate strategy of a public body (especially all councils in the Greater Manchester city-region) can then be implemented in its procurement strategy which would then inform its practice.

The EU procurement rules are not a barrier to good practice in this arena. Instead there is cultural and practical resistance, as well as lack of expertise, to adopting processes and devising public purchasing practice that optimises opportunities for SMEs, charities, social enterprises and cooperatives. Much of this has come about with reductions in resources on the commissioning side of many authorities.

4.4 Legal enablers

4.4.1 Improving UK Co-operative Law – although the UK was one of the earliest to legislate for co- operatives, dating back to 1852, currently it lags far behind the majority of other European jurisdictions in defining, and protecting co-operative identity. Given the current interest in reviewing company law to take account of different priorities, the importance of optimising cooperative law increases. A recent important piece of work in setting down the principles of European co-operative law provides valuable assistance in this context.

4.4.2 As a result of the current state of UK co-operative law, co-operatives are treated no differently from other registered corporate entities. This means that citizens and communities have no incentive to use one of the most appropriate mechanisms for self-help and empowerment. New and small

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businesses struggle to access finance to grow and develop4647, however, co-operatives face the additional challenges that:

 they are limited in how they can raise capital from external sources  those usually providing financial advice often lack the knowledge and expertise of the co-operative way of working and funding. This can mean that advice is either simply not available, or it is not really appropriate for the context

4.4.3 Reviewing company law - political opinion is again seeking a review of company law in order to change its priorities. The Commission feel that is an appropriate thing to do, however, it also makes sense to turn people‟s attention to business structures that already set different priorities: namely co-operatives. In its Blueprint for a Co-operative Decade48, the International Co-operative Alliance argued that co-operatives were already making a significant contribution to alleviating damaging global trends including environmental degradation, increasing inequality and an unstable financial sector, but that supportive legal frameworks for co-operatives were a priority for co-operative growth.

4.5 Improving access to sustainable finance –

4.5.1 Increasing the number of financial and business advisors, that have knowledge of the co- operative model – as there are few advisors who have the knowledge and expertise to appropriately give advice to co-operatives, this resource should be pooled in Greater Manchester to make it easier for co-operatives operating in the city-region to access the advice.

4.5.2 Increased collaboration with larger or more established organisations who are able to take more financial risks – often co-operatives are set up as the only such organisation in a region and/or sector, and could benefit from collaborating with other larger or more established co- operatives in the area. These more established organisations may be in a better position to access, or assist in accessing, finance as they are seen as less of a financial risk. A Greater Manchester Co- operative Zone would provide more opportunities for new co-operatives to look for other organisations to collaborate with and for existing organisations for opportunities to join into new ventures and support new co-operatives.

46 House of Commons (2018). SME finance: Twenty-fourth report of session 2017-19. Available at https://publications.parliament.uk/pa/cm201719/cmselect/cmtreasy/805/805.pd

47 FSB (2018). Going for growth: Helping small firms flourish through access to finance. Available at https://www.fsb.org.uk/docs/default- source/fsb-org-uk/going-for-growth-final.pdf?sfvrsn=de620821_0

48 International Co-operative Alliance (2013). Blueprint for a co-operative Decade. Available at: https://www.ica.coop/sites/default/files/publication-files/ica-blueprint-final-feb-13-english-569977274.pdf

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4.6 The Development of Greater Manchester as a Co-operative Zone – to help support the development of the conditions which would allow co-operatives in Greater Manchester to thrive, Greater Manchester should become a Co-operative Zone. As part of this there should be a dedicated resource which would provide a „one stop shop‟ for co-operative business advice (see Figure 1). It would provide financial, business and legal advice and support, as well as providing opportunities for knowledge exchange and peer learning between co-operatives. This would increase the accessibility of the right support at lower cost, facilitating the sharing of best practice and lessons learnt.

Financial opportunities

Specialist Mutual support business support networks and and progressive brokerage mainstream Economic support Impact, Community Empowerment and Social Innovation, Value Data, infrastructure intelligence and and ‘pop-up’ co- Intellectual ops Property Bank

Conversion of existing businesses

Figure 1: An illustration of what the Greater Manchester Co-operative Zone could provide advice and support on.

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Recommendations to help to create the conditions for co- operatives to thrive in Greater Manchester

1. Call for the review and strengthening of co-operative law in the UK alongside any review of company law.

2. The constitution of Greater Manchester Combined Authority to expressly recognise co- operative and social business for the benefits they bring to an economy in keeping with International Labour Organization recommendation 193; and that GMCA should encourage the 10 Greater Manchester local authorities to do likewise.

3. GMCA should establish a democratic charter articulating the values of self-help, self- responsibility, equality, equity and solidarity. The Charter should promote the involvement of users, employees, volunteers and citizens in the provision of goods and services in the city- region and encourage the 10 Greater Manchester local authorities, Transport for Greater Manchester, Greater Manchester Health and Social Care Partnership and other relevant organisations in the region to sign up to it.

4. All of Greater Manchester‟s local authorities should consider becoming members of the CCIN.

5. All Greater Manchester and local authority strategies to include consideration of how the engagement of citizens and communities through co-operatives and co-operation can help to deliver the strategy and how this can be facilitated in associated delivery plans.

6. A „study tour‟ should be organised so Greater Manchester‟s policy makers can learn from places where cooperative innovation is playing a large part in re-invigorating local democracy and economic regeneration – this includes both in the UK and nationally.

7. Support small organisations in Greater Manchester to co-operate in the delivery of public contracts, specifically by creating a legal/organisational solution for such co-operation, to be accompanied by guidance/support for organisations to make use of it.

8. An up-to-date toolkit and learning programme being devised to address this.

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9. All contracting authorities in the Greater Manchester giving consideration to the adoption of the principles to place more emphasis on the added social value of a contract – in their corporate strategies so that they can they then be used to inform commissioning and procurement practice.

10. Procurement officers receiving training on the benefits of the cooperative as a legal form for a stable supplier of services, especially in terms of financial strength.

11. More capacity-building being provided to enable cooperatives to bid effectively in the public procurement arena.

12. The Greater Manchester Co-operative Zone to work with banks and other financial organisations to help reduce the barriers to co-operatives accessing finance.

13. Actively promote the funding of community-based initiatives through community share offers, exploring the option of a Greater Manchester community investment platform.

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5. Co-operation in Communities

5.1 Greater Manchester has taken a radical approach to reforming services used by communities within the city-region. This is to ensure that services needed and used by communities are joined up and co-ordinated in communities where the people live, and are designed in collaboration with the people who live there. This strategic approach offers opportunities for collaboration between a wider range of people, organisations and agencies than traditional centralised services allow. The co-operative approach to services provides a mechanism by which individuals and communities can take their own initiatives to meet local needs, and these can complement Greater Manchester‟s public service reform principles well; however, this needs to be explained to people, with sign- posting to appropriate advice.

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5.2 Whilst there are opportunities for the further development of co-operatives across Greater Manchester, there may be a particular need for them in some of the city-regions most deprived areas. Greater Manchester has areas of great affluence and great poverty, often within a few miles of each other. 23% of Greater Manchester‟s neighbourhoods are ranked in the 10% most deprived neighbourhoods in the country49. Research recently published by Power to Change and CLES50 highlights the conditions needed for community businesses to form and thrive in deprived communities. They find that the right interconnections of social value, local activity and knowledge are essential prerequisites in the formation of community businesses in contexts of deprivation. The researchers found that while all deprived communities studied contained above average levels of one kind of social capital (”bonding capital51”) this needs to be augmented to „bridging‟ and „linking‟ social capitals, which in turn introduce essential skills, knowledge, and economic capitals to the mix. The researchers recommend funding initiatives that nurture, mobilise and augment social capital, in order to create more fertile conditions for community businesses to form.

5.3 The climate crisis is a further reason why co-operatives are becoming significantly more important and relevant at a local, national and international level. With the rapid rise in awareness of this crisis and the recognition of the need to take steps in response, there is an inevitable and necessary focus on the activities and behaviours of large corporations. Whereas previously the pursuit of shareholder value has struck many as questionable, the voices of those saying that it needs to change are growing louder52,53; co-operatives provide an opportunity to help in Greater Manchester‟s response to the climate crisis and the city-region‟s ambition to be carbon neutral by the year 203854.

49 Ministry of Housing, Communities and Local Government (2019). English indices of deprivation 2019. Available at: https://www.gov.uk/government/statistics/english-indices-of-deprivation-2019

50 Power to Change & CLES (2019). Building an inclusive economy through community business: The role of social capital and agency in community business formation in deprived communities. Available at: https://www.powertochange.org.uk/wp- content/uploads/2019/10/P2C-and-CLES-final-high-res-web.pdf

51 Bonding capital – “Ties between individuals within the same social group, associated with local communities where many people know many other people in the group (network closure). Can have both positive and negative manifestations and implications for social exclusion.” Ibid, p.5

52 Thunberg, G. (2019). Speech delivered at the World Economic Forum, Davos. Available at: https://www.weforum.org/agenda/2019/01/our- house-is-on-fire-16-year-old-greta-thunberg-speaks-truth-to-power/

53 Breeden, S. (2019). Speech delivered at the Official Monetary & Financial Institutions Forum, London. Available at: https://www.bankofengland.co.uk/speech/2019/sarah-breeden-omfif

54 Greater Manchester Combined Authority (2019). 5 year environment plan for Greater Manchester. Available at: https://www.greatermanchester-ca.gov.uk/media/1986/5-year-plan-branded_3.pdf

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5.4 To improve co-operation in Greater Manchester’s communities, five key changes are required:

 An increase in community-led, placed based approaches to community ownership and economic development  Promotion of the benefits that credit unions can offer to individuals  Improved support for communities to understand their co-operative options  An increased focus on evaluation  Increasing the diversity of co-operative members and users

5.5 Demonstrating the social value that co-operatives offer to communities - the term „social value‟ has been used to mean different things in different situations across Greater Manchester. The Social Value Act describes social, environmental and economic value which can be gained through procurement, but there is an opportunity to think more broadly about the creation of social, environmental and economic outcomes through responsible business and inclusive growth, as well as procurement, with the potential benefits to society being huge.

5.6 Enabling this „social wellbeing‟ involves a way of operating whereby an organisation manages the resources that it controls, draws in investment, and acts as a responsible employer so that it achieves both value for money and generates benefits to society and the economy, whilst making positive impacts (or at least minimising damage) for the environment. The aim would be to use all the resources available to an organisation or business to increase their overall positive impact. An organisation can improve wellbeing directly through its own actions, and indirectly through its supply chain, influencing others, as well as through collaborative work with partners.

5.7 Co-operatives are a mechanism for creating this „social wellbeing‟ as it is an intrinsic part of their way of working and conducting business. Their operation involves an ideal combination of community empowerment, commercial activity, and social and environmental benefit.

5.8 There is a need for an increased focus on community-led, place based approaches to community ownership and economic development – across Greater Manchester, the UK and indeed the world there are excellent examples of how beneficial co-operative options can be for communities (see Case Studies C for some local examples). Many smaller towns and suburbs have seen a decline in their local area, including a decline in shops on highstreets, of places to socialise including pubs, restaurants, sport facilities, libraries and community centres, and of affordable and decent housing. Research55 has shown that many towns and cities across the UK have failed to host any new wealth creation following deindustrialisation; this includes some of Greater Manchester‟s

55 Pike et al. (2016). Uneven growth: Tackling city decline. Available at: https://www.jrf.org.uk/file/48934/download?token=H_som823&filetype=full-report

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towns and cities. Where wealth has come into towns and cities, many communities have not benefited from this additional of wealth leading to marked inequalities56. In other places, communities have taken ownership themselves through community share offers and community asset transfer powers. Greater Manchester could also benefit from this approach, both to secure valued community assets and facilities for future generations, and to engage residents in local ownership and regeneration.

5.9 In Cleveland, entrepreneur Ted Howard has helped set up worker co-operatives to supply local institutions – such as hospitals, councils and universities – in order to keep profit localised. Redirecting local spending for community wealth through the use of worker co-operatives has now become known as “the Cleveland model”57 – and cities around the world suffering the negative effects of globalisation are looking to it to help them recover.

5.10 In Lancashire, Preston City Council has taken this approach and applied it towards its insourcing strategy, as part of an initiative to build community wealth. Other notable local examples include Salford‟s Community Leisure and Aspire for Intelligent Care and Support, and Rochdale Boroughwide Housing.

5.11 The Mayor of Greater Manchester has previously indicated his support for this approach, where commissioning and procurement policy drives the market development.

Case Study C – co-operation in communities

Co-operate App - Last year The Co-op Group started to look into how they could help to drive community co-operation and the initial exploration and trials showed that a combination of people and technology can make it easier for people to co-operate. Research reaffirmed the problem: people find it hard to connect and make things happen in their local community.

56 Co-operatives UK (2019). Shared power, shared prosperity. Available at: https://www.uk.coop/sites/default/files/uploads/attachments/shared_power_shared_prosperity_1.pdf

57 Community-Wealth.org (n.d.). The Cleveland Model: How the evergreen cooperatives build community wealth. Available at: https://community-wealth.org/content/cleveland-model-how-evergreen-cooperatives-build-community-wealth

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The vision is to be the one place to go to make things happen in local communities. This could include tools and advice that support funding, promotion, skills development and the ability to find a space.

What has been achieved so far?

As a result of listening and observing, the Co-operate App pulls together local events and activities that benefit the local community, it‟s a kind of digital noticeboard called „What‟s happening‟. The app is currently active in four communities (Stretford, Sale, Urmston and Bollington) and expansion into Trafford is imminent.

In Stretford the app has:

Reached over 21,000 visits (with 1,000 return visitors)

Had over 150 events listed

Achieved 40 voluntary hours across Stretford and Sale

Tenant Management Organisations (TMOs) - Avro Hollows TMO, Manchester58 or Windsor Albion Co-operative, Salford59, and West Whitlawburn Estate60. A tenant management organisation is made up of council or housing association tenants and leaseholders can collectively take responsibility for managing the homes they live in. Examples also exist of this type of resident-led management in the private sector. The Cypress Point estate in Lytham St Anne‟s for example has a residents‟ management company which oversees the expenditure of fees paid by residents of the estate for the upkeep of its green spaces. Having a „stake‟ in the management of property and the local environment means that residents take more care of their local area.

Active travel – for example the Bicycle Doctor61 in Rusholme. Cycle share and hire schemes have increased in number in recent years and could offer an opportunity as part of the work of Chris Boardman, the Greater Manchester‟s first Cycling and Walking Commissioner.

58 http://www.avrohollowstmo.com/

59 http://www.windsoralbion.co.uk/

60 http://www.wwhc.org.uk/

61 https://www.bicycledoctor.co.uk/

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Infrastructure co-operatives - Cooperative Network Infrastructure62, which brings together public and private sector organisations to create and share new digital infrastructure in and around Tameside and Blackpool, using co-operative principles.

5.12 There needs to be more promotion of credit unions and the benefits they can offer to Greater Manchester’s residents - Credit unions have almost 65,000 members across Greater Manchester, with over £28 million in savings between them63; however, research suggests that they are a relatively underused resource in comparison to other European countries. Credit unions can provide access to sustainable and affordable finance and whilst they are open to everyone, because they are mutual benefit organisations, they can offer finance options to people who might struggle to access finance from more traditional routes (e.g. banks) or from finance with large rates of interests (such as payday loans). It is estimated that, in 2018, members of credit unions across the city-region saved £7.5 million in loan interest by borrowing from a credit union rather than high-cost or doorstep lending64.

5.13 Communities across Greater Manchester need to be supported to understand and explore their co- operative options for work, business, local services and infrastructure – placed based approaches to ownership cannot happen if the community do not know about the co-operative model and ownership opportunities. Whilst the Greater Manchester Co-operative Zone will be an opportunity to showcase the good work already underway, there needs to be increased opportunities for members of the public to interact with co-operatives to see first-hand the way the business model works and the impact that it can have on the person‟s community.

5.14 Measure and evaluate the benefits of co-operatives in communities as well as measuring the number of people engaging with and affected by co-operatives – classic measures of the success of the co-operative sector often focus on traditional measures of economic growth such as market- share, turn-over, or numbers of co-operatives; however, these are not an effective way to measure the impact of co-operatives on individual people, communities and the wider locality. Whilst the

62 https://cni.coop/

63 Association of British Credit Unions Limited (2019). Beat the heat: Credit union awareness week. Available at: https://www.abcul.coop/blogs/patrick-thorpe/2019/06/28/beat-the-heat-of-high-cost-credit-say-soundpound

64 Ibid

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simple scale of operation is an important indicator, a broader approach is needed to assess the impact of co-operatives and growth of the sector in Greater Manchester.

5.15 Increasing diversity in the co-operative movement – the co-operative movement in Greater Manchester does not reflect the make-up of the communities across the city-region. In order to ensure that the member-based approach can thrive and help to meet the needs of Greater Manchester‟s diverse communities, co-operatives need to involve a more diverse group of people. Embedding co-operatives in Greater Manchester‟s Public Service Reform principles will support this however, co-operative and social businesses need to be embedded in economic development and entrepreneurship that is community led, prioritising the participation of people in the most deprived areas of Greater Manchester. This supports the commitment in the Greater Manchester Local Industrial Strategy to “revitalise town centres and high streets by supporting creatives, digital entrepreneurs, and innovators to start or scale a business, social or cooperative enterprise”.

Recommendations for increasing co-operation in Greater Manchester’s communities

14. Actively encourage the participation of the co-operative sector and individual co- operatives in Bridge GM and the GM Enterprise Adviser Network to improve awareness and understanding of co-operatives.

15. The need for a strategic approach of the co-operative sector that includes all relevant organisations across Greater Manchester, this includes a co-ordinated media campaign between the Co-op Group, Co-ops UK and relevant partners, which is aimed at the general public about the value of co-operatives in Greater Manchester, including promoting the success of local community ownership schemes, including the benefit of credit unions.

16. The Mayor of Greater Manchester should lobby Government for the relaxation of capital requirements and to request a review of the Credit Union Act; this would enable credit unions to provide more financial services to a wider range of people.

17. Greater Manchester should develop practical ways to evaluate, understand and celebrate the benefits co-operatives generate for their members and their communities. These benefits might include decent livelihoods, access to opportunities, the availability of socially beneficial products and services and the creation and recirculation of locally controlled wealth. They might also include being more responsive and flexible in meeting local needs, building local engagement, capacity and community aspiration. Approaches would need to assess both the quality of these benefits and also how broadly these benefits are shared.

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18. In implementing the Greater Manchester Local Industrial Strategy, the GMCA should empower place-based partnerships of residents, local businesses and community organisations to design and implement initiatives for skills, livelihoods, enterprise development and infrastructure. The focus should be on nurturing, mobilising and connecting social capital alongside economic capital. This could draw in emerging practice in „community-led economic development‟65, such as the EU‟s little-known „Community Led Local Development‟ model66, as well as recent and ongoing community-led economic development pilots that utilise of co-operative and community business models.

19. Greater Manchester local authorities should consider alternative forms of social provision, including strategic use of co-operatives (service user and/or staff led), local social enterprises and socially driven SMEs as part of their commissioning and provider arrangements in order to maximise social and economic benefits.

20. To enable credit unions to provide more financial services to a wider range of people, the Mayor of Greater Manchester should lobby Government for:  a relaxation of capital requirements  maintenance of proportionate regulation  a review of the Credit Union Act  investment in credit unions

65 Department for Communities and Local Government and Co-operatives UK (2017). Community Economic Development: Lessons from two years‟ action research. Available at: https://www.uk.coop/sites/default/files/uploads/attachments/ced_report_2017.pdf

66 European Commission (2014). Community Led Local Development. Available at: https://ec.europa.eu/regional_policy/sources/docgener/informat/2014/community_en.pdf

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6. Supporting the Co-operative Business Model

6.1 The Commission found evidence which highlighted the need for business support to be available throughout the life cycle of a business. Co-operatives are a distinct approach to doing business and as a result, their advice and support needs are distinct from other businesses as well.

6.2 As previously outlined, there is an issue with the accessibility of appropriate advice and support; especially for potential founders of new co-operatives and for smaller co-operatives, in Greater Manchester and across the UK. Most people advising entrepreneurs and businesses, whether offered for free on public contracts or selling their services in the market, lack any practical understanding of the difference types of co-operative options available.

6.3 Furthermore, the small number of programmes that do offer free support covering co-operative options are restricted in the type of co-operative they can help. For example, Power to Change‟s Bright Ideas Fund67 only offers support to community businesses. Furthermore, the likelihood that potential and existing co-operatives will have access to the right expertise at the right time, is also hampered by the small and shrinking pool of co-operative development expertise in the UK.

6.4 To combat some of these difficulties, a number of national programmes have been developed to provide subsidised advice and support from expert co-operative development practitioners (see Case Study D). Such organisations provide opportunities for close working with the proposed Greater Manchester‟s Co-operative , as well as other established business support organisations (such as the Greater Manchester Chamber of Commerce Greater Manchester Centre for Voluntary Organisation and the Greater Manchester Growth Hub) to develop a more bespoke offer at a city- region level as well as provide additional support that this not covered in national offers.

67 My Community (2019). Bright Ideas Fund. Available at: https://mycommunity.org.uk/funding-options/bright- ideas-fund/?gclid=EAIaIQobChMI0orC_of55QIVmK3tCh1Aown2EAAYAiAAEgIQTPD_BwE

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Case Study D – support for co-operatives

The Hive68 - The Hive is a support programme for co-operatives delivered by Co-operatives UK in partnership with the Co-operative Bank. It supports people who are looking to set-up a new or grow an existing co-operative, and provides free online resources as well as up to 12 days bespoke support, training and mentoring.

There are 3 pathways of support – for start-ups and recently incorporated co-ops, for existing co-ops looking to grow and develop, and finally for existing businesses looking to convert to co- operative or community ownership. The Hive also contains a directory of Co-ops, encourages collaboration, and publishes case studies and other resources for co-operative business. The Hive has already supported 700 enterprises across the UK, created 50 new co-ops, and reached out to a huge number of new communities encouraging their involvement in co-operative working.

An example of a local business supported by the Hive is Projekts MCR69; a skatepark based in Manchester city centre. It received support from The Hive to help with its ambitious plans to expand, making it the largest managed skatepark in the UK. In 2018, Projects MCR successfully raised £134,388 from its 70 member investors in order to expand spectator and cafe spaces and allow the skatepark to build more ramps.

Projekts MCR set up as a co-operative back in 2004, transforming a disused land under a busy flyover into a vital space for Manchester‟s community of skateboarders – who until then, had nowhere else to go.

The skatepark works with all parts of the community and, as well as being open to the public through the week, there are sessions for under 16s, adults, women-only nights, beginner classes, home-schooled children and more. Coaches also go out to schools to run lunch time and after-school clubs across Greater Manchester.

The Plunkett Foundation - Founded in 1919 and with a history of nurturing co-operation in farming, today the Plunkett Foundation supports rural communities across the UK to tackle the issues they face through community businesses. To date the Foundation have supported almost 600 community businesses to reach trading stage in the UK.

These are owned and run democratically by members of the community, on behalf of the community and include shops, pubs, woodlands and anything that lends itself to community ownership.

The “More than a pub” programme, which is funded by Power to Change, is delivered by

68 https://www.uk.coop/the-hive/

69 https://www.projektsmcr.com/

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Plunkett, to help communities who wish to take ownership of their local pub and run it for the benefit of the community.

6.5 No business, co-operative or otherwise, can succeed without the right skills, knowledge and knowhow. A key benefit of a co-operative approach is how it allows these inputs to be pooled from a broader community. For example, the success of community co-operatives usually depends in part on the participation, often on a voluntary basis, of members who can contribute useful skills, knowledge and knowhow, which they often transfer from another part of their life. However, like any businesses, co-operatives will benefit from receiving the right support at the right time, to enhance their skills, knowledge and knowhow and to help them adopt the tools and processes that will increase their efficacy.

6.6 To support co-operative business through the whole of the business life cycle, five specific areas of support are required:  Support for commercial businesses to convert to a co-operative approach  Support for co-operative businesses to understand the market and the needs of the consumer  All Greater Manchester co-operatives should work towards the principles laid out in the Greater Manchester Good Employment Charter  To support the awareness raising of co-operative ways of working, Greater Manchester co- operatives should actively engage with initiatives which teach and develop young people about business  Supporting co-operatives to measure, understand and celebrate the impact that they have

6.7 Support for commercial businesses to convert to a co-operative approach – There are significant opportunities to grow the co-operative economy by supporting more existing businesses to convert to co-operative ownership, particularly as part of planned ownership succession. The number of „family-owned‟ SMEs likely to undergo a transfer of ownership in the next decade could be 100,000s70. However, evidence suggests that only one in three family businesses in the UK have a robust succession plan71. Weak succession planning risks the survival of businesses and the loss of decision-making, jobs and capital from the local economy. Yet at the same time, some business owners are motivated to secure the long-term survival of their business after they exit. This is often

70 New Economics Foundation (2018). Co-operatives unleashed: Doubling the size of the UK's co-operative sector. Available at: https://neweconomics.org/2018/07/co-operatives-unleased

71 PWC UK (2016). UK family firms bullish about growth, but may underestimate the impact of short-term challenges. Available at: https://www.pwc.co.uk/press-room/press-releases/UKfamilyfirmsbullishaboutgrowthbutmayunderestimatethimpactofshort- termchallenges.html

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cited as a motivation of business owners who choose to sell their business to their workers72 . In Scotland and Wales, government programmes promote and support conversion to worker ownership and evidence is clear that when business owners are helped to plan for succession and explore worker buyouts as an option, more conversions happen73; this needs to be explored in Greater Manchester and England more broadly.

6.8 Support for co-operative businesses to understand the market and the needs of the consumer – there are various reasons why people choose to do business with an organisation. One of the reasons why consumers choose co-operatives is because of the additional social value that can be offered. Research suggests that people are more willing now to pay more for sustainable goods74 and brands with a commitment to sustainability are showing a more sustained growth than brands who do not make such commitments75. Support to gain a better understanding of the consumer market – including competitors, gaps in market provision and an understanding of consumers will be beneficial for co-operatives to know where to target their marketing and to help inform decisions about location of business, expansion opportunities in different sectors or communities. A successful co-operative needs to achieve a balance of both being a viable business and creating wider social impact.

6.9 All Greater Manchester co-operatives should work towards the principles laid out in the Greater Manchester Good Employment Charter – the Greater Manchester Good Employment Charter compliments the values and principles of the co-operative way of working. There is evidence that co-operatives makes good employers, with higher levels of job satisfaction76 and evidence of higher pay and benefit employee benefits77. It therefore makes sense that co-operatives work towards the principles outlined in the Charter to ensure ethical practices for all employees.

6.10 To support the awareness raising of co-operative ways of working, Greater Manchester co- operatives should actively engage with initiatives which teach and develop young people about business – to increase the awareness of co-operatives and social business in younger people,

72 Co-operative Development Scotland (n.d.). Employee ownership: A successful succession solution. Available at: employee ownership a successful succession solution

73 Co-operatives UK (2019). One million employee and worker owners by 2030: A proposal for the 2019 Comprehensive Spending Review. Available at: https://www.uk.coop/sites/default/files/uploads/attachments/one_million_owners_policy_proposal_1.pdf

74 Nielson (2015). The sustainability imperative: New insights on consumer expectations. Available at: https://www.nielsen.com/wp- content/uploads/sites/3/2019/04/global-sustainability-report-oct-2015.pdf

75 Ibid

76 Pérotin, V (2014). Worker cooperatives: good, sustainable jobs in the community. Journal of Entrepreneurial and Organizational Diversity, 2 (2), pp. 34–47

77 Matrix Evidence (2010). The employee ownership effect: a review of the evidence. London: Employee Ownership Association

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which will work to effectively diversify the people who work and are members of co-operatives, co- operatives across the city-region should engage with the opportunities offered at a Greater Manchester level to provide work experience young people, giving them direct experience of co- operative ways of working. There are already a number of established mechanisms that co- operatives can engage with, such as Bridge GM and apprenticeships.

6.11 The need for evaluation support – Evidence suggests that co-operative businesses are more resilient in the first five years of their life cycle compared to other types of business78. There is also evidence linking worker ownership and control to enhanced commercial performance79. However, small businesses including co-operatives can struggle to concretely evidence the financial and social benefits of their business model, making it difficult to evidence success to prospective entrepreneur, in bids for funding or in bids for public sector contracts. Research illustrates that traditional, capitalist based models of business have a negative effect on both people80 and the environment81, this provides an opportunity for co-operatives to illustrate the additional benefits they offer. Support for evidencing financial, social and environmental benefits needs to be a fundamental part of the business support that is offered in the Greater Manchester Co-operative Zone. Support could be offered to help social businesses evidence value added in terms of organisation performance (including commercial performance, efficacy in meeting member‟s needs), productivity and wider economic, social and environmental impacts. It could also support with measuring impacts on inequalities of income, wealth and power.

78 Co-operatives UK (2019). Co-operative business survival. Available at: https://www.uk.coop/sites/default/files/uploads/attachments/co- operative_survival_1.pdf

79 Fakhfakh, F., Pérotin, V., & Gago, M. (2011). Productivity, Capital and Labor in Labor-Managed and Conventional Firms. Available at: https://www.researchgate.net/profile/Fathi_Fakhfakh/publication/281599834_Productivity_Capital_and_Labor_in_Labor- Managed_and_Conventional_Firms/links/55f6923b08ae63926cf5152a/Productivity-Capital-and-Labor-in-Labor-Managed-and-Conventional- Firms.pdf

80 Coad A. & Binder. M. (2014). Causal linkages between work and life satisfaction and their determinants in a structural VAR approach. Available at: http://www.levyinstitute.org/pubs/wp_809.pdf

81 World Economic Forum (2019). White Paper: Responsible ownership – reshaping business as a force for good. Available at: http://www3.weforum.org/docs/WEF_FBC_Responsible_Ownership_Report.pdf

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Recommendations for ways in which Greater Manchester can support the co-operative business model

21. Greater Manchester Co-operative Zone to work with the GMCA, the Greater Manchester Chamber of Commerce, Greater Manchester Centre for Voluntary Organisation, Manchester Digital and the Greater Manchester Growth Hub to equip business advisors with a basic practical understanding of co-operative approaches.

22. The Greater Manchester Co-operative Zone to help „family owned‟ SMEs in Greater Manchester plan for ownership succession and explore conversion to co-operative ownership as a succession option; and to provide access to expert support when business leaders and their workers decide a co-operative conversion is the right option.

23. The Greater Manchester Co-operative Zone to work with the co-operative and mainstream business advice sectors to improve access to expert advice and support for co- ops in the city-region, including business planning, organisational design, culture, governance and HR capability.

24. The Greater Manchester Co-operative Zone to facilitate co-operation between co- operatives in Greater Manchester.

25. A piece of research is needed into the detailed market opportunities which exist in Greater Manchester for co-operatives, including emerging sectors, localities and communities across the city-region

26. All Greater Manchester co-operatives should aim to work towards the principles in the Greater Manchester Good Employment Charter in order to demonstrate their commitment to employees and members

27. Co-operatives across Greater Manchester need to be supported to offer work experience opportunities through Bridge GM and to consider the benefits of the Apprenticeship Levy to support the development of apprentices in co-operative businesses and the Greater Manchester Co-operative Zone to advertise these opportunities

28. Greater Manchester should lead on developing a city-region version of the pioneering

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SMART co-operative (see Case Study M). A Greater Manchester version could draw on the Belgian experience adapted to the unique conditions in the city-region and the UK. This could draw together „freelancers‟ and people in precarious employment into a powerful economic unit.

29. The Greater Manchester Co-operative Zone must provide evaluation support so that the co-operative sector can prove its collective value. This would support individual co-operatives can use tools and business approaches, to measure and evaluate the benefits they create for their members and their communities, including „social accounting‟, to „prove, improve and be accountable‟ for the social value.

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7. Co-operation the Commission’s Three Opportunity Areas

7.1 From the three opportunity areas which the Commission looked at, a number of sector specific challenges were identified which need to be addressed to enable citizens and communities in Greater Manchester to engage in finding their own solutions.

7.2 Co-operative opportunities to improve Greater Manchester’s housing options

7.2.1 The average selling price of a house in Greater Manchester in November 2019 was just over £200,00082; a 3.43% rise compared to November 201883. With fewer people being able to afford their own home, a greater proportion of Greater Manchester residents are privately renting than ever before84. This has led to a significant increase in rental costs across the city region as landlords seize the opportunity to increase profit margins85. Co-operatives provide an ideal opportunity for tenants to have control over their housing through co-operative ownership to maintain a decent standing of living at an affordable cost86

7.2.2 Mutual based social housing – within Greater Manchester is the first tenant and employee-owned social housing provider (e.g. Rochdale Boroughwide Housing). This is a pioneering example of a citizen, user and employee-based organisation, separate from the state in terms of ownership and control, but carrying on business for the benefit of the community.

7.2.3 Access to land and / or housing stock – evidence reviewed by the Commission found that there is often difficulty in accessing land or housing stock to use for community housing. This is mainly because the stock that is available and affordable is often sold to cash buyers or at auction and citizens and communities struggle to access finance quick enough to compete with investors.

82 Zoopla (2019). House prices in Greater Manchester. Available at: https://www.zoopla.co.uk/house-prices/greater-manchester/

83 Ibid

84 Office of National Statistics (2011). 2011 Census data. Available at: https://www.ons.gov.uk/census/2011census/2011censusdata

85 Valuation Office Agency (2017). Private rental market statistics. Available at: https://www.gov.uk/government/collections/private-rental- market-statistics#2018

86 Sumner, K. (2016). Building for generation rent: How a co-owned, co-operative model can solve the housing crisis. Available at: https://policynetwork.org/publications/papers/building-for-generation-rent

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7.2.4 The need for a specific Greater Manchester Community Housing Hub – in addition to the Greater Manchester Co-operative Zone, there is an identified need for additional support to be available for community housing projects. This would provide expert advice to citizens and communities on property and land purchase, development and access to financial advice. It would also provide an opportunity for organisations to collaborate on housing projects, or for larger organisations to support new initiatives.

7.2.5 Research by the Commission has identified the following broad areas of innovation where co- operative solutions provide options for filling gaps in the Greater Manchester housing market (see Case Study E):

 Eco-friendly homes – Many community housing schemes are also exemplars on energy efficiency.  Housing support for specific communities – other schemes meets the needs of specific groups of people, for example students or older people.  Community-led retrofitting of existing properties – the Commission also received evidence about the importance of retrofitting older properties, and how this was made more affordable through collective and co-operative action  There are opportunities for co-operatives to become more involved in resident finance around housing such as investment, the underwriting of eviction prevention measures or private rent deposit loans (e.g. through services provided by credit unions).

Case Study E – co-operative innovation in the housing sector

Mutual Home Ownership Society co-operatives – Lilac (Low Impact Living Affordable Community)87 – an example of a co-housing community of 20 eco-build households in West Leeds, where the homes and land are managed by residents through a Mutual Home Ownership Society, a pioneering financial model. Lilac aims to be affordable and low impact in terms of the environment. Homes for Change88, in Hulme is a fully mutual housing Co-op – which means that every tenant and prospective tenant is a member of the co-op. Rather than paying rent to someone else, members of a housing co-op are both tenant and landlord as they own a share in the co-op and aims to own and manage its own property. Homes for Change also features co-operative workspaces. Both Lilac and Homes for Change are business models

87 https://www.lilac.coop/

88 https://www.homesforchange.co.uk/

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which could be replicated.

Co-operative student accommodation - co-operative housing for students, where a group of students come together as a co-operative and are both landlord and tenant, provide opportunities for accommodation without the substantial margins charged by private landlords. Student Co-op Homes89 is the national body for student housing co‑op, giving students the opportunity to have affordable and decent living conditions, improve wellbeing, gain valuable life skills, learn co-operative values and contribute to building a sustainable co- operative economy. An example can be seen in Edinburgh Student Housing Co-operative90, the UK‟s largest student-run housing co-op.

Co-operative accommodation for older people - Older Women‟s Co-Housing Project91 where a group of women over fifty have created their own community in a new, purpose-built block of flats in North London, as an alternative to living alone, they have friendly, helpful neighbours.

Community-led retrofitting of existing properties - Carbon co-op92 – A scheme based in Greater Manchester which aims to reduce carbon omissions by helping residents to make their homes more energy efficient. This may include smaller measures to help resident understand and reduce their energy consumption, such as installing smart meters, or larger scale projects, such as whole building retrofits to make older, energy inefficient building more energy efficient.

7.2.6 Furthermore, housing co-operative networks (for example, Radical Routes93 and the Confederation of Co-operative Housing94) have been shown to support sector growth, and should be encouraged if individual co-operative and community housing schemes were to flourish.

89 https://www.studenthomes.coop/

90 https://www.eshc.coop/

91 http://www.owch.org.uk/

92 https://carbon.coop/

93 https://www.radicalroutes.org.uk/

94 http://www.cch.coop/

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Recommendations for seizing the co-operative opportunities to improve Greater Manchester’s housing options

30. The GMCA should explore the application of mutual and member ownership in social housing, including through the Greater Manchester Housing Strategy.

31. Requirements for co-operative and community ownership of housing should be embedded into Greater Manchester and local Housing Strategies, including the Greater Manchester Spatial Framework and local plans. This would include consideration of strategic planning, land allocation and economic strategy to incentivise co-operative and community housing models.

32. The Commission supports the proposal of a Greater Manchester Community Housing Hub and recommends that the GMCA and all relevant housing organisations also pledge their support.

33. The GMCA, Mayor of Greater Manchester and Mayor of Salford to lobby government for continuation of national Community Housing Fund.

7.3 Co-operative opportunities to improve Greater Manchester’s transport links

7.3.1 The Commission looked at a number of international examples of where transport planning is co- operative – for example taxi co-operatives in the USA9596 and Canada97, and co-operative bus routes in Israel98. There are also many examples of co-operatives providing fundamental transport services to communities across the UK. The main benefits associated with community-led and co-operative transport were found to include:  Reducing emissions and congestion  Managing demand better

95 http://www.rideaustin.com/#proud

96 https://www.shareable.net/cabby-owned-taxi-cooperatives-on-the-rise/

97 https://co-opcabs.com/

98 http://www.egged.co.il/homepage.aspx

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 Enabling modal shift from polluting cars to greener and public transport  Making public money go further  Building local economic resilience

7.3.2 The Commission also examined examples of where progressive trade unions are working to support local co-operatives, for example the Drive co-operative in Wales99.

7.3.3 Community transport across Greater Manchester provides an ideal opportunity for growing the co- operative sector.

7.3.4 Opportunities around Greater Manchester’s bus reform programme – Greater Manchester is currently reviewing its approach to commissioning bus services. This provides a real opportunity for community-based initiatives to provide routes that are commercially viable as well as those that are needed by communities but not viable without voluntary support or other subsidisation (see Case Studies F).

Case Study F - Co-operative Community Transport

Harwich Connexions100 provides a range of community services in the Harwich area of Essex working in partnership with other local organisations, and West Oxford Community Transport101 which works with the local community to deliver sustainable public transport services through a not-for-profit organisation. In this way, local bus services have an important role in maintaining an active and engaged community by providing the necessary links for all residents.

7.3.5 Social care transport – transport for social care needs is another area where individuals and communities can help to provide a local service. Non-emergency patient transport services provide eligible patients who require planned, non-emergency treatment with free transport to an NHS

99 https://www.cardiff-times.co.uk/new-co-operative-puts-the-power-back-in-the-hands-of-the-drive/)

100 http://www.harwichconnexions.co.uk/cms/

101 http://www.woct.org.uk/#xl_xr_page_index

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site102, often in the form of ambulances, taxies and minibuses103 at a cost of over £150million to the NHS each year104. There are opportunities here for community-based initiatives that could reduce costs to the public purse and provide a better experience for the user.

7.3.6 Taxis and Private Hire Vehicles - the taxi and private hire market is undergoing significant change nationally. The development of „taxi apps‟ has led to a change in behaviour of how people use private hire transport105. This presents an opportunity for co-operatives to provide a role in delivering private hire services that improve access to taxi services for communities but also provide better working conditions for drivers in light of wide scale criticism of the treatment of workers of large scale „self-employed‟ taxi driver schemes. There are already a number of co-operatives who have aimed to bridge this gap in other parts of the UK, Greater Manchester can learn from and build on these existing models to provide a community-based taxi service for the city region (see Case Studies G).

Case Study G - Taxi co-operatives

Taxi App UK run by black cab drivers in London and City Cabs in Edinburgh, have been set up on co-operative principles to provide better employment conditions for drivers and also to compete with other corporate and large scale app-based taxi services.

7.3.7 Rail - Community Rail Partnerships, groups of committed and dedicated people who work with the rail industry and local authorities to promote the line and improve stations, train services, bus links and access, are co-operative arrangements to increase community involvement and democratic accountability of local rail services. Whilst currently most are located in rural communities, (Lancashire, for example, has 5 community rail partnerships), this model could be developed for use in Greater Manchester.

102 Urban Transport Group & Community Transport Association (2017). Total transport: A better approach to commissioning non-emergency patient transport? Available at: http://www.urbantransportgroup.org/system/files/general- docs/UTG%20CTA%20Total%20Transport%20Report%20FINAL_0.pdf

103 Ibid

104 Ibid

105 Harding, S., Kandlikar, M., & Gulati, S. (2016). Taxi apps, regulation, and the market for taxi journeys. Transportation Research Part A, 88, pp. 15-25.

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7.3.8 Car and cycle Sharing and Business Vehicle Use – to help to reduce carbon emissions, congestion and reduce the cost to the user, car and bicycle sharing schemes and bicycle hire schemes have seen a rise in the UK in recent years106. Local co-operatives have started to explore the opportunities here, including Salford City Council (see Case Study H).

Case Study H - Car Sharing and Business Vehicle Use

Co-Wheels Car Club107 which has a branch in Salford sees low emission and electric vehicles being available for use by Council employees during working hours, and also for hire by local residents in the evenings and weekends. The Council has shown both financial savings and a net reduction in carbon emissions through the use of this scheme.

7.3.9 Electric vehicle charging points - in spite of almost 60,000 new cars being sold in the UK being electric vehicles (2.5% of all new car sales)108, there is a known lack of charging point, with only 28,685 charging points across the whole of the UK at just 10,381 locations109; with more than 300 charge points across Greater Manchester110. Co-operatives may be able to support the development of the infrastructure needed and ongoing supply of charging points across the city region (see Case Study I).

106 Comouk (2019). Shared bikes. Available at: https://como.org.uk/shared-mobility/shared-bikes/where/

107 https://www.co-wheels.org.uk/

108 Society of Motor Manufacturers and Traders (2019). Car Registrations. Available at: https://www.smmt.co.uk/vehicle-data/car- registrations/

109 ZapMap (2019). Charging point statistics 2019. Available at: https://www.zap-map.com/statistics/

110 Cleanairgm.com (n.d.). Electric vehicles. Available at: https://cleanairgm.com/electric-vehicles

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Case Study I - Electrical Charging Points

Charge My Street111 has been a community-led crowd funding scheme to bring electric vehicle charging points into communities, which Greater Manchester may wish to replicate.

Recommendations for seizing the co-operative opportunities to improve Greater Manchester’s transport links

34. Transport for Greater Manchester to carry out a place-based pilot programme for the development of community-owned „total transport‟ business models / community transport to link up with shared modes and mainstream network as part of the ongoing work around bus reform.

35. Transport for Greater Manchester, the Greater Manchester Health and Social Care Partnership, the GMCA as well as wider public sector partners should create opportunities and infrastructure for co-operative and community-led transport options through mainstream integrated transport planning.

36. Transport for Greater Manchester, the Greater Manchester Health and Social Care Partnership and the GMCA explore opportunities for co-operative approaches to support Greater Manchester‟s health and social care transport needs.

37. Greater Manchester could be an ideal market for the creation of a co-operative taxi app, encouraging all private hire taxi firms to join and creating a single app that works for all of Greater Manchester.

111 www.chargemystreet.co.uk

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7.4 Co-operative Opportunities to improve Greater Manchester’s digital infrastructure and use of technology

7.4.1 The vast majority of the digital technologies that are widely used and interacted with on a day to day basis are owned and controlled by private corporations; some of whom are very large and have significant impacts on local economies. However, the evidence reviewed by the Commission showed that there is huge potential in the digital sector for the development of co-operatives, both in Greater Manchester and nationally. There are good examples of co-operating at scale (see Case Study J).

Case Study J - Digital Co-operation on a Large Scale

The London Internet Exchange (LINX)112 is a mutually owned membership association for operators of Internet Protocol networks and is one of the largest Internet exchanges in the world, connecting more than 900 member autonomous system numbers from over 80 countries around the world.

7.4.2 The internet itself is a democratising force. It is inherently co-operative in its nature, enabling individuals to connect and collaborate with very low transaction costs. The technology offers massive potential for co-operation.

7.4.3 Examples of successful co-operative models used in the digital sector include (see Case Study K):

 Co-operatives to improve the digital infrastructure  Platform co-operatives which use the internet, in the form of a website or an app, to facilitate the exchange of goods or services, and act as a platform on which individuals or small companies can work co-operatively  Digital based services  Federated co-operative model - a group of co-operatives, often smaller and place-based, form and become members of „parent‟ co-operatives

112 https://www.linx.net/

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Case Study K – Digital Co-operatives

Infrastructure co-operatives - Cooperative Network Infrastructure113, using an innovative approach, Tameside Metropolitan Borough Council is working with partner organisations, including Manchester City Council and NHS trusts, to build a new, advanced digital infrastructure to serve public sector, businesses and citizens.

The „thin layer model‟ pioneered in Tameside facilitates rapid deployment of new, „full fibre‟ infrastructure, while avoiding some of the complications and downsides associated with other public sector demand aggregation, leveraged and co-investment models.

The thin layer model is pragmatic and „agile‟. Tameside, Blackpool, Manchester and their public sector partners invest in new infrastructure assets where a business case can be made to meet needs. Then those assets are sewn together to form a coherent, integrated infrastructure that can be shared using a co-operative. In general, the business case for each investment stands alone. By linking assets together into a shared network, the business case is multiplied.

Tameside MBC has been working with public sector partners including Tameside Hospital, the Pennine Care NHS trust, Tameside College and New Charter - the principal Registered Provider. Following consultations, including a successful soft market test and detailed state aid advice, Tameside is extending the model to include private sector partners.

DCMS and BDUK nominated Tameside to be one of six pilot „Wave 1‟ projects in its £200m Local Full Fibre Network Programme, and is encouraging other authorities to learn from and use the model.

The Tameside network is being extended as part of the „Wave 2‟ funding won by GMCA. Blackpool Council and Mid Sussex District Council have also won Wave 2 funding using the

113 https://cni.coop/

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model.

Fibre cooperatives – B4RN114 has extended state-of-the-art full fibre connectivity to villages and communities in Lancashire using a co-operative community ownership and investment model.

Platform co-operatives - Fairmondo115- what began in 2012 as a website selling ethical and environmentally friendly products in Germany now has over 2,000 members and sells its products all over the world.

Stocksy United116- a co-operative photo and video agency based in Canada

Backfeed117- Backfeed builds tools that enable large-scale, free and systematic co-operation between thousands of people without the co-ordination of any central authority.

Backfeed develops a decentralised protocol that relies on blockchain technologies to provide an indirect coordination mechanism for people to collaborate and cooperate.

Resonate118 - a “stream-to-own” music platform driven by blockchain technology, with both artists and listeners as members

Equal Care119 – a new, co-owned social care platform that puts care givers and receivers in charge

114 https://b4rn.org.uk/

115 https://www.fairmondo.uk

116 https://www.stocksy.com/

117 http://backfeed.cc/

118 https://resonate.is/

119 https://www.equalcare.coop/

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Digital based services

Graphics Co-operative120 – a co-operative graphic design company dedicated to supporting Scotland‟s third sector.

Outlandish121- a co-operative digital agency that designs web apps, data dashboards and monitoring tools, aiding the discovery of new insights from complex data, as well as developing mass-impact campaigns and websites.

Alpha Communications122 - a co-operative design and digital marketing business.

Federated co-operative model

Co-operative Technologists (Co-Tech)123 - is a network of worker co-operatives that sell tech/digital services. It aims to create a better technology sector in the UK that focuses primarily on worker, customer and end-user needs rather than on generating private profit.

Federated Co-operatives Limited124 - is a co-operative that supports other co-operatives that serve people in Western Canada. It is a wholesaling, manufacturing, marketing and administrative co-operative owned by more than 170 independent retail co-operative associations. These retail co-ops own and operate agro centres, food stores, gas bars/convenience stores and home centres.

120 https://graphics.coop/

121 https://outlandish.com/

122 https://alpha.coop/

123 https://www.coops.tech/

124 https://www.fcl.crs/

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7.4.4 Digital platforms have become a common business model in recent years, and lend themselves to a co-operative approach to ownership and governance. Some examples of specific opportunities where Great Manchester could potentially support new initiatives (see Case Study L):  Freelancer/gig economy support platform  Cycle courier/delivery services  Cleaning services

Case Study L – Platform Co-operatives

Freelancer/gig economy support platform - The SMART co-operative in Belgium125- often regarded as an inspiration for employment at scale in the „gig economy‟. SMART places the worker, bearer of economic and social value, at the centre of its mission so that the person can acquire social rights and develop their professional activities to the fullest.

Cycle courier/delivery services - CoopCycle126 - is the European federation of bike delivery coops. Governed democratically by co-operatives, it enables them to stand united and to reduce their costs thanks to resources pooling. It creates a strong bargaining power to protect the bikers‟ rights.

Cleaning Services – Up and Go127– a cleaning service in New York uses technology to provide a high quality and reliable cleaning service run on co-operative principles which provide improved working conditions and pay for its members and employees. All cleaners are co- owners of Up & Go, and support each other.

Responsible tourism - Fair BnB128 - a cooperative accommodation booking platform that promotes and funds local initiatives and projects.

125 https://smart.coop/

126 https://coopcycle.org/en/

127 https://www.upandgo.coop

128 https://fairbnb.coop

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7.4.5 A successful platform co-operative needs access to digital development skills. While potential founders may have these skills themselves, it‟s not always the case, so ready access to a pool of digital developers could be a very powerful asset in supporting rapid prototyping and validation of platform business models. As an already established centre of digital skills Greater Manchester could become a centre for platform co-operative development and incubation.

Recommendations for seizing Co-operative Opportunities to improve Greater Manchester’s digital infrastructure and use of technology

38. Consult on the creation of a Greater Manchester digital umbrella co-operative to facilitate formation of consortia for collaborative tendering and SME delivery of big digital projects. This would enable „pop-up‟ digital co-operatives to respond to shifting market opportunities and needs as well as facilitating resource sharing e.g. a pool of people with developer skills that companies could utilise when needed.

39. GMCA should work with the public and private sector to extend the cooperative neutral host model successfully pioneered in Tameside to other parts of Greater Manchester, aggregating digital infrastructure assets for public use and sharing them with digital and telecoms businesses, including locally based SMEs.

40. GMCA should launch a Greater Manchester-wide user-investment vehicle “Fibre GM” so that communities and business clusters can invest in full fibre and make it available to Internet Service Providers, including local and SME providers.

41. Apply the „Digital Exchange‟ notion used in Brighton and Tameside to create focal points for digital business development outside the city centre, using cooperatively- owned carrier-neutral access and hosting points based on the LINX ownership model.

42. Encourage collaboration in Greater Manchester on initiatives opportunities such as cooperative cloud - taking advantage of the lively digital sector, the strength of Coop Digital and CoTech members in Greater Manchester and wider.

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8. Concluding Remarks

8.1 The establishment of the GMCA – effectively a mechanism for 10 councils to work together co- operatively with an elected Mayor – creates an important platform for change. It opens up new opportunities to promote a different way of working in Greater Manchester, adopting co-operation and co-operative values into local communities and values into business. A dual focus on (1) participation by users, workers and citizens and (2) social impact will bring benefits to the city- region beyond those of traditional business productivity; the co-operative approach to business can open up new opportunities move into the spaces left vacant by market failure.

8.2 Greater Manchester has all the growing conditions for co-operation. The political awareness and will is there – the city-region is led by a Labour and Co-operative Mayor in Andy Burnham, Co-operative Councils and Councillors, all of whom are committed to driving the movement forward. GMCA itself is a collaboration between equal partners (the 10 Greater Manchester local authorities and the Mayor of Greater Manchester) and shares some characteristics with co-operatives.

8.3 There are the emerging strategic drivers in the establishment of the GMCA and its Greater Manchester Strategy, the Local Industrial Strategy, and opportunities to develop further across health and social care, housing, transport and environmental agendas. These strategies provide the hooks for investment and activity aimed at transforming people‟s lives and strengthening the economy through a different approach to service provision which is taking root elsewhere.

8.4 Greater Manchester has the opportunities for co-operatives. The original co-op shop was set up to meet a need in the consumer market – selling good quality foods at affordable prices just before Christmas during a period of mass unemployment and financial hardship. Offering butter, sugar, flour, oatmeal and candles, the shop at Toad Lane, Rochdale met a clear need in the local community. Toda, areas of market need (and failure) still exist across the city-region, providing opportunities into which co-operatives could flourish in social care, transport, retail, and neighbourhood services, for example. Together with new opportunities in digital and health innovation, there is space to grow.

8.5 In 2020, there is also a relevance for co-operatives. The Pioneers wrote down a list of rules by which they would run their new co-operative society, from which we have the current co-operative principles. They recognised that it was not enough for their shop just to exist; it needed to achieve both purpose - meeting need and fulfilling a gap in the consumer market, and also values and principles, which add quality, create wider impact and gave a competitive advantage. The two are interlinked – values alone do not guarantee success.

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8.6 Greater Manchester is a place of innovation using co-operatives, from the beginning in 1844 through to the creation of the Co-op Group (formally known as Co-operative Wholesale Society) and the Cooperative Bank, to digital initiatives like The Federation and Cooperative Network Infrastructure.

8.7 In addition to all of this, Greater Manchester also has the people – potential co-operators in communities, showing interest in becoming members of local organisations, investing in local projects, and owning local assets. There is leadership in abundance – the Commissioners themselves as well as many more individuals active in co-operatives across the city-region, as well as the head offices of Co-operatives UK and the Community Transport Association being placed in Greater Manchester.

8.8 There are the anchor businesses in Greater Manchester which want to support a co-operative resurgence. The roots of the „Co-op‟ are in the city-region, now cared for by the Co-operative Heritage Trust for the benefit of all, as are the business leaders and members who want to drive this forward.

8.9 Greater Manchester has the infrastructure to build from – specialist business support through the Hive and the Federation, emerging co-operatively owned digital infrastructure, early investment in a Community Housing Hub, a Co-operative College, a Consortium of Credit Unions, and much more…

8.10 The Greater Manchester Co-operative Commission has created the intelligence and a learning resource from which to build. It has also raised the profile of the ambition beyond the city-region and given us contacts across the world – many of whom are willing to help achieve this ambition.

8.11 Acting upon the recommendations made in this report will only serve to strengthen the political, strategic and business environment for co-operatives to thrive.

8.12 The time is right for Greater Manchester to radically change the focus from traditional business towards wider productivity, communities and the creation of an inclusive economy. By encouraging open and voluntary membership of activities which create social impact; supporting democratic member control and economic participation in business; promoting local accountability; supporting education, training and the sharing of information, as well as co-operation amongst businesses, we can achieve our vision of Greater Manchester being the most co-operative place in the country. Most importantly, we have concern for our communities – supporting local people and giving back to our members.

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8.13 Greater Manchester must seize the moment - if not now, then when?

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Appendix A: Greater Manchester Co-operative Commission Terms of Reference

Purpose

The Greater Manchester Co-operative Commission will to sit as an independent panel, making policy recommendations to support the continued development of the co-operative sector in Greater Manchester and to ensure that Greater Manchester Combined Authority (GMCA) is drawing on the benefits that co-operatives can bring to our local economy.

The approach that the Co-operative Commission will take is set in the context of enabling a more inclusive economy, in which the concept of social value creation will be an integral part. The Commission will seek to encourage an environment where values and co-operation are foremost.

The Commission will be a driver for the development of co-operative activity across the city-region, exploring whether co-operative ideas can help to solve existing problems, encouraging greater collaboration within the co- operative sector and contributing to the achievement of the ambitions of the Greater Manchester Strategy and Local Industrial Strategy. It will support on-going work as well as providing practical policy recommendations for future consideration.

Scope

Co-operatives are businesses that meet the needs and aspirations of their members, who work in, trade with, or otherwise participate in the business, and which contribute more broadly to the common good. Co-operatives are owned and controlled by their members. This includes customer, worker and producer co-operatives, as well as many community businesses and social enterprises. 160,000 people in Greater Manchester are members of a co-operative; collectively providing a turnover to the local economy of over £73million. This activity covers many sectors of business and includes credit unions providing financial services to communities, ten housing co- operatives, a social housing provider, leisure companies, and retail- including the modern home of the Co- operative Group, the UK‟s largest consumer owned business.

The Commission will explore how to support co-operatives and other similar organisations using co-operative approaches.

As the co-operative and mutual business model is already well established, the Commission will look how co- operative business and values can be applied to areas where the benefits are not yet fully realised, as well as exploring how they can be applied to emerging issues and sectors.

The remit of the Commission will include:

The existing evidence of particular opportunities outlined below, to develop a more co-operative Greater Manchester, drawing on proven models and promising innovations in the global co-operative economy

How Greater Manchester can build from current and recent innovations in the sector, and the business advice and support available to enable this sector to grow for the benefit of businesses, workers and communities

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How Greater Manchester can help to meet and overcome the challenges and barriers that co-operatives and the wider sector faces

There is a strong history of co-operative business in Greater Manchester, and it will be important to involve local partners and local experiences in the Commission, hearing the voices of those running, setting up or trying to set up co-ops and their support.

An „Opportunities‟ approach

The Commission will explore the following 4 opportunities:

Opportunity 1 –Housing

The Mayor of Greater Manchester has prioritised tackling homelessness and rough sleeping. However, long waiting lists for social housing is and the average mortgage in the city requires an annual salary of over £34,000 are not conducive to support people who are, or are at risk of becoming, homeless.

The Commission will explore the opportunities for expanding housing based co-operative ideas and principles, including social housing, community led and co-operative housing to give households and communities more control over new and existing housing. Addressing the lack of tenant voice and the current weaknesses of accountability were highlighted in the recent housing Green Paper. The Commission will take account of the evolving proposal around the Greater Manchester Community Housing Initiative Project. It will also look at what actions in the private rented sector will improve the standard of rented homes and ensure landlords are appropriately monitored and put tenants at the heart of their business.

Opportunity 2 – Digital Economy

With almost 8,000 digital and digital-intense creative businesses in Greater Manchester already employing more than 82,300 people, there are many exciting opportunities to create a different way of doing business. New start- ups are forming all the time, and there is an increasing number micro-businesses and self-employed working in the creative-digital-tech sector. This sector already sees a heavy emphasis on collaboration as a way to accelerate innovation and to try and match the scale of larger businesses. There is an opportunity to take a lead in Greater Manchester on the use of the co-operative business model to accelerate and give structure to that collaboration.

At the same time, there is a need and opportunity for groups of businesses and citizens in Greater Manchester to co-operate in the ownership, development and operation of an inclusive and enabling digital layer everywhere in the city-region, including through shared passive (fibre and hubs) and active (cloud and bandwidth) digital infrastructure.

Opportunity 3 – Transport

Transport is a key priority for Greater Manchester and there is an opportunity to explore emerging markets in the transport sector in which co-operatives may thrive. These include:

Taxi and private hire provision using new technology to compete with international providers

Car-pooling, sharing, and cycle hire – which will have a positive impact on road congestion and air pollution by reducing the number of private cars on Greater Manchester‟s roads

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„integrated social needs transport‟ – transport to doctors‟ and hospital appointments, school transport, „ring and ride‟ etc – where an improvement in connectivity and effectiveness will reduce missed appointments and allow timely hospital discharge

GMCA has acquired new powers and responsibilities through the 2017 Bus Services Act, and there is an opportunity to assess and evaluate the desirability of more inclusive procurement that could create a more supportive environment for community owned transport operators.

Opportunity 4 – Co-operative Business Development

Co-operatives and mutuals of any kind across all sectors could have a role to play in helping to achieve Greater Manchester‟s aspirations of developing good jobs and growth. In light of this, the Comission will consider how to support co-operative development on a less sector-specific basis. The Commission will focus on two broad areas:

Creating a supportive environment for the development of new co-operatives - exploring the opportunities and the pathways for co-operative founders (entrepreneurs),within existing organisations or setting up new ones, including increasing awareness and understanding of the role co-operative ideas can have, access to advice and financing options.

Market opportunity development - exploring how current programmes, strategies and charters create market opportunities for co-operatives.

The Commission

The Commission will be chaired by Cllr Allen Brett, Leader of Rochdale Council and Greater Manchester Portfolio Lead for Co-operatives, Communities and Inclusion. He will also represent the Co-operative Councils‟ Innovation Network at the Commission, and be supported by his deputy portfolio holder, Cllr Angeliki Stogia of Manchester City Council.

It is proposed that there are nine appointed Commissioners who will provide a breadth of expertise and represent the following stakeholder perspectives:

Role of Commissioners

All Commissioners will be expected to be mindful of the following co-operative values in their participation in the Commission.

Self-help - In co-operatives, people help each other whilst helping themselves by working together for mutual benefit.

Self-responsibility - Individuals within co-operatives act responsibly and play a full part in the organisation.

Democracy - A co-operative will be structured so that members have control over the organisation – one member, one vote.

Equality - Each member will have equal rights and benefits (according to their contribution).

Equity - Members will be treated justly and fairly.

Solidarity - Members will support each other and other co-operatives.

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The Chair will ensure that:

Meetings of the Commission are conducted in a fair and transparent business-like fashion;

Agreed conclusions and recommendations are clear;

That a shared culture and language, common purpose and trust are endorsed through a collaborative leadership style.

Members of the Commission will ensure that:

They make every effort to attend meetings. Substitutes will not be allowed;

They are prepared for the meetings, and have read papers circulated in advance;

They act in an independent, personal capacity, thereby bringing to the Commission‟s deliberations their particular knowledge, skills and experience;

They are not appointed to represent the interests of any organisations by whom they are employed or with whom they may be associated, but rather, to consider all views and evaluate them in an objective manner, contributing to the Commission‟s work;

They are expected to commit a minimum of six half days to the work of the Commission over a period of nine months;

They will take forward any actions that they have agreed to develop, and report back any progress to the Commission in the timescales agreed;

They endorse the collaborative and co-operative model and work to ensure its achievement;

They must not use, or attempt to use, the opportunity presented by the Commission to promote personal interests or those of any connected person, firm, business or other organisation.

Commissioners must ensure that no conflict arises, or could reasonably be perceived to arise, between the work of the Commission and their private interests – financial or otherwise. They must declare publicly any private interests which may, or may be perceived to, conflict with the Commission.

Information Governance

It should be noted that appointment as a Commissioner carries with it a duty of confidentiality in relation to the information received. Commissioners must not misuse information gained in the course of their duty as a Commissioner for personal or commercial gain or for political purpose.

Commissioners must not disclose or share with any organisation or individual outside of the Commission any information which is confidential in nature or which is provided in confidence, including Commission discussions and Commission papers. This duty continues to apply after they have left the Commission.

All Commission issued papers will be considered by Commissioners as confidential unless advised otherwise.

The papers and minutes issued by the Commission will be subject to the Freedom of Information Act 2000 and the relevant regulations regarding disclosure.

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Accountability

The Commission will be convened by and is ultimately accountable to GMCA. The Commission will be convened specifically for the duration of this piece of work and there are no plans for it to meet beyond the publication of the final report.

Role of partners in the Commission

GMCA – convenor, author to final report, programme management, some administration, policy / data analysis

Co-operatives UK – expert policy support, ensuring participation of member co-ops

Co-operative Party – guidance, expert policy support, nomination of Commissioner

Co-operative Councils’ Innovation Network – expert policy support, exemplar case studies and evidence, active participation in evidence hearings

GMSEN – ensuring participation of members and networks, nomination of Commissioner

Host organisations – provide a venue for the meetings and present the evidence

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Appendix B: Commissioner Biographies

Chair: Cllr Allen Brett – Leader of Rochdale Borough Council

Allen is the GMCA Portfolio Lead for Community, Voluntary and Co-ops. Allen was elected to Rochdale Borough Council in 2012 and became Leader in 2018.

First elected to public office on the previous Greater Manchester Council, Allen has been a member of the Labour Party for the last 40 years and has held most senior posts on Rochdale Borough Council.

Allen started his career in teaching in 1969 having qualified at what is now Hopwood Hall College. He spent two years teaching in Uganda and ended his secondary school career in Middleton before going on to Youth Work and then lecturing at universities.

Vice Chair: Cllr Angeliki Stogia – Manchester City Council

Angeliki has been a Labour Councillor for Whalley Range since 2012 and is the first ever-elected member of Manchester City Council to have been born in mainland Europe.

Angeliki has spent years working in the voluntary and social enterprise sector across North West England. She is particularly concerned with social mobility, inclusion, equality, justice and sustainability. She is also committed to improving the lives of everyone who lives and work in the Manchester conurbation.

Angeliki serves as the Deputy Portfolio Lead for Community, Voluntary, and Co-ops at the GMCA.

Cliff Mills, Consultant - Anthony Collins Solicitors

Cliff specialises in the law of co-operatives and member-based organisation. He supports those seeking to set up new ventures trading for a social purpose, advises existing organisations on the transition from private or public into democratic, member-based arrangements and seeks to redesign structures for a collaborative and co- productive approach involving users, workers and citizens.

Cliff has more than 25 years‟ experience working with the UK co-operative movement, including the leading retail societies, Co-operatives UK, the Co-operative Party, and the Co-operative College; he has been involved in establishing NHS Foundation Trusts, GP co-operatives, and other member-based organisations in leisure services, youth services and housing, including the UK‟s first tenant and employee owned social housing providers, and the model rules for community shops and pubs.

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Cliff is involved in the modernisation of UK co-operative law and the comparative study of cooperative law between different jurisdictions. He is a member of an international community of co-operative lawyers (Ius Cooperativum), is listed on their online database (World Map of Cooperative Lawyers), and has published in their International Journal of Cooperative Law. Cliff is also Principal Associate at Mutuo, the leading advocate for mutuals.

David Batten, Chair – Credit Unions for Greater Manchester

David has been the Chief Executive at Hoot Credit Union in Bolton for eight years, and prior to that he assisted credit unions up and down the country to improve their business planning skills.

David is currently Chair of Credit Unions for Greater Manchester, a consortium of the largest community credit unions across the region who have been working together for the past three years to extend their membership and develop exciting new products and services for the people of Greater Manchester.

David is a great believer in cooperation amongst cooperatives.

James Wright, Policy Officer - Co-operatives UK

James is the Policy Officer at Co-operatives UK, the national network for Britain's thousands of co-ops, which together contribute over £36 billion to the UK economy. He works closely with members and partners to promote co-operative values and principles in the current political discourse and to see them reflected in the formation of public policy at local, regional, national and international levels.

Recent policy wins include influencing farming policy with the creation of a £10 million collaboration fund and safeguarding farmers' ability to co-operate through amendments to Brexit legislation and securing commitment from government to review co-op law and winning support for community co-ops in the Civil Society Strategy.

Jo Platt - Former Labour and Co-operative MP for Leigh

Jo began her political career when she was elected as Councillor for Astley and Mosley Common in 2012. She quickly rose to the level of cabinet where she took responsibility for Children, Young People and Education in 2014, adding Skills and Employment to her portfolio early in 2016.

Her passion for her community and determination to make positive change did not go unnoticed by the wider Labour Party. She was selected to stand as the Labour candidate for Leigh and was elected in June 2017. Jo was

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the first female MP the constituency had ever returned to Westminster and held the post of shadow Cabinet Minister for the Cabinet Office until the General Election in December 2019.

Kellie Bubble, Director - Unicorn Grocery Worker Co-operative

Kellie has been Director at Unicorn Grocery for over 20 years. Unicorn is a large worker owned grocery, providing wholesome and affordable food, drink and household products to a diverse Manchester customer base, with a focus on organic, fair-trade and local produce. Throughout her time at Unicorn, Kellie has worked in most areas of the business including fresh produce buying, education and marketing, finance and commercial strategy.

Prior to her role at Unicorn Grocery, Kellie spent three years volunteering at the Citizens Advice Bureau, specialising in debt counselling and housing advice before completing a degree in Economics, Politics and Philosophy at the University of Manchester. Further earlier roles include a significant time as Editorial Assistant at the radical red and green magazine Red Pepper and working with young people at Wigan MBC.

Mike Blackburn OBE, Chair - Greater Manchester Local Enterprise Partnership

Until January 2018, Mike was Chair of BT‟s North West Regional Board, a role he held from 2007, and also Head of Digital Government in the UK until 2018. Mike has a number of non-executive roles including Chair of the Greater Manchester Local Enterprise Partnership which sits at the heart of Greater Manchester‟s governance arrangements, ensuring that business leaders are empowered to set the strategic course, determine local economic priorities and drive growth and job creation within the city region.

Mike holds a number of other non-executive or trustee roles, including Chair of the Institute of Directors in the North West, Trustee of the Lowry Theatre, Director of the Science Museum Foundation, Advisor at Snowball Alternative Finance Limited.

Mike was awarded an OBE in the Queen‟s Birthday Honours List in June 2015 for services to the economy in the North West.

Paul Gerrard, Campaigns and Public Affairs Director - Co-operative Group

After twenty years in the UK Civil Service Paul joined the Co-operative, the world‟s oldest cooperative business, in 2016 and is currently Campaigns and Public Affairs Director.

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Paul is leading on the Co-operatives campaigns on modern slavery particularly supporting survivors, loneliness and violence in communities as well as leading the Co-operative‟s engagement on a broad range of public policy issues.

Paul is a Fellow of Institute of Environmental Management and Assessment – the Global Body of Sustainability Professionals.

Shaun Fensom – Cooperative Network Infrastructure

Shaun has over 30 years‟ experience working in and with co-operative businesses. Most recently he helped found the Tameside Digital Infrastructure Cooperative, which is using an innovative model to open access to a state-of- the art fibre network in Greater Manchester.

In the late 80‟s Shaun co-founded Poptel, a cooperative and one of the UK‟s first Internet Service Providers. Working with the US National Cooperative Business Association, Poptel launched the .coop domain ending in 2001 - now used by cooperatives all over the world.

Shaun is involved in a number of other cooperatives and social enterprises. He is a founding director of Manchester Digital, a non-executive director of Ethical Consumer magazine, and a co-founder of the Customer Union for Ethical Banking.

Simon Parkinson, Chief Executive and Principal - Co-operative College UK

Simon joined the Co-operative College in 2015 having previously worked at Royal Mencap Society, the country‟s leading charity for people with learning disabilities. At the Co-operative College Simon is building on the strong foundations of the past whilst creating a new, vibrant, innovative and relevant heart for co-operation education.

He is also a member of the Executive Oversight Committee and Values & Principles board for the Co-operative Councils Innovation Network.

Simon grew up in Salford and attended both Salford University and Warwick University and has a Master‟s degree in Public Administration.

Since taking part in the Commission, Simon Parkinson has left the Co-operative College. He has been replaced as Principal by Cilla Ross, who will support the work of the Commission going forwards.

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Appendix C: Call for Evidence

Overview

The Greater Manchester Co-operative Commission has been established by the Greater Manchester Combined Authority (GMCA) in order to be a driver for the development of co-operative activity across the city-region, to explore whether co-operative ideas can help to solve existing problems, encourage greater collaboration within the co-operative sector and contribute to the achievement of the ambitions of the Greater Manchester Strategy - to make Greater Manchester one of the best places in the world to grow up, get on and grow old - and to be one of the most co-operative places in the UK.

Co-operatives are businesses that meet the needs and aspirations of their members, who work in, trade with, or otherwise participate in the business, and which contribute more broadly to the common good. Co-operatives are owned and controlled by their members. This includes customer, worker and producer co-operatives, as well as many community businesses and social enterprises. 160,000 people in Greater Manchester are members of a co-operative; collectively providing a turnover to the local economy of over £73million. This activity covers many sectors of business and includes credit unions providing financial services to communities, ten housing co- operatives, a social housing provider, leisure companies, and retail- including the modern home of the Co- operative Group, the UK‟s largest consumer owned business.

The Commissioners sit as an independent panel, and will make policy recommendations to ensure that the GMCA is drawing on the benefits that co-operatives can bring to our city-region. It will examine:

The existing evidence of particular opportunities outlined below, to develop a more co-operative Greater Manchester, drawing on proven models and promising innovations in the global co-operative economy How Greater Manchester can build from current and recent innovations in the sector, and the business advice and support available to enable this sector to grow for the benefit of businesses, workers and communities

How Greater Manchester can help to meet and overcome the challenges and barriers that co-operatives and the wider sector faces

The Commission will focus on four identified opportunities to develop the co-operative model across Greater Manchester. These opportunities are:

 Housing  Digital Economy  Transport  Co-operative Business Development

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Why We Are Consulting

There is a strong history of co-operative business in Greater Manchester and the Commission is keen to hear from those involved in running, setting up or trying to set up co-operatives so we can learn from your experiences and expertise.

We are particularly keen to discover examples of success, innovation and growth potential, and enablers to success, as well as lessons learnt, and the barriers and pitfalls to avoid.

Consultation Contents

The Call for Evidence is divided in to six chapters.

Chapter 1 covers general questions about co-operatives, and Chapter 6 includes questions about you and your organisation. These chapters aren't compulsory, but we would really appreciate you answering all these questions.

Chapters 2-5 take each of the 'opportunities' in turn. You can respond to whichever chapter or chapters you're interested in, and answer as many (or as few) questions as you like.

You can submit evidence by answering the questions in the chapters, or by uploading reports or other documents to support the relevant areas of interest.

General principles of co-operative businesses

This section provides the opportunity for you to provide comments or documentation that relates to the general principles of co-operative working, or examples from other sectors that can be applied to any of the four opportunity areas.

What are the particular benefits of a co-operative approach in your sector?

What does the evidence tell us is the current picture of co-operative and mutual activity in Greater Manchester?

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What are the key issues which you believe the co-operative approach can address (locally and further afield) and how will it do so?

What examples of innovation in of co-operation do you know of either in the UK or internationally? How could Greater Manchester share the good ideas emerging, already developed or existing in other sectors both locally and elsewhere and include it in the development of the four opportunity areas?

What does the evidence tell us are the barriers and pitfalls which co-operatives and mutuals face or could face? How might Greater Manchester help to overcome these barriers?

Are there any general enablers, such as mechanisms for sharing co-operative ideas and concepts, enabling their wider application, which will further develop the co-operative way of working in Greater Manchester?

How can Greater Manchester increase the diversity of people involved in the co-operation? How can we support the development of businesses led by young people, those with disabilities, as well as increasing diversity in race, and religion or belief?

Do you have any other suggestions or evidence relating to the use of co-operative ideas and principles that will help to inform the Commission‟s work?

Opportunity 1 –Housing

The Mayor of Greater Manchester has prioritised tackling homelessness and rough sleeping. However, long waiting lists for social housing is and the average mortgage in the city requires an annual salary of over £34,000 are not conducive to support people who are, or are at risk of becoming, homeless.

The Commission will explore the opportunities for expanding housing based co-operative ideas and principles, including social housing, community led and co-operative housing to give households and communities more control over new and existing housing. Addressing the lack of tenant voice and the current weaknesses of accountability were highlighted in the recent housing Green Paper. The Commission will take account of the evolving proposal around the Greater Manchester Community Housing Initiative Project. It will also look at what actions in the private rented sector will improve the standard of rented homes and ensure landlords are appropriately monitored and put tenants at the heart of their business.

We want to gain a better understanding of how co-operative models are being and can be applied in the housing sector. We would particularly welcome evidence that can support the following questions:

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What is the role of co-operatives for people who have equity from an existing property, who may be older or isolated, and wish to move into shared accommodation?

How could private rented sector investment be incorporated to support a community-led co-operative housing model to improve both the affordability of housing and the living conditions of residents in rental properties across Greater Manchester, including those for whom social housing is not an option.

What role is member-based ownership and governance playing in social housing today? How can it give social tenants greater control of their homes and neighbourhoods?

What is the role of co-operatives for people looking to buy for the first time?

How can co-operative housing arrangements contribute to the wellbeing of residents in ways that can improve the wellbeing and social care ecosystem in Greater Manchester? Do you know of any examples where co- operative housing has been integrated into the wellbeing and social care ecosystem that Greater Manchester could learn from and take inspiration?

How could Greater Manchester develop a model of social care housing which is based on co-operative principles? Do you know of any examples where that has been tried that the city-region could learn from and take inspiration?

How could co-operative housing models be used to tackle homelessness across Greater Manchester‟s? Do you know of any examples where that has been tried that the city-region could learn from and take inspiration?

What is the potential scope, business model and viability for a Community-led Housing Hub in Greater Manchester?

What does a successful housing co-operative look like?

Do you know of any inspirational or exemplar community-led housing projects or any individual „champions‟ from across the UK that we could learn from or potentially approach to support the development of the co- operative approach? Particularly where these can „enthuse‟ what is planned for Greater Manchester.

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What are the social, environmental and economic benefits of co-operative social housing, co-operative and community-led housing? Including how this may differ across a range of stakeholders and Greater Manchester as a place.

What are the barriers experienced at a local and national level which might inhibit the adoption of co-operative principles as well as the development and growth of housing co-operatives? How could Greater Manchester overcome or remove these barriers?

Opportunity 2 – Digital

With almost 8,000 digital and digital-intense creative businesses in Greater Manchester already employing more than 82,300 people, there are many exciting opportunities to create a different way of doing business. New start- ups are forming all the time, and there is an increasing number micro-businesses and self-employed working in the creative-digital-tech sector. This sector already sees a heavy emphasis on collaboration as a way to accelerate innovation and to try and match the scale of larger businesses. There is an opportunity to take a lead in Greater Manchester on the use of the co-operative business model to accelerate and give structure to that collaboration.

At the same time, there is a need and opportunity for groups of businesses and citizens in Greater Manchester to co-operate in the ownership, development and operation of an inclusive and enabling digital layer everywhere in the city-region, including through shared passive (fibre and hubs) and active (cloud and bandwidth) digital infrastructure.

We want to gain a better understanding of how co-operative models could benefit Greater Manchester‟s digital economy. We would particularly welcome evidence that can support the following questions:

What evidence exists that co-operative ways of working are emerging as a good fit for digital-tech and creative businesses and workers?

What potential is there for co-operative approaches to collaboration between smaller digital-tech and creative businesses wanting to achieve scale while retaining their flexibility, ability to innovate rapidly and their values?

What do co-operative approaches to work offer to people who choose self-employment in the digital and creative sectors later in life?

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Can co-operative approaches to work in the digital and creative sectors make these sectors more accessible for people from disadvantaged and/or under-represented backgrounds?

What potential is there for digitally based, co-operative approaches to self-employment, short-term contracting and agency work, to be applied to other sectors in Greater Manchester (e.g. social care)?

Do you know of any inspirational or exemplar co-operative organisations in digital and creative sectors from across the UK that we could learn from or potentially approach to support the development of the co-operative approach? Particularly where these can „enthuse‟ what is planned for Greater Manchester.

How can emerging digital solutions add value to co-operative approaches in the wellbeing economy? How can Greater Manchester support this synthesis further?

What evidence is there of the economic and social value created by businesses and communities using co- operative models to co-develop and co-control digital infrastructure? How can Greater Manchester incorporate the use of such models in the implementation of its Local Industrial Strategy?

What are the barriers experienced at a local, national and potentially international level which might inhibit the adoption of co-operative principles as well as the development and growth of in the co-operative digital sector? How could Greater Manchester overcome or remove these barriers?

How can co-operative approaches in digital recognise that diversity (including the need for more women and neurodiversity) are a key opportunity to fill the skills gap through a meaningful skills strategy.

Opportunity 3 – Transport

Transport is a key priority for Greater Manchester and there is an opportunity to explore emerging markets in the transport sector in which co-operatives may thrive. These include:

Taxi and private hire provision - using new co-operatively owned and controlled platform technology to compete successfully in the current market

Car-pooling/sharing, and cycle sharing – which will have a positive impact on road congestion and air pollution by reducing the number of private cars on Greater Manchester‟s roads

„Integrated social needs transport‟ such as transport to doctor surgeries and hospital appointments, school transport, „ring and ride‟ etc. – where an improvement in connectivity and effectiveness will reduce missed appointments, improve health outcomes and reduce isolation

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We want to gain a better understanding of how co-operative approaches could be applied to the transport sector. We would particularly welcome evidence that can support the following questions:

What examples do you know of where innovative, community-led and co-operative, „system models‟ of transport planning are in operation. Do you know of any that have been integrated with wider neighbourhood-based services?

Are there any inspirational examples of co-operatives operating in the following markets either across the UK or internationally?

Taxi and private hire provision

Car-pooling, sharing and private hire

Integrated social needs transport

What are the benefits of co-operative and community-led transport models for communities and in managing costs in public services?

What are the barriers experienced at a local and national level which might inhibit the adoption of co-operative principles to the transport sector as well as the development and growth of the area? How could Greater Manchester overcome or remove these barriers?

Co-operatives and mutuals of any kind across all sectors could have a role to play in helping to achieve Greater Manchester‟s aspirations of developing good jobs and growth. In light of this, the Comission will consider how to support co-operative development on a less sector-specific basis. The Commission will focus on two broad areas:

Creating a supportive environment for the development of new co-operatives - exploring the opportunities and the pathways for co-operative founders (entrepreneurs),within existing organisations or setting up new ones, including increasing awareness and understanding of the role co-operative ideas can have, access to advice and financing options.

Market opportunity development - exploring how current programmes, strategies and charters create market opportunities for co-operatives.

We want to gain a better understanding of how co-operative business development could be supported locally. We would particularly welcome evidence that can support the following questions:

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What steps can be taken to increase awareness, capacity and practical understanding of co-operative options among people who are not familiar with a co-operative approach, and where the development of a co-operative approach would be pioneering?

What are the experiences of Greater Manchester co-operatives accessing business support? What can Greater Manchester do to improve access to expert support and advice for co-operative formation, start-up and development?

How do current programmes, strategies and organisations support co-operative development? Are these the most effective arrangements, or are there alternative approaches elsewhere within the UK (or beyond)?

Is there a case for a Greater Manchester Co-operative Development Agency linked to the Combined Authority, to optimise opportunities for further co-operative development and take forward actions flowing from this Commission.

What are the barriers to expanding the number of co-operative businesses, and how can we help to overcome them in Greater Manchester?

Do you know of any examples of areas which have focussed procurement and collective purchasing to build a market for the co-operative business model? If so, can you explain what the project is / was, how it was developed and the benefits and difficulties that were experienced?

Do you know of any inspirational examples of co-operative businesses which demonstrate how the pursuit of co- operative values can drive business perfomance?

Is there anything else that you wish to tell us about co-operative working that will help inform the work of the Commission?

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Appendix D: A list of individuals who presented evidence to the Commission and the titles of their presentations

Inaugural meeting

Gareth Swarbrick Rochdale Boroughwide Housing Overview of membership and organisation at Rochdale Boroughwide Housing

Housing

Charlie Baker RED Consulting / Homes for The Story of Homes for Change Change

Mike Gaskell Trowers and Hamlins Solicitors Joined the Commissioners for (retired) discussion

Transport

Joe Fortune The Co-operative Party Transport Policy

Bill Freeman Community Transport Doing Transport Differently Association

Digital

Graham Mitchell MC3 Co-ops in the digital tech ecosystem

Dan Stanley Apparatus Co-operative working in the digital sector

Business Support

Mark Simmonds Co-op Culture Co-operative development in Greater Manchester

Ged Devlin Power to Change Community Business

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Building Back Better – a Co-operative Recovery

Greater Manchester Co-operative Commission

Introduction Co-operation and co-operative ways of working present Greater Manchester with a big opportunity for building back better after the ravages of Coronavirus – creating a fairer, sustainable and more resilient economy focussed on:

 Partnerships, inter-trading and support, and mutuality  Community wealth building  Solidarity, with a local, circular economy  Strong relationships and shared risk  Social, environmental and economic impact and sustainability

GM Co-operative Commission Nobody foresaw a pandemic when the Greater Manchester Co-operative Commission published its report in January 2020. The way that people and organisations have responded to the pandemic show graphically how co-operation is a natural instinct in a crisis. But evidence given to the Commission also highlighted that compared with investor-owned businesses focussed on private gain, businesses that operate on a co- operative basis across many sectors bring something significantly different to a region. They are:

. Less likely to fail in the first five years of businessi . More resilient in times of economic crisisii . Can reduce inequalities of poweriii and wealthiv v . Are better for workers (good employment),vi vii communities (building wealth, empowerment and involvement),viii ix consumers (ethical standards and quality) and small businesses (self-help, self- responsibility, self-worth).x xi

What is co-operation? Co-operation is an idea that brings together personal responsibility and collective support. It harnesses power from below, within communities, and builds from the bottom-up. It is all about fairness and justice, giving every individual a stake and a say. It is an idea which embeds sustainability because it thinks about tomorrow as well as today, providing for the wellbeing of future generations.xii It is an idea for local communities but connected globally to a movement from Africa to Asia, from Europe to the Americas.xiii Internationally, it has a major presence in financial services, retail, health and social care, housing and industry.

Underlying the idea of co-operation and what distinguishes it from traditional business are: equality – everybody has a part to play and an equal voice (you can’t buy influence); equity or fairness – everybody receives a fair deal for what they put in because profits aren’t used to reward investors; and sustainability – surplus value generated by trading is retained within the organisation and the community, not distributed to owners elsewhere.

Co-operation is an old idea but one which is highly relevant for today’s challenging context which needs locally rooted businesses, keeps economic benefits local, and strives to treat customers, workers and neighbours fairly. It is designed to build community wealth through self-help, solidarity and self- responsibility, and instinctively works collaboratively with the foundational economy.

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What we have all witnessed The clear evidence of the last few weeks and months is that in times of difficulty, community-based co- operation doesn’t wait for permission, funding or structures: it just gets on with it. It is focussed on behaviour and doing immediate things, rather than formal arrangements and process. It doesn’t need institutions or structures,xiv just people working together for their own benefit and others round them.

The trust that people apparently lost during the political storms of Brexit is still there after all. Thankfully, meeting challenges collectively for everybody’s benefit is a normal thing to do to. However, whilst the pandemic and the required lock-down in response have drawn out this normal instinct, we must recognise that the prevailing structures and processes of business are all to do with competing for private gain. What has happened over recent weeks is that the profit-driven and extractive ambitions have been put on hold, and local collaboration, community action and mutual aid have taken their place.

Building Back Better But how do we retain that upsurge of community-based self-help, the citizen-driven initiatives created to support local communities, and use it as a foundation to build back cleaner, safer, stronger and fairer? First it is important to recognise that the exclusive focus on the pursuit of private gain is what was wrong with the previous status quo.xv Second, strong but community-based leadership is needed to drive forward a change to something better. Third, it is necessary for space, encouragement and real practical support to be provided for those who have shown how much more can be done through collaboration and co-operation.xvi

These are some of the things that the GM Co-operative Commission’s recommendations call for (numbers in brackets relate to the recommendation number):

. Establish a Co-operative Zone, helping to provide access to finance (12), to equip business advisors with the relevant basic practical understanding (21), to improve access to expert advice and support (23), to help family-owned SMEs to plan for ownership succession (22) . Train procurement officers about the benefits of co-operative ownership (10), corporate strategies to emphasis procurement of social value (9), embed the principle of co-operation into GMCA’s constitution (2), all GM local authority strategies to address engagement of citizens and communities (5), establish a democratic charter promoting involvement of users, employees, volunteers and citizens (3) . Employment for the gig economy through SMART for GM (28), consult on arrangements for SME participation in big digital projects (38), expand GM’s digital infrastructure through a co-operative approach (39), launch a GM user-investment vehicle for full fibre (40) . Support small organisations in GM to co-operate in delivering public services (7), with a toolkit and learning programme to address this (8), promote funding of community-based initiatives through community share offers (13), promote credit unions (15)

Inspiration The Report sets out inspiring examples of co-operative and other member-based business initiatives already in existence within Greater Manchester, or elsewhere in the UK, or beyond the UK, and argues that these provide a vision of what can be achieved where there is a recognition of the need to do something different and a will to follow this through. These include:

o Pioneering examples of collaborative organisations within GM such as Inspiring Communities Together, Rochdale Boroughwide Housing, Unicorn, Salford Community Leisure, Wigan Deal and Abram Ward Community Co-operative

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o International examples of successful co-operation such as co-operative schools in Spain, children’s day care co-operatives in Sweden, social care co-operatives in Italy, and the SMART co-operative providing employment in the gig economy in Belgium o Co-operation evident in transport such as West Oxfordshire Community Transport (local bus), Taxi App UK in London, City Cabs in Edinburgh and Co-Wheels Car Club in Salford o Support for co-operative development such as the Hive (Co-operatives UK with the Co-operative Bank), the Plunkett Foundation including its More than a Pub programme

Seizing the initiative The current situation provides an opportunity to help people recognise that the previous approach, entirely focussed on value extraction and individual return on investment, wasn’t working; that the wide-spread spirit of collective endeavour and co-operation which so many people and organisations have displayed in a crisis should be what informs every aspect of our recovery planning, and that at every step on the path of recovery we should be rooting our actions in collaborating for the common good of Greater Manchester, not competing to serve private gain elsewhere.xvii

This simply will not happen without an acceptance of and willingness to break the mould of the past and build forward differently. Unless we are happy to return to the way things were before, then we need to take steps now, whilst the memory is still fresh and the evidence is still before us, to build a consensus to do things differently, to change the hardwiring. This requires political leadership, underpinned by grass-roots support. Without collective agreement that the old ways aren’t working, and that together we must explore and test different ways, then obviously things will just revert to the way they were before.

The following are essential:

o increase paid-for and subsidised specialist advice for co-ops and other social enterprises, to help them adapt business models, develop new products and increase productivity/efficacy o support the development of a values-based Greater Manchester wide co-operative learning initiative for everyone - from community activists to business advisors - to create strong businesses, develop co-operative identity, promote decent work and collective care, and build co-operative communities o support the #1MillionOwners agenda, which aims for a fivefold expansion in employee and worker ownership by 2030, by allocating funding for business support that helps the creation of new worker co-ops and the conversion of existing businesses to employee ownership, as part of planned succession and post-pandemic renewal o refocus the UK Shared Prosperity Fund on inclusive and sustainable growth, earmark 25 per cent for community-led economic development, prioritising participation of people in more deprived places

It isn’t enough just to agree to take a different view. We must now start doing things which set a different course. Businesses must be incentivised and opportunities must be created for them to explore other forms of ownership and governance. Workers must be given a voice and the chance to become active participants in commercial endeavour. Customers, clients, passengers and patients must be encouraged to behave differently, to have different expectations.

The Commissioners have been asked to help push forward co-operative initiatives which will help Greater Manchester to build back better and to make sure that what follows the pandemic will not be a return to business as usual, but something better, cleaner and fairer. The pandemic will hit hardest the most challenged communities and essential sectors, but these are the place where co-operation can provide the most help.

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We are passionate about wanting people and institutions to continue co-operating out of lock-down: not to lapse back into competing with each other at the first opportunity. The Co-operative Commission wants to play its part working with GMCA to build a better future for the region.

Cliff Mills, Anthony Collins Solicitors, Commissioner, on behalf of the Greater Manchester Co-operative Commission 28th May 2020

i Co-operatives UK (2019). Co-operative business survival. Available at: https://www.uk.coop/sites/default/files/uploads/attachments/co-operative_survival_1.pdf ii Birchall, J. & Ketilson (2009). Resilience of the co-operative business model in times of crisis. Available at: https://www.google.co.uk/url?sa=t&rct=j&q=&esrc=s&source=web&cd=1&ved=2ahUKEwi25_T CmMHlAhWllFwKHU6gAuMQFjAAegQIARAH&url=https%3A%2F%2Fwww.ilo.org%2Fwcmsp 5%2Fgroups%2Fpublic%2F--- ed_emp%2F--- emp_ent%2Fdocuments%2Fpublication%2Fwcms_108416.pdf&usg=AOvVaw1XlkOx0Bg4ziL wSkuENGTO iii Birchall, J. (2017). The Governance of large co-operative businesses. Available at: https://www.uk.coop/resBirources/governance- large-co-operative-businesses-0 iv Perotin,́ V. (2016). What do we really know about worker co-operatives? Available at: https://www.uk.coop/sites/default/files/uploads/attachments/worker_co-op_report.pdf v Co-operatives UK (2018). Gender pay gap report. Available at: https://www.co- operative.coop/ethics/gender-pay-gap-report vi Perotin,́ V. (2012). The performance of worker co-operatives. In P. Battilani & H. G. Schröter (Eds.) The Co-operative Business Movement. Cambridge, UK: Cambridge University Press vii Mayo E (2015). The Co-operative Advantage: Innovation, co-operation and why sharing business ownership is good for Britain. Manchester: Co-operatives UK viii Thornton, E., Litchfield, A., Brooks, S., Britt, R. & Hitchin, J. (2019). Community Business Fund evaluation: Interim report. Available at: https://www.powertochange.org.uk/wp- content/uploads/2019/03/CB-funding-Evaluation-DIGITAL.pdf ix Plunkett Foundation (2019). Community shops: A better form of business. Available at: https://plunkett.co.uk/wp- content/uploads/PF_BB_SHOPS19_web-version-1.pdf x Dellot, B., & Wallace-Stephens, F. (2017). The self-organising self-employed: Empowering grassroots collaboration in the new economy. Available at: https://www.fsb.org.uk/docs/default- source/fsb-org-uk/self-organising-self-employed---final.pdf xi Directorate-General for Competition (European Commission) (2017). Study on producer organisations and their activities in the olive oil, beef and veal, arable crops sectors. Available at https://op.europa.eu/en/publication-detail/-/publication/de1d238b-28f9- 11e9- 8d04-01aa75ed71a1 xii The combination of open membership, providing for members on leaving a coop to be repaid their capital, but for capital surpluses to be retained to build resilience and reserves, means that coops both build community wealth but also build a heritage asset for future generations. https://wales.coop/why-co-operatives-are-essential-for-the-well-being-of-future-generations/ xiii The International Co-operative Alliance is the global body for the movement https://www.ica.coop/en xiv That is not to say that structures are unnecessary; they are helpful and useful when they are designed in a way which helps to deliver a purpose. The danger is that the structure distorts or becomes the purpose, or it simply gets in the way and defeats the purpose. xv See Building a Co-operative Recovery, Jo Platt and Cliff Mills, https://gmcommission.coop/building-co-operative-recovery xvi See Co-operation not Competition, Cliff Mills https://medium.com/@cliff.mills1/co-operation-not-competition-db0f3ad3b6a2 xvii “… although a co-operative is trading for the benefit of its members, it is effectively a self-help mechanism enabling people collectively to meet their shared needs in a broader social context. It has a purpose which goes beyond the immediate business itself … looking outward to wider interests including others affected by the business, wider society and future generations.” Alcock, A. and Mills, C., Co-operation for the Common Good available at: https://www.anthonycollins.com/resources/downloads/co-operation-for- the-common-good/

7050989-1 Page 2104 Agenda Item 12

Date: 25 September 2020

Subject: Approval of the variation to the Working Well Work and Health programme contract in order to develop the Working Well Light service as part of GM’s economic recovery response

Report of: Councillor Sean Fielding, Portfolio Lead for Education, Skills and Work and Joanne Roney, Portfolio Lead Chief Executive for Education, Skills and Work

PURPOSE OF REPORT The purpose of this paper is to:

 Note the Chancellor’s Summer statement to approve a variation of the devolved Working Well Work and Health Programme to expand the scope of the programme in order to offer early support to those who have become recently unemployed.  Provide information on the expected process for utilising the additional funding allocated from the Department Work and Pensions (DWP) to develop the variation to contract by utilising section 72 of the 2015 Public Procurement Regulations  Request approval from the GM CA to proceed as recommended

RECOMMENDATIONS:

The GMCA is requested to:

1. Consider and note the updates.

2. Approve the proposed variation to the Working Well Work and Health Programme in order to expand the scope of delivery to support those recently unemployed.

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CONTACT OFFICERS:

 Joanne Roney, Lead Chief Executive for Education, Skills, Work & Apprenticeships [email protected]  Matthew Ainsworth, Assistant Director Employment GMCA [email protected]

Equalities Implications: N/A at this time

Climate Change Impact Assessment and Mitigation Measures – N/A at this time

Risk Management: N/A

Legal Considerations: Internal legal advice has been sought to ensure the variation is compliant

Financial Consequences – Revenue: This report considers the allocation of a grant received by Greater Manchester from the DWP; therefore, there are no direct revenue implications for GM

Financial Consequences – Capital: N/A

Number of attachments to the report: N/A

Comments/recommendations from Overview & Scrutiny Committee

BACKGROUND PAPERS: N/A

TRACKING/PROCESS Does this report relate to a major strategic decision, as set out in the No GMCA Constitution

EXEMPTION FROM CALL IN Are there any aspects in this report which n/a means it should be considered to be exempt from call in by the relevant Scrutiny Committee on the grounds of urgency? GM Transport Committee Overview & Scrutiny Committee n/a n/a

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1. INTRODUCTION/BACKGROUND

1.1 As part of the Chancellor’s summer statement it was announced that there would be a variation to the devolved Working Well Work and Health Programme (WW WHP) to enable the development of the Working Well Light Programme to offer early support to those have become recently unemployed.

1.2 From October 2020, the Working Well Light (WWL) programme will be a separate strand of WW WHP that will help people who have been unemployed and in receipt of benefits for at least 13 weeks, to find sustained work. The WWL will provide early support, which will complement the wider labour market offer of support through a sector-based approach that responds to local priorities.

1.3 In broad principles, the WWL will align to the core WW WHP programme, and the changes implemented by way of a variation to the contract utilising section 72 of the 2015 Public Procurement Regulations. As this is a variation to the existing WWWHP contract, the delivery provider will be Ingeus.

1.4 The rationale to vary the contract is based on the requirement to commence the service in early October 2020 as a critical response to the expected steep rise in unemployment. In order to respond effectively we would not be in a position complete a robust procurement and mobilisation process to take place in time for an October start. There would be potential of a duplication of offer between the current WWWHP and new service offer; a full procurement process would not constitute value for money over a 2-year contract.

1.5 DWP and GMCA Skills and Work Team have been working closely over the last few weeks to develop the service delivery model. The core metrics for the service are as follows:- o The Programme is due to commence in early October 2020 and complete in March 2022. o The programme will support 13,200 GM residents to find employment. o It is anticipated that between 18%-22% of people will secure employment within their 6 months on programme.

1.6 DWP have recently confirmed that GMCA’s allocation for delivering the programme is £13m (£5.06m for 20/21 and £7.94m for 21/22). This includes a minimal management fee of 1.2% of the total funding (£156k), which although insufficient to cover the full additional costs, we can utilise ESF funding to bridge the gap.

1.7 The GMCA are in the process of the establishing a project team to work to the challenging timeframe of having the contract variation signed in early September in order that implementation of the contract can commence as early as possible.

1.8 The WWL Programme will:

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 provide a light touch provision that includes, but is not limited to, transferable skills analysis, CV writing, job search, interview skills, self-efficacy and confidence building and takes a sector-based approach;

 be delivered and managed separately to the core Working Well WHP contract.

1.9 In order to achieve sustained employment outcomes, Providers will be required to:

 provide Participants with targeted support which complements the wider labour market offer in their locality;

 have strong links to national and local employers; and

 link up and integrate with local services, with referral pathways developed between the Adult Education Budget and the Health and Social Care Partnership Mental Health offer (Silvercloud)

Page 214 Agenda Item 13

Date: 2nd September 2020

Subject: The Mayor’s Cycling and Walking Challenge Fund (MCF)

Report of: Andy Burnham, Mayor of Greater Manchester, Portfolio Lead for Transport and Eamonn Boylan, Chief Executive Officer, GMCA & TfGM.

PURPOSE OF REPORT

To note and approve the funding requirements set out in the following report, in order to ensure the continued delivery of the Mayor’s Challenge Fund programme for Walking and Cycling.

RECOMMENDATIONS:

The GMCA is requested to:

1. Note the agreed MCF delivery priorities across GM and the prioritised first phase for the programme;

2. Approve £3.1 million MCF funding for the Stockport Gillbent Road and Heatons Cycle Link schemes, in order to secure full approval and enable the signing of a delivery agreement; and

3. Approve the release of up to £1.9 million of development cost funding for the five MCF schemes set out in this report.

CONTACT OFFICERS:

Steve Warrener Director of Finance and 0161 244 1025 Corporate Services

Richard Nickson Cycling and Walking 0161 244 0987 Programme Director

Page 215

Simon Warburton Strategy Director 0161 244 1427

Equalities Implications: The Bee Network and the infrastructure which will enable it, will be fully inclusive in its design and development, with the proactive involvement of organisations such as the Disability Design Reference Group (DDRG).

Climate Change Impact Assessment and Mitigation Measures: The Mayor’s Cycling and Walking Challenge Fund programme has been designed to support and expedite delivery of a network which is designed to facilitate a switch from a mechanised mode to walking or cycling, which will see a reduction in both local pollutants and greenhouse gases. By 2040 130,000 daily trips are expected to switch to cycling and walking from private car and taxi use. This equates to around 735,000 less vehicle kilometres being driven per day, with the resultant environmental benefits.

Risk Management: The recommendations of this report will directly support MCF scheme delivery and enable prioritised infrastructure spend. This will directly assist in mitigating the programme risk of not fully expending the available budget. A programme risk register is maintained and updated by the TfGM MCF programme team.

Legal Considerations: Legal Delivery Agreements and legal side-letters will be produced and implemented for full scheme and development cost approvals as appropriate.

Financial Consequences – Revenue: Revenue consequences are set out in paragraph 2.4

Financial Consequences – Capital: Financial consequences are set out in paragraphs 2.4 and 3.1 – 3.4.

Number of attachments to the report: No attachments.

Page 216

BACKGROUND PAPERS:

 29 March 2018 – Transforming Cities Fund report to GMCA  25 May 2018 – Cycling & Walking Update  29 June 2018 – Transforming Cities Fund report to GMCA  27 July 2018 – Transforming Cities Fund report to GMCA  28 September 2018 – Mayor’s Cycling & Walking Challenge Fund  29 March 2019 – Mayor’s Cycling & Walking Challenge Fund  28 June 2019 – Mayor’s Cycling & Walking Challenge Fund  29 November 2019 - Mayor’s Cycling & Walking Challenge Fund

TRACKING/PROCESS Does this report relate to a major strategic decision, as set out in the No GMCA Constitution

EXEMPTION FROM CALL IN Are there any aspects in this report which No exemption means it should be considered to be exempt from call in by the relevant Scrutiny Committee on the grounds of urgency? GM Transport Committee Overview & Scrutiny Committee [Date considered at GM [Date considered by the Transport Cttee if appropriate] relevant Overview & Scrutiny Committee]

Page 217

1. INTRODUCTION

1.1 On 29 March 2018, GMCA agreed to allocate £160 million of Greater Manchester’s £243 million Transforming Cities Fund to develop a Mayor’s Cycling and Walking Challenge Fund (MCF).

1.2 The fund is being used to deliver the first phase of the Bee Network, which is the walking and cycling element of the Our Network plan to transform Greater Manchester’s transport system. The Bee Network, once complete, will cover circa 1,800 miles and be the longest, integrated, planned network in the country connecting every neighbourhood of Greater Manchester. The initial network plan was contained in Greater Manchester’s cycling and walking infrastructure proposal (adopted by GMCA in June 2018), as part of a GM Streets for All highways improvement programme.

1.3 On 27 July, 28 September, 14 December 2018 and 29 March, 28 June, 29 November 2019, GMCA sequentially approved Tranches 1 to 6 of the Mayor’s Cycling and Walking Challenge Fund, granting schemes Programme Entry. In total this comprised 82 cycling and walking schemes with a forecast MCF funding requirement of £358.5 million, and a forecast overall value of £492.7 million, including local contributions. This figure excludes Programme Management costs and the GM Bike Hire scheme.

1.4 Following the over-programming of the MCF and the creation of an infrastructure pipeline, on the 5 May 2020 GMCA approved the first phase of Bee Network delivery, based on identified District priorities. This phase has a forecast value of £216.5 million. Details of the schemes contained within this phase can be found at Appendix 1.

1.5 This paper recommends funding approvals associated with the ongoing implementation of the Bee Network through the Mayor’s Cycling and Walking Challenge Fund, and includes funding approvals for both scheme development costs and full scheme delivery. This is intended to be a monthly funding approval paper in support of MCF programme delivery.

2 MCF DEVELOPMENT COST APPROVAL

2.1 Over the last 2 years, TfGM has been working closely with scheme promoters to set up and progress the projects in line with the agreed governance arrangements, and continues to utilise TfGM’s established Cycling & Walking Infrastructure Support Team to provide collaborative support to Local Authority partners.

2.2 Following Programme Entry, Local Authority partners can proceed with the development of their schemes, including progressing the necessary powers and consents, prior to obtaining either Conditional Approval and/or Full Approval of their scheme Business Cases.

Page 218

2.3 Under MCF governance, once a scheme has secured Programme Entry, scheme promoters can submit a development cost budget request signed off the relevant Section 151 officer. Once agreed, this provides the confidence that all reasonable development costs through to the next approval stage (either outline or full) will be funded.

2.4 Details of the schemes for which Development Cost funding approval is sought, is set out below. These forecast development costs have been submitted to TfGM and reviewed and signed off by the MCF programme team.

 Manchester Beswick will develop and deliver a Bee Network supporting Active Neighbourhood. It received MCF Programme Entry through Tranche 6 on 29th November 2019 and has a development cost ask from the MCF of £333,656.

 Salford Trinity Way/Springfield Lane Crossing will provide pedestrian and cycle crossing facilities at the Trinity Way/Springfield Lane junction. It received MCF Programme Entry through Tranche 2 on 2 September 2018 and has a development cost ask from the MCF of £177,141.

 Salford Brougton Cycleway Enhancement will provide two new controlled parallel crossings and upgrades to existing crossings at junctions. It received MCF Programme Entry through Tranche 5 on 29th June 2019 and has a development cost ask from the MCF of £446,115.

 Salford City Centre Bee Network will provide controlled parallel crossings at three proposed locations and wider highway upgrades to incorporate cycles in support of Bee Network delivery. It received MCF Programme Entry through Tranche 5 on 29th June 2019 and has a development cost ask from the MCF of £477,092.

 Trafford Wharfside Way, Moss Road will provide shared and segregated walking and cycling facilities linking together Stretford, Trafford Park locations, Media City locations, Bridgewater Way, Old Trafford Stadia, National Cycle Network infrastructure and Metrolink stations. It received MCF Programme Entry through Tranche 4 on 29 November 2019 and has a development cost ask from the MCF of £477,200.

2.5 These five schemes represent a combined development cost budget ask from the MCF of £1,911,204. Their approval would result in a total of 50 MCF schemes having received development cost budget approval, with a combined ceiling budget of £25.8 million.

3 MCF FULL SCHEME APPROVAL

3.1 Having previously received MCF Programme Entry, delivery of the following schemes is now recommended for Full Approval, requiring a total MCF contribution of £3,082,775 . Full

Page 219

Approval will enable the release of delivery funding through signing a legal delivery agreement.

3.2 Both schemes set out below were subject to a business case review, undertaken by the MCF Programme Team, which concluded that the schemes fulflled the required five-case criteria (Strategic, Economic, Management, Financial and Commercial). This recommendation was endorsed by the 21 July Cycling and Walking Programme Board, and subsequently reported to the GM Cycling and Walking Board via written procedures.

3.3 Stockport Gillbent Road, which has an MCF funding requirement of £589,775. The Gillbent Road scheme represents an innovative intervention on a key, busy highway link within the residential area of Cheadle Hulme, Stockport. The scheme will address a key point of severance on the Bee Network through improvements to an existing crossing point in proximity to Thorn Grove Primary school, and is to be combined with segregated space for cyclists and pedestrians.

3.4 Stockport Heatons Cycle Link, which has an MCF funding requirement of £2,493,000. The scheme will deliver a series of walking and cycling improvements around the Heatons area of Stockport. The works will provide new local community connections, in addition to forming a complete north-south 6km Beeway route connecting the Manchester Fallowfield Loop (NCN Route 6) to the TransPennine Trail (NCN Route 55).

3.5 Full Approval of these schemes would result in a total of nine MCF work packages having secured full funding approval, with a total committed value of £12.9 million of MCF funding.

4 RECOMMENDATIONS

4.1 The recommendations are set out at the front of the report.

Eamonn Boylan

Chief Executive Officer, GMCA & TfGM

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Appendix 1: MCF Prioritised Schemes

Schemes to be Delivered – in full or in part

Tranche 1 Bolton: B6226 Chorley New Road Bury: Metrolink Bury Line – Cycle Parking Bury: New and Upgraded Crossing Points and Junctions Manchester: Manchester to Chorlton Oldham: King Street foot/cycle bridge Oldham: Union Street West foot/cycle Bridge Rochdale: Castleton Local Centre Corridor Salford: SBNI – A6 Broad Street / B6186 Frederick Road Salford: Chapel Street East Phase 1: Demonstrator Project Stockport: Gillbent Road – Crossing Upgrade Tameside: Tameside Active Neighbourhoods Trafford: A5014 Talbot Road Wigan: Victoria Street/Warrington Road Junction Improvements

Tranche 2 Salford: Swinton Greenway Stockport: Hazel Grove Access Upgrades Trafford: Talbot Road A56 Chester Road Wigan: Standish Mineral Line

Tranche 3 Salford: Trafford Road Wigan: Toucan Crossings – Wigan Central

Tranche 4 GM: GM Bike Hire Manchester: Levenshulme Mini Holland Manchester: Mancunian Way/Princess Parkway Junction Manchester: Rochdale Canal Bridge 88-80a Manchester: Route 86 (Northern Quarter) Rochdale: Castleton Town Centre Phase 2 Salford: Barton Aqueduct Stockport: A6 MARRR Links

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Stockport: Bramhall Park to A6 Stockport: Crossings package Stockport: Heatons Cycle Link Stockport: Interchange Stockport: Ladybrook Valley

Appendix 1: MCF Prioritised Schemes – continued

Tameside: Crown Point Trafford: Wharfside Way Wigan: Leigh Atherton Tyldesley

Tranche 5 Bolton: Town Centre Phase 1 (East) Bury: Fishpool GM: Active Neighbourhoods Support GM: Safety Camera Digitisation and Upgrade Manchester: Northern and Eastern Gateway Salford: City Centre Package Salford: RHS Links Stockport: Heaton Norris Park Bridge Stockport: Hempshaw Lane Tameside: Ashton South Tameside: Ashton Streetscape Scheme Trafford: Sale - Sale Moor - Sale Water Park Trafford: Urmston Area Active Neighbourhood Wigan: Standish to Ashton

Tranche 6 Bolton: Astley Bridge-Crompton Bolton: Westhoughton Bee Network Bury: Elton Bury: Pimhole Bury: Radcliffe Central GM: Bee Network Crossings Manchester: Beswick Filtered Neighbourhood Manchester: Manchester Cycleway Oldham: Chadderton Improvements Oldham: Oldham Town Centre Improvements Oldham: Park Road (NCN 626) Town Centre Connection Oldham: Royton Town Centre Connection Stockport: Romiley Neighbourhood and Links Stockport: Thompson Street Bridge

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Tameside: A57 Denton to Hyde Trafford: North Altrincham Bee Network Trafford: Seymour Grove

Appendix 1: MCF Prioritised Schemes - continued

Schemes for Development Only

Stockport: Welkin Road - Town Centre Severance Package Tameside: Ashton West Retail Centre Link Bridge Oldham: Park Bridge (NCN 626) – Ashton under Lyne Manchester: Oldham Road (Inner Radial) Stockport: Heatons WRH Salford: Trinity Way/Springfield Lane Crossing Salford: Monton Town Centre Salford: Ordsall Filtered Neighbourhood Salford: Liverpool Street Corridor

Page 223 This page is intentionally left blank Agenda Item 14

Date: 2 September 2020

Subject: GM Housing Investment Loans Fund: 2019/20 Update Report

Report of: Salford City Mayor Paul Dennett, Portfolio Lead for Housing, Homelessness and Infrastructure and Eamonn Boylan, GMCA Chief Executive

PURPOSE OF REPORT

This report is to inform the Combined Authority of the position the GM Housing Investment Loans Fund to 31 March 2020.

RECOMMENDATIONS:

The GMCA is requested to:-

1. Note the position of the GM Housing Investment Loan Fund at 31 March 2020, noting that there has been no requirement for GMCA to account for any impairments as a result of the performance of the Fund. 2. Note that discussions with Government are ongoing to vary the terms of the GM Housing Investment Loans Fund agreement and provide further funds to GMCA and/or remove the requirement for funds to be handed back at year-end, and therefore maintain and increase the Fund’s capacity to support the delivery of new homes.

CONTACT OFFICERS: Bill Enevoldson ([email protected]) Andrew McIntosh ([email protected])

BACKGROUND PAPERS: Housing Investment Fund (report to GMCA, 27 February 2015) GM Housing Fund – Investment Strategy (report to GMCA, 26 June 2015) GM Housing Fund: Updated Investment Strategy (report to GMCA, 29 July 2016) GM Housing Investment Loans Fund: Revised Investment Strategy (report to GMCA, 25 October 2019.

Equalities Implications: none Climate Change Impact Assessment and Mitigation Measures: none Risk Management: see section 7

Page 225 Legal Considerations: none Financial Consequences – Revenue: see section 6 Financial Consequences – Capital: see section 5 Number of attachments to the report: none Comments/recommendations from Overview & Scrutiny Committee: N/A

TRACKING/PROCESS [All sections to be completed] Does this report relate to a major strategic decision, as set outin No the GMCA Constitution

EXEMPTION FROM CALL IN Are there any aspects in this report which Report is for information not decision means it should be considered to be exempt from call in by the relevant Scrutiny Committee on the grounds of urgency? GM Transport Committee Overview & Scrutiny Committee [Date considered at GM [Date considered by the Transport Cttee if relevant Overview & appropriate] Scrutiny Committee]

1 INTRODUCTION

1.1 The £300m GM Housing Investment Loans Fund (“GMHILF” or “the Fund”) was approved by the GMCA in March 2015 along with the initial Investment Strategy. The GMHILF was publicly launched in June 2015.

1.2 In March 2019, the Fund transferred from Manchester City Council to GMCA. Under the terms of the loan agreement with Government, GMCA has underwritten 80% of the Fund.

2 PROGRESS OF THE FUND

2.1 To 31 March 2020 GMCA has approved a total 67 GMHILF loan offers amounting to £508.3m. Excluding 15 loan offers with a total value of £75.7m which were not taken up and have therefore been withdrawn, the status of the approved loans is summarised in the table below1.

Status No Of Projects Total Units Total Loans Repaid Funds 23 2,307 £166.7m

1 All other figures given in this report exclude loans which have been withdrawn.

Page 2226 Drawing Funds 18 3,367 £242.9m Approved 11 215 £22.9m Total Committed 52 5,889 £432.5m

2.2 To 31 March 2020, GMCA has also approved two GMHILF equity investments amounting to £7m (in both cases, the funds GMHILF is investing equity in will operate on a GM-wide basis).

2.3 The distribution of approved loans and equity investments by local authority area, according to both the number of schemes supported and the value of the GMHILF loan/equity investment being provided, is illustrated at Appendix 1.

2.4 The £300m being provided by Government for investment through the Fund is drawn down in yearly tranches, with funds not deployed at the end of the financial year returned to Government and, during the early years of the Fund, available to be re-drawn. To 31 March 2020, a total of £445.5m had been drawn down with £264.2m returned, leaving a balance of £181.3m. Government has confirmed that, in line with the provisions of the loan agreement under which the funding is drawn, it does not expect to provide further funding, or vary the requirement for GMCA to repay any funds it holds at year-end. Discussions with Government around these points are ongoing as part of GM’s ask for flexibility across a number of areas to support its recovery from the COVID19 pandemic.

3 MEETING GM HOUSING OBJECTIVES

3.1 The Fund was established with the aim of delivering at least 10,000 new homes over its 10-year lifetime. Government’s current position regarding the provision of further funding means that the Fund may not reach the full £300m investment capacity that was originally envisaged. However, based on the number of new homes being delivered within the portfolio of schemes supported to date and in view of the strategy agreed by GMCA in May 2020 to maintain and increase the Fund’s capacity, the Fund is on track to deliver its 10,000 new homes target. Continuing to bring forward a pipeline of schemes to take up headroom created as existing commitments repay and so maintain the Fund at its current capacity, and/or securing flexibility from Government regarding the requirement for GMCA to repay any funds not invested at year end, will, however, be key to this.

3.2 A large proportion of the Fund’s first cycle of investments constituted senior debt for city centre developments, for which there has been clear demand and which has been key to maximising the funds available from Government and so build the Fund up to its current level. As shown in the graph at appendix 1, there has, however, also been a strong emphasis on ensuring that the Fund is also supporting schemes across GM, with 37 loans totalling £89m for schemes outside the city centre approved. This emphasis will continue, while also recognising that the largest schemes will primarily be in the city-centre, and that support for these will continue to make a significant contribution to the number of new homes the Fund delivers, maintain the Fund’s capacity at the maximum level possible, and generate income for GM to support its wider housing objectives.

Page3 227

3.3 The Fund has continued to target support for SME housebuilders, with a number of measures including:  the creation of a Small Loans Fund for lending of up to £2m, offering a streamlined process and simplified lending requirements specifically designed to support SME housebuilders;  a loan pricing framework which does not include the commitment and exit fees often charged by mainstream lenders, reducing the costs of finance which can be a constraint on scheme viability for SME housebuilders;  an Investment Strategy which allows GMCA to consider flexible lending structures, including higher loan to cost and loan to value lending ratios than are often applied by mainstream lenders, and the recycling of receipts to allow phased completion of schemes, in both cases reducing the amount of funding of their own that SME housebuilders have to provide to deliver schemes.

3.4 Of the 52 loans approved prior to 31 March 2020, 32 have been to SME developers, the vast majority of which are GM-based, with £58.7m of support provided.

3.5 Affordable housing provision within developments is dealt with at a local level in line with local policies, national planning legislation and the government’s National Planning Policy Framework, and the extent to which the Fund is able to support affordable housing delivery is therefore driven by the mix of tenure within consented schemes that seek investment from the Fund. Within the portfolio of loans approved prior to 31 March 2020, there are 5 schemes which include an element of affordable housing and which will together deliver 131 affordable units. A £5m equity investment in the Social & Sustainable Housing Fund, which is expected to deliver around 80 social housing units over its lifetime, was also approved.

3.6 Since April 2020, GMCA has approved a further £10m of equity investment in two funds which are also focussed on Registered Providers and charities providing housing for vulnerable people, and which are together expected to deliver around 160 social housing units over their lifetime. The Fund’s ongoing work to deliver a greater number of affordable/social housing units has therefore already crystallised in support for a significant amount of affordable units, and the next reporting cycle will therefore set out a markedly improved position in respect of this objective.

3.7 GM is in the process of preparing its submission in response to the Next Steps Accommodation Programme announced by Government in May 2020, which offers both revenue and capital support to tackle homelessness. In conjunction with the GM Housing Providers Group, options are being explored to invest GMHILF alongside capital from Next Steps to support a new approach to providing housing for rough sleepers and use this as the basis for a model to provide further affordable and social housing with the objective of all residents of Greater Manchester being able to access good quality accommodation.

Page 4228 3.8 Of the units whose delivery the Fund is supporting, over 5,500 are being delivered on brownfield land. This is supporting the objectives and principles being developed as part of the GM Spatial Framework to deliver housing within Town Centres and on brownfield in preference to building on important green spaces and the Green Belt in line with the brownfield first principle being adopted in the GM Spatial Framework.

3.9 The revised GMHILF Investment Strategy approved by the GMCA in October 2019 established that the Fund would in future adopt a more flexible approach to the type and structure of investments that may be necessary to unlock higher risk schemes. The approach fully supports the objectives of the GM Housing Strategy to deliver mixed housing tenure across the whole of Greater Manchester.

3.10 Work is ongoing with Local Authorities to bring forward projects into which the GMHILF can invest in a more flexible way that helps overcome viability challenges that are evident in the existing Town Centres. The GMCA has already given in principle approval to investment of up to £5m and £4m respectively in the Stockport Interchange and Rochdale Riverside Phase 2 schemes, both of which contribute to wider regeneration strategies for their locations through physical renewal and increasing town centre living to support local economic growth.

3.11 In addition to resourcing the Fund’s operation, GMHILF generates surplus income (see section 6) which GMCA is able to retain. In December 2018, GMCA agreed that going forward surplus income would be used to support GM’s wider housing objectives across the following areas:  Delivery of truly affordable housing;  Bringing back into use Empty Homes;  Addressing issues arising from rogue landlords;  Creating a fund to buy out landlords operating poor / unfit private rented stock across GM

3.12 To date, GMCA has approved the use of £1.75m of GMHILF surpluses over the course of 2019 to 2022 to resource the establishment and operation of the GM Delivery Team to further accelerate housing supply. Further proposals for the use of GMHILF surpluses are being worked up and will be brought before GMCA for approval in due course.

3.13 As well as progressing work on GM’s wider housing objectives, the GM Delivery Team budget has been specifically used to create a new post focussing on the Private Sector Rented sector, and significant progress has been made in relation to developing a Good Landlord Scheme for GM, which will be brought to the GMCA in the near future for further consideration.

4 IMPACT OF COVID19

4.1 The vast majority of schemes currently undergoing construction were shut down in the early weeks of lockdown, and across the board the Fund has taken steps to ensure that, when construction work re-commenced, all sites are operating appropriate safe-working protocols in line with Government guidelines.

Page5 229 4.2 Inevitably, and although all sites have now re-opened, due to the cessation of construction a number of borrowers have requested extension of the deadlines under their loan agreements for completing construction and, in order to give a reasonable period following construction to achieve the necessary sales, repayment of the loan. The Fund has adopted a reasonable position in agreeing these requests. 4.3 The Fund has utilised its network of contacts within the property sector to understand predicted longer term impacts on demand and values as a result of COVID19. Currently, the consensus is that while values will drop in the near-term they are, in part as a result of constrained supply, likely to recover to pre-COVID19 levels relatively quickly. However, the volume of transactions is not expected to recover to pre-COVID19 levels until at least 2023. Further requests from borrowers to extend their loan repayment deadlines can therefore be expected, and the Fund will continue to act reasonably in response to these requests. 4.4 In terms of immediate COVID19 impacts, there have been no borrower defaults. One contractor on a scheme being supported by the Fund has gone into administration, and a recovery plan has been agreed with the borrower in the normal course of business. Project and portfolio level exposure in the face of market changes will continue to be monitored under the supervision of the Fund’s Credit Committee. 4.5 Whereas mainstream lenders are, in the face of uncertainty, expected to tighten their appetite, the Fund will continue to support new schemes in recognition of the fact that, in addition to supporting GM’s housing objectives, maintaining development activity will be important to protecting and creating jobs in the construction sector and signalling confidence in GM’s economic recovery from the impact of COVID19.

5 OUTTURN AND FORECAST CAPITAL EXPENDITURE

5.1 Based on those projects approved to date, the actual and forecast capital expenditure position for the Fund at 31 March 2020 and in the coming financial years is as follows:

Actual/ Forecast Actual/ Net Capital Financial Year Capital Expected Exposure at period Expenditure Repayment end 2015 / 16 £17m - £17m 2016 / 17 £54.1m (£29.3m) £42m 2017 / 18 £55.2m (£53.8m) £43.2m 2018 / 19 £90.3m (£15.4m) £118.1m 2019 / 20 £106.2m (£43.1m) £181.1m 2020 / 21 £63m (£63.3m) £180.8m 2021 / 22 £25.2m (£189.7m) £16.3m

Page 6230 5.2 The loans and equity investments approved to 31 March 2020 equate to a commitment of £439.5m. Of this commitment, 23 loans have been repaid in full resulting in a commitment to fund £272.8m.

5.3 In light of Government’s position regarding the provision of additional funding, in May 2020 GMCA agreed a strategy to maintain and increase the Fund’s capacity by utilising other funding available to it. Subsequently, the Fund’s lending to 3 schemes with a combined value of £18.9m has been re-financed using headroom within GM’s Local Growth Fund allocation, giving a revised commitment to fund £253.9m. The maximum forecast Fund investment against this commitment is £184.6m.

5.4 Work is ongoing to bring forward the pipeline of further loans, with particular focus on 2021/22 onwards given that a significant amount of current commitments are expected to repay during the course of 2020/21.

6 OUTTURN REVENUE COSTS AND GMCA BUDGET

6.1 With the exception of the first year of GMHILF’s operation, when operating costs were largely met through the agreed budget for the GMCA Core Investment Team, the GMHILF is expected to be self-financing. The agreement with Government allows GM to retain the loan arrangement and management fees charged on lending and up to £2.5m per annum of the interest generated on loans made by the Fund (over and above the minimum amount of interest levied for the purpose of state aid compliance, which passes back to Government). This income is used to fund the operation of the Fund (primarily GMCA Core Investment Team staff costs and consultancy inputs). Again, as part of GM’s ask for flexibility to support its recovery from the COVID19 pandemic, a proposal for GMCA to retain all interest generated by the Fund has been put to Government.

6.2 The table below out sets out on a cash basis the actual and forecast income to be retained by GM that will be generated by GMHILF loans approved prior to 31 March 2020. Prior to COVID19, the schemes supported by the Fund performed exceptionally well, with loans repaid quicker than expected and with income generated below forecast as a result.

Cumulative End GMHILF Retained GMHILF Operating Net Revenue Financial Year Income Budget Position

Prior to 2019 / 20 C/F £3.8mm

2019 / 20 £3.3m £1.6m £5.5m

2020 / 21 £4.9m £1.7m £8.7m

2021 / 22 £1.6m £1.8m £8.5m

Page7 231 6.3 Further surplus income will be generated as existing commitments are repaid and recycled to fund new commitments. The extent of that income will, however, be dependent on the strength of the pipeline and the outcome of ongoing discussions with Government around greater flexibility within the terms of the funding it has provided to date and the provision of additional funding.

7 FUND IMPAIRMENTS, DEFAULTS AND WRITE-OFFS

7.1 The Fund’s Underperforming Debt / Default Management Policy describes the approach and process that the Fund will follow in the event that a borrower experiences financial problems or defaults on its loan obligations.

7.2 As at 31 March 2020, 23 loans GMCA have been fully repaid. There have been no payment defaults and, while some schemes have inevitably encountered construction delays which have required the loan repayment dates to be pushed back, nor is there currently any indication that any loans will default on repayment obligations.

8 SUPPORTING PORTFOLIO ANALYSIS

8.1 The graphs included at Appendix 1 shows the distribution of loans and equity investments approved by GMCA as at 31 March 2020 across the GM Local Authorities.

8.2 Apartments in the city centre includes flats or apartments in Manchester city centre and those parts of Salford and Trafford which adjoin the city centre. The original guidelines proposed and the cash position of the Fund against these guidelines are as follows:

Guideline £ of £300m Maximum Forecast Cash Housing type Fund Investment Apartments for Sale / rent £200m £144.3m Including Apartments forward £250m £144.3m sold Single Developer 30% £70.0m

9 CONCLUSIONS AND RECOMMENDATIONS

9.1 The GMCA is requested to note the contents of this report.

Page 8232 APPENDIX 1 – Distribution of approved loans

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