FSSC b
FINANCE SCRUTINY SUB-COMMITTEE
Date and Time: Thursday, 19 October 2006 7.00 pm
Venue : Room 8, Lambeth Town Hall, Brixton Hill, SW2 1RW
Democratic Services Officer : Antoinette Duhaney Democratic Services Tel/Voicemail: 020 7926 2167 London Borough of Lambeth, Fax: 020 7926 2755 Lambeth Town Hall, Brixton Hill, Email: [email protected] London, SW2 1RW Website: www.lambeth.gov.uk
Despatched: Wednesday, 11 October 2006
MEMBERS: Councillors C. BENNETT, D. MORRIS, F. NOSEGBE, P. ROBBINS and P. TRUESDALE
SUBSTITUTE MEMBERS: Councillors M. CAMERON, G. DODSWORTH, B. PALMER and N. SABHARWAL
AGENDA
Appendices to reports- bulky appendices are published on the Website www.lambeth.gov.uk and can be obtained from report authors/Clerk or at the meeting. They are not circulated with the agenda.
PLEASE NOTE THAT THE ORDER OF THE AGENDA MAY BE CHANGED AT THE MEETING
Page Nos. 1. Welcomes and Introductions
2. Apologies
3. Declarations of Interest
4. Minutes (13.09.06) 1 - 6
5. Delivering the Capital Programme: Revitalise 7 - 22
(report 154/06-07) (All wards / All areas)
Report by Executive Director of Regeneration & Housing Contact for inquiries: Jo Negrini, Programme Director 020 7926 2896 [email protected]
6. Building Schools for the Future: Project Delivery 23 - 36
(report 155/06-07) (All wards / All areas)
Report by Executive Director of Children & Young Peoples Service Contact for inquiries: Kester McMorris, BSF Programmer 020 7926 3210 [email protected]
7. Progress on Preparation of the Corporate Property Strategy and 37 - 112 Asset Management Plan
(report 156 /06-07) (All wards / All areas)
Report by Executive Director of Regeneration & Housing Contact for inquiries: Uzo Nwanze, Head of Asset Strategy, 020 7926 9929 [email protected]
Appendix 2 which accompanies this report (pages 57 – 112) has been circulated to Members of the sub-committee only . Copies can be obtained from the report author or the Democratic Services contact Officer on request or downloaded from the website www.lambeth.gov.uk
8. Voluntary and Community Sector Premises Portfolio 113 - 120
(report 157/06-07) ( All wards / All areas)
Report by Executive Director of Regeneration & Housing Contact for inquiries: Mike Perrott, Principal Property Manager, 020 7926 0453 [email protected]
9. Lambeth Benefits Service Review September/October 2006 121 - 132
(report 158/06-07) ( All wards/ All areas)
Report by Executive Director of Finance and Resources Contact for inquiries: Vincent Seivwright-Smith, Divisional Director of Lambeth Benefits Service, 020 7926 0990 vSeivwright- [email protected]
FINANCE SCRUTINY Deadline to send Deadline Date Agenda Published Meeting 7.30pm Decision reports to Legal and [5pm 8 clear [5 clear days] Published by Finance (5pm) days] [5 clear days] [14 clear days]
31.05.06 09.06.06 14.06.06 22.06.06 30.06.06 27.09.06 06.10.06 11.10.06 19.10.06 27.10.06 08.11.06 17.11.06 22.11.06 30.11.06 08.12.06 24.01.07 02.02.07 07.02.07 15.02.07 23.02.07 16.04.07 25.04.07 30.04.07 09.05.07 17.05.07
Access Information
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Accessing Agendas, Reports and Minutes All public committee papers are available for inspection at Lambeth libraries , and also on the internet from the day of publication in the following manner: • Log on to www.lambeth.gov.uk • On the Home Page (bottom left), click on Democracy @ Lambeth • In the list on the left: either o If you know the date of the meeting concerned click on the seventh item - How to get involved and scroll down to the – Meetings and Events Diary . Navigate your way to the date concerned and click on the name of that meeting. At the bottom of the page that appears, there is a list of Associated documents - the list of reports on the agenda for that meeting. o Or click on the fifth item – documents of meetings . Navigate your way to the meeting and documents you want. If you are unable to locate the document you require, please contact the officer shown on the front page above.
Procedure before taking Key Decisions and Publication of the Forward Plan (Constitution: Part 4 Section 2 Procedure Rules 13 & 14) • The Forward Plan is published monthly; it sets out key decisions to be taken over the next four months. It is available to the public on the Council’s website, at the Town Hall or in Lambeth public libraries. • Please contact the officer listed on the front page if you want to know more.
Public Notice Quest ions (Part 4 Section 1 Procedure Rule 10) • Written questions concerning the matters within the responsibility of the Council may be submitted by a member of the public (Council Tax payers, Business Rate payers or local government electors) by post or via Email to the Head of Democratic Services at [email protected] • Questions should be submitted as early as possible and at least 10 clear days before the meeting so as to enable the item to be included on the agenda and for a response to be prepared. • Only persons residing or working in the area concerned can submit a question to an area committee, and such a question must concern that one area only. • The answer to the question will be sent to the questioner within 10 working days,
and included on the agenda. • At the relevant meeting, the member of the public or Councillor putting the question may attend and ask a concise supplementary question relevant to the original question or answer given but may not make a speech.
Speaking rights at sub-committees and committee meetings (Part 4 Section 1 Procedure Rule 10) • At Area Committees, the Chair will encourage questions and contributions from members of the public on all agenda items, subject to guidance from the Chair on time allowed for the particular item and the guillotine for the meeting. • At other Committees and the Executive, speaking rights are solely at the discretion of the Chair.
Petitions (Part 4 Section 1 Procedure Rule 10) • Petitions may be presented by members of the public or Councillors: o To the Mayor. o To the Chief Executive or other officers o To a Councillor or o At a meeting of the relevant area committee where the petitioner is entitled to advise briefly of the subject matter of the petition and the number of signatories involved, but not otherwise to make a speech. • Such petitions will be acknowledged and referred to an appropriate officer who will be required to send an answer to the lead petitioner or member (and ward members) within four weeks.
Deputations (Part 4 Section 1 Procedure Rule 10) • Deputations of local people concerned with a particular issue should write to the Head of Democratic Services briefly setting out the issue of concern. The deputation will then be advised to the relevant sub-committee, committee meeting (Area or Scrutiny) or Council meeting which the deputation is asked to attend to raise their issue of concern. • Deputations will not normally be heard where a deputation at any meeting of the Council or any of its committees or sub-committees, has been heard on the same, or essentially the same, issue within the last six months.
This page is intentionally left blank Page 1 Agenda Item 4
FSSC b
FINANCE SCRUTINY SUB-COMMITTEE
Wednesday 13 September 2006 at 7.30 pm
MINUTES
PRESENT: Councillor Clive Bennett, Councillor Diana Morris, Councillor Peter Robbins (Chair), Councillor Neil Sabharwal (Substitute) and Councillor Peter Truesdale (Vice-Chair)
APOLOGIES: None
ALSO PRESENT: Councillor Andrew Gibson
Action required by
1. APOLOGIES AND INTRODUCTIONS The Chair welcomed attendees and asked them to introduce themselves. 2. DECLARATIONS OF INTEREST No declarations of interest were made. 3. MINUTES RESOLVED That the minutes of the previous meeting held on 22 June 2006 be approved and signed by the Chair as a correct record of the DSO proceedings subject to the agreement of an additional item in the work programme under item 5 (page 5) relating to the exploring all sources of finance available to the Council to ensure that all potential funding opportunities are maximised. 4. FINANCE MONITOR The report was introduced by Richard Hornby, Divisional Director DSO Resources who briefly outlined the current and forecast position in respect of
• The General Fund and Housing Revenue Account • The General Fund and Housing Revenue Account Capital Programme • The collection fund • Debt collection and prompt invoice payment.
The sub-committee discussed the details in the report and in response to specific questions officers responded as follows:
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• A negative balance represented an underspend and a positive balance an overspend;
• Sundry debt included any money owed to the Council (other than rent or Council Tax) and included items such as commercial waste fees, venue hire charges, social care contributions and Section 20 debt;
• Section 106 payments due to the Council were not included in sundry debts but were monitored separately and details on this could be circulated to Members with the draft minutes;
• It was difficult to give any indication of what might be an acceptable level of debt bit it was essential that debts were collected promptly and old debts written off;
• Although there were no formal sanctions, in the event of late financial returns from departments, the Executive Director of Finance would be alerted;
• Members of the sub-committee would be included as recipients of the finance monitors and the information would be circulated to all recipients simultaneously. (see circulation timetable attached to the minutes)
RESOLVED
That the protocol for production and distribution of the Finance Monitor be noted. 5. JULY FINANCE REVIEW The report was introduced by Richard Hornby who outlined the overall financial position and highlighted the main challenges facing the LSO Council. In response to questions and comments from Members, officers responded in the following terms:
• The Council Tax collection model was prudent because the Mayor for London penalised Councils who failed to meet their collection targets. However the Council was able to retain any surpluses over and above the collection target.
• Some of the savings from the rationalisation of office accommodation and the purchase of Phoenix House had been realised although this could be made spelled out more clearly.
• Officers were unclear whether all of the Domesday receipts were reflected in the Housing Revenue Account.
• The mechanics of the star chamber process and the individual submissions were not open to general scrutiny.
• In respect of BVP18 (invoice payment), the Council was below Page 3
the London average but further details on this would be circulated to Members.
• It was likely that the substantial increase in sundry debt was a result of the recent quarterly billing run which had taken place.
• A section 20 briefing note could be provided including details of the housing rent suspense account.
• Lobbying should be given a higher profile to enable the Council to highlight the key areas of concern including more joint working with other Councils. However any claims would have to be well substantiated and evidenced and the methodology and outcomes challenged. A specific brief would be circulated to Members.
• Members would get an opportunity to review the implications of the Rate Support Grant settlement in December 2006 or early January 2007
Officers agreed to provide a detailed list of all the issues raised by Members to be published with these minutes.
The Lead Scrutiny Officer undertook to advise Members which scrutiny sub-committees were considering their relevant departmental budgets.
RESOLVED
(1) That reports on actions by Executive Directors to manage budget pressures be submitted to future meetings or other relevant scrutiny sub-committees as appropriate.
(2) That the report on capital programme delivery which is to be submitted to the October meeting include information on
• Disposals
• Capacity levels and expertise for supporting delivery of capital projects across the Council with particular emphasis on the Regeneration & Housing capital programme.
• Comparisons with the delivery of BSF schemes in other Councils
(3) That the report on budget consultation which is to be submitted to the November meeting include information on the brief for contractors. 6. CLOSE OF MEETING The meeting ended at 8.50pm.
CHAIR Page 4
FINANCE SCRUTINY SUB-COMMITTEE Thursday, 19th October, 2006
Date of Despatch : Monday 25 th September 2006 Contact for Enquiries : Antoinette Duhaney Tel: 020 7926 2167 Fax: 020 7926 2755 E-mail: [email protected] Web: www.lambeth.gov.uk
The action column is for officers' use only and does not form a part of the formal record.
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Item 5 - July Finance Review Queries
Paul Cook What is the latest forecast out-turn for the HRA and what is the expected level of balances?
Bev Winter Page 11 of the June finance monitor highlights that no cases have been sent the bailiffs approached 1 st June. Is this still the case?
Conrad Hall Page 13 of the June finance monitor described 233 invoices with a combined value of £300,000 outstanding since 1 st April 2005. Can this be broken down by department?
Helen Charlesworth-May Page 17 of the June finance monitor describes a reduction of 66,000 hrs to bring the brokerage service in on-line. What is the likely effect of such a reduction?
Richard Hornby Have the savings forecast in the original business case for Phoenix House been achieved?
Bev Winter Have there been any improvements in the quality of tickets issues and if so, has there been any reduction in the cost of managing representations and appeals?
Finance Monitor The current circulation list for the finance monitor includes members of the cabinet and ‘leading members’, Cllr Truesdale & Whelan. Cllr Lumsden is the Leader of the Liberal Democrat group and should be included instead of Cllr Truesdale.
Conrad Hall The Sub-committee asked that the finance monitor be circulated to its Chair and the Vice-Chair.
Where performance information covers items such as council tax collection and payment of invoices, can comparative information be included to show how Lambeth’s performance compares with other Councils?
Where brackets are used on tables to denote under or overspends, can the table show which they denote?
The debt shown on page nine had the amount over 361 days for E&CS as £1.393m. But the commentary says that parking and commercial waste have £0.7m and £0.9m respectively. Is there an explanation for this contradiction? Richard Hornby Are S106 sums due included in Sundry debt? Page 6
Richard Hornby Can the latest S106 briefing be shared with members of the sub-committee?
Paul Cook What is the current position of the Housing capital programme?
Bev Winter (Jon Williams) Paragraph 2.12 of July Finance review describes the discrepancy between the amount of budget spend and the amount of programs on the scheme. Has this been resolved?
Conrad Hall Can the brief for the firm engaged for lobbying be shared with the sub-committee? Will the work of this exercise cover recounting a sample of the population and extrapolating the results to challenge this ONS census?
Agenda Item 5 Page 7
b Finance Scrutiny sub-committee 19 October 2006
Delivering the Capital Programme: Revitalise Item 5 All wards/ All areas
Report authorised by : Chris Lee, Executive Director, Regeneration and Housing
Executive summary
This report has been prepared in response to a request from Members of the Finance Scrutiny Committee. The report gives an introduction to the project, highlights the various projects, updates Members on progress thus far, and considers the main threats and risks to the project. The report concludes with an assessment of what additional support may be required to ensure the effective delivery of the Revitalise programme.
Summary of financial implications
The issues covered within this report do not have any direct financial implications. The Major Projects team within the Finance and Resources department work with the Revitalise team to ensure a rigorous appraisal is carried out for all projects as part of the decision making process.
Significant financial resources were established as part of last year’s budget setting process to support the Revitalise programme in particular. This is currently reviewed both as part of the review of the capital programme as well as the scope of Revitalise. The outcome of both pieces of work will be reported to Cabinet in November.
Recommendations (1) That the report be noted.
Consultation
Name of Directorate or Organisation Date sent Date Comments consultee to response appear in consultee received report para: from consultee
Internal Chris Lee Executive Director of 06.10.06 Regeneration and Housing Owen Barclay Legal and Democratic Services 02.10.06 02.10.06 3 Debbie Hunter Finance and Resources 06.10.06 3 Councillor Cabinet Member, Regeneration 09.10.06 McGlone & Enterprise Entered in Consultation and Events Diary? N/A
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Report history
Date report drafted: Report Date report sent: Report no.: deadline: 2.10.06 6.10.06 2.10.06 /06-07 Report author and contact for queries: Jo Negrini, Programme Director 020 7926 2489 [email protected]
Background documents
None
Appendices
None
Delivering the Capital Programme: Revitalise
1. Context
This report addresses a number of questions that Members set regarding the delivery of the capital programme and in particular in relation to the Revitalise project.
2. Proposals and reasons
That Members note this report and its contents.
3. Comments from Executive Director of Finance
The issues covered within this report do not have any direct financial implications. The Major Projects team within the Finance and Resources department work with the Revitalise team to ensure a rigorous appraisal is carried out for all projects as part of the decision making process. This includes:
• Providing input to options appraisal and business case analysis • Ensuring procurement proposals maximise opportunities for synergies and economies of scale • Ensuring proposals are consistent with financial regulations and existing budgets • Providing support to departments in the financial management of major projects • Providing the lead on developing co-ordinated information for the budget setting process • Ensuring financial interdependencies between projects are managed and consistent with the budget, and that best practice is shared between projects • Providing financial monitoring information corporately for major projects and ensuring that financial information on major projects is always consistent • Ensuring a consistent approach to the financial management of major projects within departments
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• Providing client side support in the management and monitoring of financial consultancy contracts
Significant financial resources were established as part of last year’s budget setting process to support the Revitalise programme in particular. This is currently reviewed both as part of the review of the capital programme as well as the scope of Revitalise. The outcome of both pieces of work will be reported to Cabinet in November.
4. Comments from Director of Legal and Democratic Services
Each of the projects has its own legal implications and further advice is available on reports dealing with specific projects.
In relation to the setting up of a framework agreement for professional consultants the EU procurement regime applies to the proposed tendering exercises by virtue of Public Contracts Regulations 2006. Under these Regulations where the services are set out in Schedule 3 part A the full application of the Regulation applies and the Council has a duty to publish a contract notice in the official journal. The Regulations permit the notice to call for firms to express an interest to enter into a framework agreement.
5. Results of consultation
Not applicable.
6. Organisational implications
6.1 Risk management: Not applicable.
6.2 Equalities impact assessment: Not applicable.
6.3 Community safety implications: Not applicable.
6.4 Environmental implications: Not applicable.
6.5 Staffing and accommodation implications: Not applicable.
6.6 Any other implications: Not applicable.
7. Timetable for implementation
Not applicable.
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Revitalise Project
1 A brief outline of each of the project, its aims and objectives:
1.1 Programme Drivers and Current Scope 1.1.1 On 28 September 2004, the Executive resolved to take forward 4 key initiatives which would form the basis of the Revitalise programme. The original drivers for the programme were: • Creating high quality, 21 st century Council facilities • Improving Council service delivery • Maximising the value of strategic Council assets to deliver a site based programme of physical developments. 1.1.2 Work commenced last year with a report to SMB (November 2005) to move the programme from being site driven (to address issues relating to Council accommodation and facilities) to a series of area based regeneration sub programmes. 1.1.3 A review of the programme is currently in progress with the objective of preparing a report to Cabinet in November 2006, 'Regeneration Delivery Programme - Realising our ambition' to confirm the scope, branding and delivery arrangements for the programme as a whole. 1.2 Revitalise Project Portfolio and Priority Outcomes 1.2.1 The current project portfolio is set out below: (Project information is sourced from the Corporate Plan, except where indicated with an *. You may not wish to include the 'Milestones'.).
Project Priority Outcomes Milestones Cross Borough Revitalise Tackling inequality and social Provide decision report on Programme and exclusion proposed (revised) scope Delivery and delivery mechanisms Confirmed scope and Mechanisms for the Revitalise delivery arrangements for programme the programme to ensure (30/11/2006) Revitalise meets the policy objectives of the new administration (including the aim for new youth provision) and is delivered in the most efficient and effective way
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Project Priority Outcomes Milestones
Customer Closer engagement with Contract let to design Experience Design citizens company Guide To develop a service brand (31/07/2006) for Lambeth and 3D design Service brand and design guide for Joint Service guide completed Centre, libraries and leisure (31/12/2006) centres which reflect Lambeth values and commitment to excellent customer care within the community *Professional *Creation of a series of *Complete procurement of Services Framework framework agreements to Professional Services Agreements support the procurement of Framework Agreements professional / technical (31/05/2007) support services across the [NB. Not included programme, and in Corporate Plan] establishment of an appropriate client function Brixton Shakespeare Road Tackling inequality and social Academy: Academy and exclusion Commence work on site Waste Depot (temporary Academy) Closer engagement with Relocation (31/01/2007) citizens Open training facility Provision of a six form entry (31/07/2007) (6FE) secondary school (Academy), providing Commence work on site places for 900 pupils (permanent Academy) (30/11/2007) Provision of a temporary secondary school Open temporary Academy (Academy) pending (30/09/2008) completion of the Open new Shakespeare Shakespeare Road Road Academy Academy (30/09/2009) Provision of suitable Depot Relocation: replacement Complete planning process accommodation for the (31/03/2007) refuse and street cleansing fleets (to enable Complete contractor development of the procurement Shakespeare Road (31/03/2007) Academy) Complete site reconfiguration and relocate service (31/10/2007)
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Project Priority Outcomes Milestones
Brixton Town Centre Tackling inequality and social Agree for Transport for Development exclusion London (TfL) to progress
Redevelopment of Brixton development of design
Town Centre proposals and planning
* inc. Brixton Station Road application for Brixton and Brixton Hill sites, Central Square. Leisure, Brixton Market and (30/09/2006) Brixton Central Square Establish approach and Improved public services development timescales for and wider sustainable the Brixton Town Centre regeneration benefits Development and Local Area Action Plan (30/11/2006) Brixton Joint Service Closer engagement with Open new Brixton JSC at Centre (JSC) citizens Olive Morris House Joint Service Centre (JSC) in (31/05/2007) Brixton town centre delivering: Joined up service delivery Increased service access to people with disabilities Improved customer satisfaction with Lambeth services Clapham and Stockwell Clapham Town Tackling inequality and social Decide on preferred Centre Development exclusion option/s and establish Redevelopment (or development programme refurbishment) of the Mary and procurement options Seacole House site, (30/11/2006) Clapham Leisure Centre
site and the adjacent Depot site, and Clapham Library, to host a range of services, including access to public services, leisure and library facilities, affordable housing, private residential development and retail facilities
(subject to consultation)
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North Lambeth North Lambeth Closer engagement with Define project scope and leisure development citizens timescales, following High quality, strategically feasibility and funding located, accessible leisure assessment facilities in the north of the (31/03/2007) borough, providing opportunities for increasing community participation, usage, health and well- being Improved levels of citizen satisfaction with leisure facilities * subject to feasibility and funding assessment North Lambeth Joint Closer engagement with Define project scope and Service Centre citizens timescales, following (JSC) Joint Service Centre (JSC) in options appraisal North Lambeth delivering: (31/03/2007) Joined up service delivery Increased service access to people with disabilities Improved customer satisfaction with Lambeth services Norwood Norwood leisure Closer engagement with Define project scope and development citizens timescales, following High quality, strategically feasibility and funding located, accessible leisure assessment facilities in the south of the (31/03/2007) borough, providing opportunities for increasing community participation, usage, health and well- being Improved levels of citizen satisfaction with leisure facilities * subject to feasibility and funding assessment
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Norwood Joint Closer engagement with Define project scope and Service Centre citizens timescales, following (JSC) Joint Service Centre (JSC) in options appraisal Norwood town centre (31/12/2006) delivering: Joined up service delivery Increased service access to people with disabilities Improved customer satisfaction with Lambeth services Streatham Streatham leisure Closer engagement with Complete contract development citizens negotiations and close A high quality, strategically *(31/05/2007) located, accessible leisure Commence construction of facility providing new leisure development opportunities for increasing *(31/07/2007) (and improving) community participation, usage, health Launch new leisure facility and well-being *(30/06/2009) Improved levels of citizen satisfaction with leisure facilities Streatham Joint Closer engagement with Transfer Lambeth contact Service Centre citizens centre and open new JSC (JSC) Joint Service Centre (JSC) in at Gracefield Gardens Streatham town centre (31/10/2007) delivering: Joined up service delivery Increased service access to people with disabilities Improved customer satisfaction with Lambeth services
2 Successes in delivering elements of each of the projects thus far
2.1 There have been several key success areas for the programme both in terms of the development and strengthening of the infrastructure and capacity internally to deliver and in respect to the individual projects. 2.2 On the basis of the Deloitte commissioned work in April 2005, a new dedicated Delivery team has been established to deliver the programme. The Deloitte analysis identified the lack of capacity in individual departments and low skill and clienting as key areas on weakness that needed to be addressed in the governance. 2.3 The recruitment to the Revitalise Delivery Team was complete in May 2006. The purpose of the team is to act as an internal “practice” offering a delivery function for departments who act as “client”. The team have a range of skills and backgrounds including planning, architecture, engineering and construction management. Experience of delivering large scale capital programmes and clienting construction projects are key competencies.
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2.4 The small Council delivery team is supported by a range of contractors and consultants who provide additional professional services on individual projects. 2.5 Informal feedback from the recent Audit Commission review of Revitalise indicated that in their view, the team is “fit for purpose” with a structure that replicates the model established by the LDA to delivery the Olympic Delivery Plan. 2.6 In terms of the project portfolio, the key success areas have been: (i) communications - internally and externally (ii) governance (iii) procurement (iv) delivery of major milestones 2.6.1 Communications - The IDEA Peer Review concluded that “Revitalise has a high profile and is well known within the Council and the borough”. The Communications Plan provided for borough-wide information through Lambeth Life, bus shelters, underground stations and on buses. More detailed work on a town centre basis and in respect to individual projects have ensured that residents know exactly what’s happening in their local areas. 2.6.2 Governance – Governance arrangements are in place for all 13 projects. The programme office function within the team has ensured that there is Project Initiation Documents (PIDs) for all projects with a clear articulation of accountability and responsibilities. Each project has a risk register with all global risks being monitored through the Programme Board (SLB). 2.6.3 Procurement – A short/medium procurement framework has been established. Procurement has been complete for additional professional services to deliver the Clapham Town Centre, Shakespeare Road Academy project, Streatham Leisure. 2.6.4 Delivery of major milestones – There has been considerable done since May 2006, to align the Revitalise programme to the Council’s new political priorities. This work will culminate in a report to November Cabinet which will outline a new set of principles that will drive the decision-making around the programme and form the basis of a reviewed scope. 2.7 Many of the above projects which are not time critical have effectively been put on “hold” until this work is complete. This is demonstrated in the milestones in the above table. The key projects that have are continuing to be delivered and have achieved key milestones through this period are: • Revitalise Programme and Delivery Mechanisms • Customer Experience Design Guide • Professional Services Framework Agreements • Shakespeare Road Academy and Waste Depot Relocation • Brixton Joint Service Centre • Clapham Town Centre Development • Streatham Hub • Streatham Joint Service Centre 2.8 A key area of weakness in the programme that needs to be addressed is that of political consensus around the long term vision and delivery of the programme. The election has had a substantial impact on the delivery of the programme. Key projects such as Shakespeare Road Academy and Clapham Town Centre Development have been effectively delayed 6 months as a result of the need to realign the programme around
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the new political priorities. This delay has repercussions in the confidence of partners and contributes to uncertainty in those communities where the projects are located. Officers are keen to facilitate the appropriate cross party dialogue to develop a shared vision and ambition for the programme.
3 Main 'threats and risks' to the projects being delivered on time and on budget What the project teams are doing to counter these 'threats and risks'
3.1 The key areas of risk across the programme are identified in the table below, along with the main actions relating to risk mitigation. Detailed risk and control information for each project is being compiled on the council's corporate risk management system.
Risk Mitigation Site assembly Liaise with Planning and Corporate Property re public consultation, site negotiations, CPO issues, planning issues, etc. to flag at an early stage where inability to secure 'core' acquisitions may undermine delivery of financial and non-financial (regeneration) benefits. Monitor opportunities across wider site areas for complementary (or contingency) acquisitions. Ensure timescales for site assembly are aligned with development timetable and monitor. Ensure appropriate contingency arrangements in place re CPO requirements / timescales. Monitor decant arrangements / requirements (where appropriate) and agree programme with developer / partner. Approvals Early engagement with building statutory authorities and (e.g. designers. planning) and statutory Consider outsourcing / appointing external resources to support consultation planning application. Dialogue over UDP and MDO designation to minimise risk of call- in through careful preparation of application. Dialogue with Conservation Officer re building listings and changes to conservation areas. Dialogue with planners regarding affordable housing requirements. Planning applications to be continuously monitored and feedback sought from LPA. Twin-tracking of procurement and planning processes to negate delays in delivery. Potentially vulnerable aspects of planning application (e.g. EIA) to be checked by a planning solicitor to ensure compliance with regulations. All due processes to be carefully followed.
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Risk Mitigation Market Undertake early soft market testing to ensure that preferred interest and procurement routes for each development are identified. developments Ensure procurement process is simple and flexible to maximise interest from developers. Investigate issues such as legality, suitability, value for money and performance of current procurement arrangements. Seek legal opinion regarding applicability of negotiated procurement routes. Complete sensitivity analysis to understand impact of market fluctuations. Progress site acquisition and disposal strategies at earliest opportunity and maintain flexibility in relation to mix of uses. Resources Ensure engagement of Corporate Finance in the development and (business monitoring of financial models. case / funding / capital, etc) Develop funding strategy to address programme affordability issues. Aim to make schemes self funding while establishing appropriate contingency arrangements re scope of developments. Continue to monitor and review of funding options to complete programme. Develop resource plans linked to key project milestones. Continue to monitor programme to ensure that key milestones are aligned to ensure capital receipts received in time to fund other developments. Test assumptions and audit financial models at key stages throughout the life of the programme / projects. Ensure robust business cases in place to support prudential borrowing where this is the preferred funding approach. Incorporate inflation into the financial models (and complete sensitivity analyses to understand impact of different rates). Engage with services to ensure latest pricing proposals are factored into the financial models. Complete sensitivity analyses to understand impact of different pricing structures. Ensure financial due diligence throughout tender process. Ensure establishment of appropriate contingency budgets.
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Risk Mitigation Public opinion Establish robust stakeholder / communications management. and consultation Research key stakeholder groups and ensure engaged in consultation processes. Ensure early communication with stakeholders, including residents' groups, to minimise objections to redevelopment proposals. Communicate approach to consultation in order to set expectations around the role of consultation and how different views will be addressed. Ensure early communication when consultation feedback is received. Ensure consultation process is handled in a sensitive, timely and robust manner. Engage with cross-party members early to confirm support for developments. Use feedback from wider consultation to balance views from lobbies. Challenge and counter instances of misinformation. Incorrect Support services in work to clarify requirements. assumptions Continue to engage with services to ensure requirements are up to date. Test assumptions and audit financial models at key stages throughout the life of the programme / projects. Adopt prudent cost assumptions. Audit assumptions and ensure developers can meet assumptions. Commission appropriate technical specialists to test assumptions. HR issues Monitor ongoing requirements and resource continuity issues. Ensure appropriate succession plans and knowledge transfer frameworks are in place and establish team with a wide skills base. Establish 'people focused' change programmes. Liaise with HR to establish appropriate approach to recruitment and retention to secure necessary skills. Design issues Establish service facilities management requirements and incorporate in specification negotiations. Tender evaluation process and internal design team to review and challenge developer design proposals. Design management discipline – defined and resourced. Ensure rigorous change control procedures.
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Risk Mitigation Business and Ensure robust trade union consultation and negotiations around service impact on staff (to avoid industrial action). continuity Commission service contingency and continuity plans. Prepare plans for decant and reprovision of services to ensure that business continuity is maintained through project implementation and operation. Manage stakeholder expectations where service disruption is unavoidable. Set up working group meetings with linked service departments and projects to ensure effective and timely transfer of information. Ensure contract agreements are robust so that contractor takes the risk that programme is achieved. Construction Manage through Contract / Development Agreement – good issues management procedures and selection of appropriate contractors. Provide detailed specifications to development partners. Ensure robust partnership / collaborative working to prevent misinterpretation. Ensure compliance clauses are stipulated in contracts with preferred partners / developers and identify clear compensation arrangements for breaches. Complete site surveys to identify risks and cost implications. Conduct contamination surveys and incorporate mitigation costs. Complete benchmarking exercises compare construction cost and time estimates. Ensure prudent construction cost and time estimates. Ensure financial due diligence throughout tender process. Decision- Ensure robust governance arrangements in place at project and making programme level. Seek cross-party / cross-corporate buy-in at an early stage. Ensure services fully engaged in development of outline specification and made aware of impact of changes. Develop and agree detailed project plans for the short to medium term (and stick to them). Ensure rigorous change control procedures. Partnership Ensure engagement of key service contacts / partners and awareness of key milestones and responsibilities. Ensure ongoing liaison with public authorities (e.g. LDA, GLA, TfL) and utility companies.
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4 How the project teams are controlling / working with outside partners such as private sector partners, central government agencies and how successful this has been? 4.1 There are good working relationships with the GLA, TfL, LDA, Network Rail, particularly in relation to the Brixton Town Centre Development project including Brixton Central Square. The JSC programme has been successful at developing relationships with the PCT, particularly in respect to the Gracefield Gardens development in Streatham. 4.2 Environment have had significant success in terms of their relationship with Tescos and securing a solution to the delivery and construction of the Streatham Leisure development.
4.3 In Clapham, LIFTCo. are keen to deliver a 2000m2 health centre on the MSH site in partnership with the Council as part of a mixed-use development. Work with LIFTCo. is well underway and a series of meetings between officers and senior officers from LIFTCo. and their private sector partner Building Better Health (BBH) has taken place. LIFTCo. have provided their draft head of terms and arrangements surrounding lease plus for the Council’s solicitor’s to provide legal opinion.
4.4 However theses relationships are very much being driven by the delivery of projects. What has been lacking is the strategic relationships with senior members of the GLA family and departments such as DCLG.
4.5 This has been recognised as a weakness and discussions are currently taking place with our key public sector partners with a view to establishing a Lambeth Investment Board that will develop a shared vision and priorities for the borough that will provide the framework for alignment of investment. This will in turn act as a lever in terms of our future work with the private sector around major sites and assets owned by the Council and partners.
5 Any Issues connected with commissioning/contracting with third parties or outside agencies
5.1 The work on the Professional Services Framework Agreements is progressing. The Project will support the rationalisation of the appointment of professional services and offer opportunities for optimal costs in conjunction with improved quality and speed of delivery. The initial short-term work has commenced. This will offer 'quick wins' to existing projects over the next twelve months, whilst offering concurrent documentation, benchmarking and supplier information to the larger mid-term and long-term supplier framework agreements.
5.2 The mid-term solution of Framework Agreements for the Revitalise portfolio of professional services categories will offer a range of long term savings that will lead from years two to five and will be co-ordinated with Corporate Procurement to form the basis for additional opportunities within the Borough.
6 Any additional support that the project teams feel is required from the council to ensure that the projects are delivered successfully, on time and on budget? 6.1 The Revitalise programme has prioritised the development of good cross department working. We have had particularly good support from Corporate Finance and Legal Services. However, procurement has been extremely time consuming and complex. The programme team structure necessitates a responsive process to ensure we keep to time and on budget. We are hoping that the long term development of framework
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agreements will address this issue, however, this process will take up to May 2007 to complete and we have a considerable work programme to deliver during this time. 6.2 The Revitalise programme represents a major proportion of the committed Council capital budget. Spend in Revitalise potentially has an impact on other areas within the Council’s capital programme. This is reflected in the current discussions relating to the Shakespeare Road Academy project and corresponding review of the Council’s capital programme. Although the co-ordination of capital rightly is the responsibility of Corporate Finance, there needs to be more strategic discussions involving Programme Managers across Departments, responsible for delivering elements of the Council’s programme, to identify possible areas for efficiencies and to develop a shared understanding of the risks and impacts in each area.
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b Finance Scrutiny sub-committee 19 October 2006
Building Schools for the Future: Project Delivery Item 5 All wards/ All areas
Report authorised by: Phyllis Dunipace, Executive Director, Children and Young Peoples Service Executive Summary This report provides an overview of the Lambeth Building Schools for the Future programme, with details of:
• A brief outline of the BSF Programme
• Successes in delivering elements of each of the projects thus far
• Main 'threats and risks' to the projects being delivered on time and on budget, with actions to mitigate them
• How the project teams are controlling / working with outside partners such as private sector partners, central government agencies and how successful this has been
• Any issues connected with commissioning / contracting with third parties or outside agencies
• Disposals
• Capacity levels and expertise for supporting delivery of capital projects across the Council with particular emphasis on the Regeneration & Housing capital programme.
• Comparisons with the delivery of BSF schemes in other Councils
Any additional support that the project teams feel is required from the Council to ensure that the project is delivered successfully, on time and on budget Summary of financial implications Subject to final confirmation of funding by PfS, Lambeth’s Phase 1 BSF Programme is fully funded as outlined in Section 7. Recommendations That the report be noted.
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Consultation
Name of Directorate or Organisation Date sent Date Comments consultee to response appear in consultee received report para: from consultee
Internal Mike Pocock BSF Project Director 06 Oct 06 06 Oct 06 Throughout David Morris BSF Project Team Leader 29 Sep 06 29 Sep 06 Throughout Chris Ashton Divisional Director, Inclusion 06 Oct 06 06 Oct 06 None and Standards Farrukh Akbar Divisional Director of 06 Oct 06 06 Oct 06 None Resources, CYPS Jonathan Divisional Director, Major 06 Oct 06 06 Oct 06 7.5 Williams Projects Mike Dickens Head of Legal Services 09 Oct 06 09 Oct 06 10 Entered in Consultation and Events Diary? N/A
Report history Date report drafted: Report Date report sent: Report no.: deadline: 27.09.06 06.10.06 06.10.06 /06-07 Report author and contact for queries: Kester McMorris, BSF Programmer 020 7926 3210 [email protected]
Background documents None
Appendices
None
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Building Schools for the Future: Project Delivery
1. Background and Programme Outline
1.1. The Lambeth Building Schools for the Future (BSF) Programme is part of the national BSF programme, which provides for refurbishment and rebuilding of Secondary schools over a 15 year period, with procurement and construction of sites managed by Local Authorities. The national programme is broken down into a number of phases (called Waves). There is one Wave per year, to spread the cost of the work across several financial years.
1.2. The programme is monitored and policed by Partnerships for Schools (PfS) on behalf of the DfES. PfS is responsible for ensuring that Local Authorities follow the established guidelines, and operate within the agreed budgets.
1.3. The Lambeth BSF programme has been placed in two Waves by PfS: Lambeth is already in Wave 2 for Phase 1, and will be in one of Waves 4, 5 or 6 for Phase 2. We shall not know until early December 2006 whether we are in Wave 4, 5 or 6, although the assumption is Wave 4 in the timetable shown.
1.4. Phase 1
1.4.1. Phase 1 is currently in procurement, with work progressing on all parts of this Phase. With the agreement of PfS, Lambeth has not followed the standard procurement route, due to a number of factors requiring an earlier school opening date than the standard process would allow. Phase 1 has been further subdivided into Phase 1A, Phase 1B and Phase 1C.
1.4.2. Phase 1A is the completion of three projects:
• The refurbishment and extension of the existing facilities on the Strand to provide Elm Court School with capacity for 100 SEN pupils at 11-16;
• A new build of the Michael Tippett School at the existing Willowfield site for 80 pupils with a wide range of abilities including severe learning difficulties (PMLD) and Autistic spectrum disorder (ASD);
• A new Pupil Referral Unit, the Park Campus, at the site of the existing Norwood Park Annex for 110 pupils (11-16) plus accommodation for Behaviour and Education Support Teams (BEST) and staff in the Behaviour Improvement Programme (BIP);
Planning applications for all three projects were submitted in September 2006. Contractors are being procured in a two-stage process. The first stage has been completed, and the second stage is underway with 3 short listed bidders. The selected bidder will be appointed in December, with works starting on site in January 2007, and due to be completed in December 2007. Page 26
1.4.3. Phase 1B covers:
• The provision of temporary accommodation (in a refurbished school at Norwood Park primary school) to enable opening of the temporary Elmgreen School in September 2007. The tender documents will be issued at the beginning of October. It is expected that the selected bidder will be appointed in December, and start on site in early January;
• Demolition and other necessary preparatory works, including asbestos removal, to prepare the sites for construction. Procurement of the contractor is underway. The preferred contractor(s) will be appointed in October 2006, with a planned start on site at the end of October.
1.4.4. Phase 1C covers:
• A new build replacement and expansion of Stockwell Park on its existing site to provide 1200 11-16 places, a 15 place Autistic Spectrum Disorder (ASD) unit and 100 post 16 places.
• A new secondary school (Elmgreen School) with 900 11-16 places (including a 30 place Hearing Impaired Unit) and a 200 place sixth form to be constructed by September 2009 on the existing Elmcourt Road site;
Procurement of the contractors is under way using the new Competitive Dialogue process. The OJEU notice has been issued, with prospective bidders able to choose between bidding to carry out the work on both sites, or bidding on a single site. Appointment of the contractor is due in summer 2007, with a start on site in January 2008.
1.5 Phase 2
1.5.1 PfS and DfES announced in June, with further details issued in July and August, that a bidding process would be established for Waves 4-6, in order to ensure that Authorities in Wave 4 were in the best shape to progress without delay, and that those not included in the first three Waves were given an equal chance to be in Wave 4, as opposed to 5 or 6. This is effectively a competition to show which authorities are best prepared for the next stage. Lambeth has already submitted a letter, which requests to be included in Wave 4. Authorities which are already in Waves 1 to 3 have been actively discouraged from applying for Wave 4, but Lambeth believe that they have a compelling case to be in Wave 4.
1.5.2 Lambeth must submit a ‘Readiness to Deliver’ document by 13 October 2006 to PfS. This provides evidence that Lambeth is ready to be included in Wave 4. PfS will declare by mid-December 2006 those authorities selected for Waves 4 & 5, and provisionally authorities to be included in Wave 6
1.5.3 Work on Wave 4 would start immediately following the decision being announced by PfS, and receipt of a ’Remit for Change‘ from DfES setting out Page 27
key issues they expect to be addressed by the programme. In the event of being in Wave 5 we would not be able to start the work until September 2007, and for Wave 6, not until 2008.
1.5.4 The resources are already in place to support Lambeth in Wave 4 if the bid is successful, although they will be scaled back over the intervening period if in Waves 5 or 6.
1.6 Intermediate Works Delivery
1.6.1 Schools in Phase 2 of BSF are currently being surveyed to review the impact the new schools will have on them, and the state of the buildings.
1.6.2 Once complete, the results of the feasibility studies will be assessed, and those sites most in need of urgent work in advance of Phase 2 will be targeted for specific improvement work.
1.6.3 It is expected that work on the selected sites will start in the middle of 2007, and be completed by in 2008. It is expected that the Intermediate Works will cover a range a minor works, and that no single site will be targeted for major refurbishment. The funding available is less than the aspirations of the Intermediate Works schools.
2. Risks and Mitigations
2.1 The day to day identification and management of risks has been assigned to the Technical Advisors, Navigant. They are using the Lambeth Risk Management system (Risk 2003) in order to provide this service within the Lambeth standard procedures.
2.2 Risks are entered in to the system and then raised with the appropriate team member for action. Risk is also a standing item on the BSF Team Meeting and Project Board.
2.3 All identified risks are assigned to individuals, and risk control measures agreed. Each risk is assessed on the basis of impact and likelihood to give a current risk rating, and in addition the assessment of the residual risk is entered.
3. Collaborative Working with Outside Partners
3.1 The main areas and issues are:
3.1.1 External Advisors
PfS established a framework for the use of specialist advisors in delivering the BSF Programme. Lambeth uses Atkins as project management advisors, Navigant as technical advisors, and Price Waterhouse Cooper as financial advisers All three offer services within their area of expertise, specifically designed to assist Authorities in developing their BSF Programmes.
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In addition, Lambeth has retained Projects Partnership as legal advisors on the BSF programme, through the use of existing relationships with the company.
The procurement of these advisors has allowed the Lambeth programme to move forwards rapidly. It remains the medium-term intention to replace Atkins with internal project managers, to reduce cost and facilitate knowledge transfer to Lambeth staff.
3.3 Partnerships for Schools
The monitoring and supervisory role PfS has over the BSF process has meant that Lambeth has had to work closely with PfS. This has led to Lambeth securing agreement from PfS to follow a non-standard procurement route in Phase 1. This has been due to the solid case constructed by Lambeth for this approach, and also due to the trust and good working relationship which has been developed between Lambeth and PfS.
3.4 Private Sector Partners
Lambeth is currently procuring contractors for Phase 1. Measures are currently being put in place to ensure that the necessary Contract Administrations will be in place to support the contractors and their work on the schools.
3.5 Learning and Skills Council
The Learning and Skills Council (LSC) is responsible for working with the Council to ensure the provision of suitable sixth form places for Lambeth pupils. Therefore, the Council has consulted with the LSC during the BSF programme to date, and will continue to do so.
Whilst there has been a difference of opinion between the Council and LSC over the number of 6 th form places required, this has not delayed the Programme significantly. In order to secure swift resolution, this has been referred to the DfES for resolution.
3.6 Primary Care Trust
The Project Team have engaged with the PCT at both a Strategic and an Estate Management level. Discussions have been carried out to review the possibility for synergy between the PCT Capital Programme and the works panned under Phase 2 of the BSF Programme.
3.7 Dioceses
Discussions have been held with the Directors of the Church of England and Roman Catholic Dioceses. In addition, further discussions have been held with the dioceses Estate Managers. Where necessary, more detailed discussions are taking place on a school by school basis. Page 29
3.8 Schools
The very nature of the BSF programme means that constant interaction and communication with schools is essential, and this has been carried forwards through the programme to date. Schools have been broadly supportive of the programme, although school aspirations may not match the budget available.
3.9 Police
The BSF Team have involved the Police in the progress of the project, both at Superintendent and Crime Prevention Officer level. In addition, police advice has been sought to ensure building designs take into account Secure By Design guidance
4 Additional Support Required
4.1 Planning
The main area of support required is from the Planning Department to facilitate the important planning applications going through the system.
4.2 Human Resources
Support is required from the HR section to assist with the recruitment of staff into the team.
5 Disposals
5.1 It had been originally intended that the Shelley site, currently in Council ownership, would be sold in order to ensure the planned expenditure in Phase 1 could be covered.
5.2 However, Cabinet has requested that the Shelley site be retained, and that alternative funding routes for Phase 1 be investigated, with the intention of retaining the site for use by the Council. This issue currently features on all Affordability reports produced for the Project, as Corporate Finance are not hopeful of finding alternative funding.
6 Capacity Levels and Expertise
6.1 The BSF team currently operates as a single unit, with no spare capacity to support the delivery of other capital projects. The majority of the project management resource is currently provided by Project Management Advisors (Atkins), who have been procured specifically to support the delivery of BSF.
6.2 It is planned that permanent project managers will be recruited to replace the Atkins staff, which will ensure that further cross Service support for capital projects is possible. Page 30
7 Financial Implications
7.1 The overall BSF programme continues to be considered in two phases. Phase 1 of the Programme covers projects being undertaken in advance of the Phase 2 Programme.
Subject to confirmation of funding by PfS, Lambeth’s Phase 1 BSF Programme is fully funded as outlined below.
Table 1
Phase 1 Programme £m
Capital Costs Initial Capital Costs 86.5 Total Costs 86.5 Funding Base FAM Funding ( See table 2 below ) 76.1 Exceptional Abnormals (See table 2 below) 4.7 Basic Needs Funding 3.2 Other receipts 2.5 Total Funding 86.5 Net Capital Cost (Affordability Gap) 0.0
The Phase 1 Outline Business Case (OBC) was approved on the basis of a nil affordability gap. However, in approving the OBC, the Council’s Cabinet requested that alternative sources of funding should be sought to the £2.5m capital receipt which was originally envisaged to be available from the disposal of the Shelley site (see paragraph 5 Disposals), as they hoped the site could be retained for public use.
It is estimated that of total capital forecast of £86.5m, approximately £5m will be spent during the current financial year (2006-07).
7.2 PfS Funding for Phase 1 Programme
7.2.1 PfS funding is established on the basis of a formulaic approach which assumes the overall estate within a local authority’s area will require 50% new build and 50% refurbishment. The base funding allows for a percentage of the costs for ‘abnormals’ (i.e. project specific elements that cause additional costs such as poor ground conditions which are beyond the authority’s control). PfS will also provide additional funding for ‘exceptional abnormals’ where they believe their standard allowances are exceeded by project specific needs.
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7.2.2 The Funding Allocation Model (FAM) used to determine the latest funding allocation has as yet to be approved by PfS, although agreed in principle. A meeting is being set up with DfES to agree the timing of the release of funding.
7.3 Funding from Lambeth
Lambeth has £11.8m available from previously allocated Basic Needs funding of which £3.2m of this has been allocated to the Phase 1 Programme to make it affordable. A further £1.5m has also been capitalised and approved via Lambeth’s’ internal Star Chamber process. 7.4 Affordability Gap Phase 2
7.4.1 There has been progress on closing the affordability gap on Phase 2 as a further scope review was undertaken. This has resulted in a number of scope changes and a net reduction in costs which has reduced the affordability gap from £16.6m as reported in June 2006 to £7.5m. The Technical Advisers expect this gap to be balanced by exceptional abnormal costs and additional allowances for inflation.
7.4.2 Further work is required to assess the risk of differential inflation between PfS funding and real costs once the phasing of the schools has been agreed. It should be noted that in determining the current capital forecast, standard inflation forecasts have been assumed without adjustment for the potential impact of the Olympics. The indices used represent the “Building Costs information Services’ best estimates but nevertheless a potential risk exists due to uncertainties in forward forecasting the localised effects of major programmes such as the Olympics.
7.4.3 There is an emerging issue regarding VAT implications for voluntary aided (VA) schools. In summary VA schools are owned by the Trustees of the School rather than the Council. The Trustees are responsible for covering all repairs and maintenance works are undertaken to the structure of a VA school and they are generally unable to recover VAT.
7.4.4 The issue is that Customs & Excise (HMRC) following meetings with DfES believe that where BSF works are undertaken to a VA school they are undertaken on behalf of the Trustees and therefore the Council may not be entitled to recover VAT which it incurs on behalf of (or as agent of) the Trustees.
7.4.5 The current view is that if HMRC maintain their current position, then VAT will be a cost in respect of works to VA schools with the exception of any “new build” of stand alone buildings. It seems unlikely that PfS and DfES will allow the programme to be undermined in this way.
7.5 Ongoing Revenue Cost Implications
7.5.1 The authority and schools recognise that the capital investment made early in the BSF programme in their schools requires a step-change in thinking on terms of the liabilities that arise in relation to the upkeep and servicing of these facilities.
7.5.2 Along with the capital investment in schools therefore comes an additional cost to fund the lifecycle elements inherent within a more programmed approach to the Page 32
maintenance of buildings. The provision of Facilities Management services of an appropriate standard to operate the schools will also come at an additional cost.
7.5.3 Phase 1 of the Lambeth BSF programme includes one new school being created and some significant and fundamental changes to the location and number of pupils for some other schools. For these schools, where the actual revenue funding cannot yet be certain, there is an element of judgment applied to establish the individual schools budgets.
7.5.4 The unfunded liability issue which is being addressed amounts to £1.5M per annum for all schools, of which £0.5M relates to a shortfall against current expenditure on facilities management and £1.0M in relation to what is in effect a new obligation to maintain schools to a standard through a forward looking programme of maintenance.
7.5.5 The revenue affordability has been discussed with each school individually and with all schools collectively through the BSF Strategic Board. All schools have been briefed that the BSF investment leads to an accompanying four year suspension of the three main existing capital funding streams available to support schools: LCVAP, Modernisation Funding and Devolved Formula Capital.
7.5.6 The Council is providing advice to each school governing body on establishing a medium term financial planning approach to BSF revenue funding. The desirability of establishing a “sinking fund” in the early stages of the investment is being promoted with each governing body.
8 Delivery of BSF Schemes in Other Councils
8.1 As stated above, Lambeth is following a non-standard route for Phase 1. This means that it is difficult to provide an appropriate comparison with other Authorities, who are either following the standard BSF model, or are pursuing their own alternative arrangements.
8.2 The Phase 1 process involves Lambeth in a number of separate and expensive projects to procure and project manage. These are in addition to the Phase 2 programme which is close to a ‘normal’ BSF scheme.
8.3 The route for Phase 1 has allowed Lambeth to progress much faster than other Authorities and construction is likely to start in Lambeth ahead of all the other London boroughs, overtaking those which are Pathfinder scheme and those in Wave 1
8.4 It is possible to draw some high level comparisons across the BSF field:
• Strategic Inclusion of BSF. Local Authorities that have embedded the BSF programme within their overall strategy have been most successful to date in delivering the programme. Lambeth already includes BSF in the overall strategy; the Chief Executive chairs the Project Board.
• Recruitment. Generally, Local Authorities have faced difficulties in recruiting and retaining staff due to the national scale of the project. Most, including Page 33
Lambeth, may have to use the expertise of Project Management companies longer than originally planned due to this shortage of staff.
• Internal Approvals. The timescales set by PfS have been perceived as not taking into account Local Authorities’ standard processes, and not allowing enough time for these processes to be completed in the appropriate manner. This has specifically applied to Cabinet processes.
• PfS Approvals. There is concern that generally the process for obtaining PfS approvals at required stages in the process is taking Council longer than originally envisaged with the PfS programme.
9. Comments from Executive Director of Finance
Please See Section 7 above
10 Comments from Director of Legal and Democratic Services
10.1 The Council has a duty under section 14 of the Education Act 1996 (the Act) to secure that sufficient primary and secondary schools are available for its area. Under Section 18 of the Act the LEA can provide financial assistance to non- maintained schools.
10.2 Building Schools for the Future (BSF) is the DfES programme to invest in all secondary schools in England such that all pupils benefit from learning in a 21st century environment. Partnerships for Schools (PfS) has been set up by the Department as the vehicle to deliver the programme at national level, with Local Education Authorities engaging the private sector at local level in partnerships which will last for a number of years. The means of investment in schools will draw on and use the well-established PFI and traditional methodologies but in a more strategic and efficient way. The Department and PUK had formed the view that previous procurement routes, including the schools PFI programme, were not capable of delivering the volume and speed of school delivery that the Government now desired.
11. Results of consultation
Not applicable.
12. Organisational implications
12.1 Risk management:
Please see Section 2 above.
12.2 Equalities impact assessment:
An equalities impact assessment was issued and discussed with the panel in April 2006.
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12.3 Community safety implications:
None
12.4 Environmental implications:
None
12.5 Staffing and accommodation implications:
None.
12.6 Any other implications:
None
13. Timetable for implementation
13.1 The summary of the BSF Programme at present is as follows:
PHASE 1 PROGRAMME Date Phase 1A - Construction Complete 02 January 2008 Phase 1B - Enabling Works Complete 22 December 2006 Phase 1B - Interim Elmgreen School Complete 22 May 2007 Phase 1C - Procurement for Elmgreen and Stockwell Park Complete 17 December 2007 Phase 1C - Construction for Elmgreen Complete 12 May 2009 Phase 1C - Construction for Stockwell Complete 12 July 2010 PHASE 2 PROGRAMME (Based on achieving Wave 4) Date Submit "Readiness to Deliver" Document to PfS 13 October 2006 DfES / PfS Announce Wave Decision 18 December 2006 Strategy for Change Part 1 Completed 28 February 2007 Strategy for Change Part 2 Completed 31 July 2007 OBC Completed 30 November 2007 Procurement Process Starts 16 January 2008
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This page is intentionally left blank Agenda Item 7 Page 37
b Finance Scrutiny Sub-Committee 19 October 2006
Progress on the Preparation of the Corporate Property Strategy and Asset Management Plan Item 7 All Ward(s) /All Area(s)
Report authorised by : Executive Director of Regeneration and Housing – Chris Lee
Executive summary
This report sets out the progress on the development of a 4 year Corporate Property Strategy and Asset Management Plan. The Plan is being developed in accordance with the new guidelines jointly published by the Royal Institution of Chartered Surveyors and the Department for Communities and Local Government. Work in relation to the Plan is schedule for completion later this month culminating in a report to the Cabinet this autumn.
Summary of financial implications
No new funds are sought at the present time.
Recommendations That the sub-committee note the progress made to date.
Consultation
Name of consultee Directorate or Organisation Date sent to Date Comments appear consultee response in report para: received from consultee
Internal Chris Lee Executive Director of 04.10.06 Regeneration and Housing Mike Dickens Head of Legal Services 10.10.06 10.10.06 4.1 Conrad Hall Divisional Director of Finance 04.10.06 05.10.06 3.1 Councillor Jim Cabinet Member for Finance 05.10.06 05.10.06 Dickson Councillor Paul Cabinet Member for Regeneration 05.10.06 05.10.06 McGlone & Enterprise Entered in Consultation and Events Diary? N/A
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Report history
Date report drafted: Report Date report sent: Report no.: deadline: 02.10.06 06.10.06 06.10.06 158/06-07 Report author and contact for queries: Uzo Nwanze – Head of Asset Strategy 020 7926 9929 [email protected]
Background documents
Corporate Property Strategy & Asset Management File. Voluntary Sector Premises Strategy File
Appendices
Appendix 1 – Schedule of Operational and Non-operational Property Portfolio Appendix 2 – Asset Management Plan 2004
Progress on the Preparation of the Corporate Property Strategy and Asset Management Plan
1. Context
1.1 Included within the work programme of the newly established Finance Scrutiny Sub-Committee is “the management of Council assets.” The Committee requested the following:
• An update on the Asset Management Strategy
• A complete (or as complete as possible) list of each of the Council’s assets
• The Council’s strategy concerning its assets (including its policy regarding disposal of assets)
• Details of any positive work already underway with the voluntary sector around Lambeth’s buildings and assets.
1.2 Good asset management optimises the utilisation of assets in terms of service benefits and financial return. It ensures that opportunity cost of financial resources tied up in property is minimised and capital and revenue expenditure on the assets is directed efficiently to provide value for money.
1.3 Up until the end of the 2004/05 financial year, the Department for Communities and Local Government (DCLG) required all authorities to prepare Asset Management Plans (AMP) annually. This mandatory requirement has now been
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superseded by the Comprehensive Performance Assessment (CPA) – Use of Resources
2. Proposals and reasons
2.1 In 2005 under the Comprehensive Performance Assessment (CPA) – Efficient Use of Resources regime the Council was scored 2 from a highest score of 4. The current Asset Management Plan which is being revised is attached for ease of reference (Appendix 2).
2.2 Progress on the development of a revised Asset Management Strategy .
2.2.1 Work on updating the 2004 AMP is nearing completion. It is envisaged that a revised Corporate Property Strategy and Asset Management Plan: 2006 – 2010 which embraces the aspirations and priorities of the new Administration will be reported to the Cabinet this autumn.
2.3 Complete (or as complete as possible) List of each of the Council’s Assets .
2.3.1 A Schedule containing the Council’s operational and non-operational property portfolio is set out in Appendix 1. Details of the residential stock are available on the Council’s website (540+ pages), but it is not considered prudent to attach a copy to this report.
2.3.2 Data on the Council’s residential stock is held on the HICS/SX3 and managed by the Housing IT Team whilst data on all the operational and non-operational stock including schools are held on the Corporate Property Information Management System (PIMS).
2.4 The Council’s Strategy Concerning its Assets (Including its Policy Regarding Disposal of Assets)
2.4.1 As previously indicated in paragraph 2.2 above the Council’s Strategy concerning its assets will be reported to the Cabinet in the autumn. The Council’s Policy on the disposal of its assets will be reported to the Cabinet as part of the Corporate Property and Asset Management Plan.
2.5 Details of Any Positive Work Already Underway with the Voluntary Sector around Lambeth’s Buildings and Assets.
2.5.1 The Council’s Voluntary Sector Strategy approved by the Executive on the 5 April 2004, sets out a work programme regarding its delivery. Progress made to date is set out in a separate report on this agenda.
3. Comments from Executive Director of Finance
3.1 Whilst there are no specific financial implications contained within the report itself, the Asset Management Strategy is a key component of resource management and ensuring vfm for our residents.
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4. Comments from Director of Legal and Democratic Services
4.1 As this report is for information only, there are no specific legal implications arising. Any such implications will be addressed in the report which will seek Cabinet approval of the Corporate Property Strategy and Asset Management Plan.
5. Results of consultation
5.1 Not applicable.
6. Organisational implications
6.1 Risk management: Not applicable.
6.2 Equalities impact assessment: Not applicable.
6.3 Community safety implications: None.
6.4 Environmental implications: None.
6.5 Staffing and accommodation implications: None.
6.6 Any other implications: None.
7. Timetable for implementation
Activity October November December
Complete Work on Departmental X X Service Plan
Complete Draft Corporate Property X X Strategy & Asset Management Plan
Report to Cabinet X
OTHER OPERATIONAL AND NON-OPERATIONALPage 41 PROPERTIES
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Seacole House 91 Clapham High Street London SW4 7TF 100023571144 531250 175896 Max Roach Park 319 - 335 Brixton Road London SW9 6ED 100023364856 529886 174163 Maytree Nursery School Clarence Crescent London SW4 8LN 100021859495 531686 176405 Minet Library 52 Knatchbull Road London SE5 9QY 200000476628 531230 175551 Multi Storey Car Park Pope's Road London SW9 8JH 200000476675 530567 176913 Mursell Hall Portland Grove London SW8 1JE 010008785329 531669 176950 Myatts Field North Housing Estate London 200000487654 531994 175525 Near Unit 1 Mahatma Gandhi Industrial Estate Milkwood Road London 200000522787 529638 174038 Neighbourhood Office Headlam Road London SW4 8LT 200000472859 531716 176034 Nevil House Minet Road London SW9 7TW 010000445980 530805 178412 North Parade Of Shops 2 And 6 Jonathan Street And 18 20 22 24 26 And 28 200000460903 532224 171065 Norwood Girls School Crown Dale London SE19 3PD 200000469128 531735 172023 Norwood Hall 38 Knight's Hill London SE27 0JD 200000462583 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SE11 4EY 200000477439 530784 175585 Playground Pulross Road London 200000485208 529781 176304 Playground Springfield Estate Union Road London 200000480169 530304 177501 Plot 112-114 South Lambeth Road London 200000480941 529606 172928 Plot 247-251 Sternhold Avenue London 200000486578 530293 177454 Plot Adjacent Wheatsheaf Hall Wheatsheaf Lane London 200000454877 530105 175185 Plot Between 121 To 123 And Rear Of 121 To129 Bedford Road London 200000469337 531809 171252 Plot Bound By Cedar Tree And Great Lakeview Road Knight's Hill London 200000489078 531537 174877 Plot Rear Of 69 To 73 Chaucer Road London 100023675376 530845 178748 Pory House 133 - 165 Lambeth Walk London SE11 6EH 200000485530 530756 178382 Post Office 34 Vauxhall Street London SE11 5LG 200000469588 531571 177681 Primary Pupil Referral Unit Kennington Park Gardens London SE11 4AX 010000442070 531365 177852 Prince Consort Lodge Kennington Park Kennington Park Road London 100021906488 529627 176373 Prince Of Wales Public House 99 Union Road London SW8 2RF 200000484899 529419 175288 Public Conveniences Adjacent Clapham Common Underg Clapham 010000445066 529802 173776 Public Conveniences Atkins Road London 200000464866 530222 172079 Public Conveniences Gracefield Gardens London 200000468163 531217 177622 Public Conveniences Island Site Kennington Park Road London 200000470661 530355 172607 Public Conveniences Leigham Court Road London 010000446349 528811 174317 Public Conveniences Opposite Clapham South Underground Station 200000476629 531195 175462 Public Conveniences Pope's Road London 200000478101 531824 175794 Public Conveniences Ridgway Road London 010000446565 531967 172245 Public Conveniences Robson Road London 010000446483 530409 177629 Public Conveniences Vauxhall Park South Lambeth Road London SW8 1SU 200000485412 530940 171860 Public Open Space Rear Of 43 To 83 Valley Road London 010008786028 530525 178617 Queensborough House 12-18 Albert Embankment And Albert Embankment 100021808425 531127 175449 Railway Tavern Public House 20 Atlantic Road London SW9 8JA 100023362580 529202 175727 Rectory Grove Centre Rectory Grove London SW4 0EL 200000524677 530256 173786 Richard Atkins School New Park Road London SW2 4JP 200000522640 532061 176267 Robin Hood And Little John 123 Flaxman Road London SE5 9EA 200000523450 530549 173714 Roof Of Elstead House Redlands Way London SW2 3LT 200000524199 531312 180017 Roof Of Windmill House Wootton Street London SE1 8LY 200000524096 529446 173715 Roof Top Dan Bryant House Weir Road London SW12 0NN 200000522346 530687 174227 Roof Top Site Atcalidore Close Endymion Road London SW2 1HX 200000523412 531794 174487 Roof Top Site Herne Hill House Railton Road London SE24 0EF 200000521670 529769 175440 Roof Top Site Mary Seacole House 91 Clapham High Street London SW4 Roof Top Site Park View House Hurst Street London SE24 0EQ 200000522010 530789 177623 Roof Top Site Sirinham Point Meadow Road London SW8 1QE 200000522189 532582 171404 Roof Top Site 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Harborough Road London 200000472805 531764 176069 Secker House Minet Road London SW9 7TP 010001112660 530402 177003 Selway House, Spurgeon Estate, South Lambeth Road London 100023257106 531791 175254 Shakespeare Depot 255 Shakespeare Road London SE24 0QN 200000467519 530779 178396 Shop 1 Jonathan Street London 200000482707 530345 172736 Shop 101 - 103 Streatham Hill London SW2 4UD 200000471408 531534 176320 Shop 102 Loughborough Road London SW9 7SB 200000482710 530323 172708 Shop 107 Streatham Hill London SW2 4UG Unique No (UPRN) Xcoord Ycoord BPLU Address 200000482711 530321 172702 Shop 109Page Streatham Hill54 London SW2 4UG 200000455832 530681 174464 Shop 110C Brixton Hill London 200000485842 530011 177209 Shop 112 Wandsworth Road London SW8 2LB 200000487209 532277 171290 Shop 113 Woodvale Walk London SE27 0EY 200000456698 531546 178906 Shop 114 Brook Drive London SE11 4TQ 200000485843 530011 177209 Shop 114 Wandsworth Road London SW8 2LB 200000469846 530889 178824 Shop 121 Lambeth Walk London SE11 6EE 200000485846 530011 177209 Shop 122 Wandsworth Road London 200000469848 530900 178819 Shop 125 Lambeth Walk London SE11 6EE 200000470066 530538 175898 Shop 126 Landor Road London SW9 9JB 200000470085 530530 175926 Shop 133 Landor Road London SW9 9JD 200000455711 533138 171302 Shop 15 - 17 Bridgetown Close London SE19 1JZ 200000473955 531740 178584 Shop 150A Newington Butts London SE11 4RN 200000473956 531742 178582 Shop 150B Newington Butts London SE11 4RN 200000462695 531122 175406 Shop 18 - 20 Electric Avenue London SW9 8JR 200000472651 531982 175566 Shop 18 Milkwood Road London SE24 0HH 200000469935 530136 175743 Shop 19 Landor Road London SW9 9RT 200000483225 530413 173119 Shop 2 - 4 Telford Avenue London SW2 4XA 200000453539 530916 172636 Shop 211 Amesbury Avenue London SW2 3BJ 200000453541 530922 172635 Shop 213 Amesbury Avenue London SW2 3BJ 200000453962 531157 175420 Shop 22 - 24 Atlantic Road London SW9 8JA 200000485516 530791 178423 Shop 22 - 24 Vauxhall Street London SE11 5LG 200000462696 531132 175404 Shop 22 Electric Avenue London SW9 8JR 200000469943 530153 175748 Shop 25 Landor Road London SW9 9RT 200000453554 530917 172594 Shop 258 Amesbury Avenue London SW2 3BL 200000453556 530924 172592 Shop 260 Amesbury Avenue London SW2 3BL 200000470729 531203 171778 Shop 269 Leigham Court Road London SW16 2SB 200000469946 530159 175750 Shop 27 Landor Road London SW9 9RT 200000458945 530387 176364 Shop 284 Clapham Road London SW9 9AE 200000458947 530387 176364 Shop 288 Clapham Road London 200000469949 530164 175751 Shop 29 Landor Road London SW9 9RT 200000455929 530424 173518 Shop 298 - 300 Brixton Hill London SW2 1HT 200000458960 530304 176281 Shop 314 - 318 Clapham Road London 200000458742 529592 175211 Shop 37 - 39 Clapham Park Road London SW4 7EE 200000485532 530756 178382 Shop 38 Vauxhall Street London SE11 5LG 200000520215 531201 179085 Shop 4 Worcester House Kennington Road London SE11 6LS 200000483695 530229 177047 Shop 40 Thorne Road London SW8 2BZ 200000460215 531154 175303 Shop 427 Coldharbour Lane London SW9 8LH 200000471366 531484 176352 Shop 43 Loughborough Road London SW9 7TB 200000471369 531490 176352 Shop 45 Loughborough Road London SW9 7TB 200000485416 531359 177029 Shop 46 Vassall Road London SW9 6HX 200000486108 529580 176393 Shop 463 - 465 Wandsworth Road London SW8 4NX 200000486110 529572 176381 Shop 469 - 471 Wandsworth Road London SW8 4NX 200000486111 529558 176376 Shop 473 - 475 Wandsworth Road London SW8 4NX 200000486112 529555 176366 Shop 477 Wandsworth Road London SW8 4TE 200000464295 532394 171578 Shop 48 Gipsy Road London 200000485418 531362 177036 Shop 48 Vassall Road London SW9 6HX 200000482657 530404 172933 Shop 49 Streatham Hill London SW2 4TS 200000485420 531367 177036 Shop 50 Vassall Road London SW9 6HX 200000471375 531505 176351 Shop 51 Loughborough Road London SW9 7TB 200000469150 531871 171979 Shop 52 Knight's Hill London SE27 0JD 200000485422 531372 177037 Shop 52 Vassall Road London SW9 6HX 200000471379 531514 176348 Shop 55 Loughborough Road London SW9 7TB 200000482660 530402 172915 Shop 55 Streatham Hill London SW2 4TS 200000458747 529634 175109 Shop 56 Clapham Park Road London SW4 7BG 200000471379 531514 176348 Shop 57 Loughborough Road London SW9 7TB Shop 59 Loughborough Road London SW9 7TB 200000483229 530394 173102 Shop 6 Telford Avenue London SW2 4XB 200000471386 531459 176328 Shop 60 - 62 Loughborough Road London SW9 7SB Shop 61 Loughborough Road London SW9 7TB 200000471390 531464 176328 Shop 64 - 66 Loughborough Road London SW9 7SB 200000482677 530380 172872 Shop 65 Streatham Hill London SW2 4TX 200000471391 531470 176329 Shop 68 - 70 Loughborough Road London SW9 7SB 200000482679 530374 172861 Shop 69A Streatham Hill London SW2 4TX 200000457072 531125 176992 Shop 70 - 74 Caldwell Street London SW9 0HB 200000471392 531476 176328 Shop 72 - 74 Loughborough Road London SW9 7SB 200000470251 530431 176756 Shop 72 Lansdowne Way London SW8 2DR 200000458751 529663 175096 Shop 76 - 78 Clapham Park Road London SW4 7BX 200000471394 531481 176329 Shop 76 - 78 Loughborough Road London SW9 7SB 200000468208 531146 179156 Shop 76 Kennington Road London SE11 6NL 200000482682 530369 172824 Shop 77 Streatham Hill London SW2 4UB 200000482683 530368 172817 Shop 79 Streatham Hill London SW2 4UB 200000482684 530366 172810 Shop 81 Streatham Hill London SW2 4UB 200000469998 530330 175791 Shop 87 Landor Road London SW9 9RT 200000482690 530362 172794 Shop 87 Streatham Hill London SW2 4UB 200000471398 531497 176327 Shop 88 Loughborough Road London SW9 7SB 200000471399 531506 176324 Shop 90 - 92 Loughborough Road London SW9 7SB 200000482703 530351 172755 Shop 95 Streatham Hill London SW2 4UD 200000482704 530349 172749 Shop 97 Streatham Hill London SW2 4UD 200000482705 530349 172743 Shop 99 Streatham Hill London SW2 4UD 200000460657 529536 175546 Shop And Flat 1 - 2 Cresset Street London SW4 6BP 200000480167 530397 177281 Shop Victoria Mansions South Lambeth Road London SW8 1QU 100023675582 531727 176897 Silverburn House Lothian Road London SW9 6TY 010001111560 530036 171820 Site Opposite The Royal Mail Sorting Office Prentis Road London Sw16 100021818835 531484 177365 Skinners Arms 60 Camberwell New Road London SE5 0RS 200000481059 530924 176389 Slade Gardens Stockwell Park Road London 200000484919 531135 173878 South Brixton Neighbourhood Office Greenleaf Close Tulse Hill London Unique No (UPRN) Xcoord Ycoord BPLU AddressPage 55 100021856157 530676 178038 South Central 349 Kennington Lane London SE11 5QY 200000480125 531029 177183 South Island Library 56 - 58 South Island Place London SW9 0DX 010000444596 530798 178385 South Parade Of Shops 1 Jonathan Street And 30 32 34 36 38 And 40 010000443227 530574 178170 Spring Gardens Tyers Street London Spring Gardens Tyers Street London Spring Gardens Tyers Street London 100021909874 530015 177216 Stockers Public House 108 Wandsworth Road London SW8 2LB 200000490475 530972 176115 Stockwell Park Estate Playgroup 130 Stockwell Park Road London SW9 200000495976 530686 176666 Stockwell Park School House Clapham Road London SW9 0AL 200000524408 530679 176586 Stockwell Park Secondary School Stockwell Park Road London SW9 0AL 100023389736 530821 175861 Stockwell Primary School Stockwell Road London SW9 9TG 200000462853 530936 173802 Strand Centre Adult Education Institute Elm Park London SW2 2EH 100023350721 530936 173802 Strand Centre Elm Park London SW2 2EH 100021895897 529995 171222 Streatham Baths 384 Streatham High Road London SW16 6HX 200000465349 529921 171190 Streatham Depot Hambro Road London 200000452940 529049 169897 Streatham Vale Park Abercairn Road London 010008785383 530211 176703 Studley Housing Estate London 200000480278 530401 177013 Surgery 1 Selway House South Lambeth Road London SW8 1UL 200000467918 531088 178155 Surgery 204 Kennington Lane London SE11 5QD 200000482355 530359 170510 Surgery 293 Streatham High Road London SW16 3NP 200000485429 531493 177127 Surgery 91 Vassall Road London SW9 6NH 200000482702 530352 172760 Surgery 93 Streatham Hill London SW2 4UD 200000467995 531011 177685 Surrey County Cricket Club Kennington Oval London SE11 5SG 100023363270 530273 176722 Surrey Hall Binfield Road London SW4 6TB 010008785384 531049 179600 Tanswell Housing Estate London 100023315960 530149 171946 Tate Library 63 Streatham High Road London SW16 1PL 200000522022 531985 175388 Telecommunications Mast Mahatma Gandhi Industrial Estate Milkwood 100023572915 529592 173220 Telferscot Primary School Telferscot Road London SW12 0HW 200000489050 531177 179141 Thai Pavilion East Lambeth Towers 82 Kennington Road London SE1 8XP 010001112697 531018 180118 The Bullring, Waterloo Road London SE1 8XR 100021906785 531245 173398 The Chestnut Public House Upper Tulse Hill London SW2 2NS 200000468065 531045 177865 The Cricketers Public House 17 Kennington Oval London SE11 5SG 100023351492 530727 173775 The Hop Poles Public House 60 Upper Tulse Hill London SW2 2RW 100021866187 530855 173199 The Limes 8 Limetree Close London SW2 3EN 100021875612 531295 176625 The Normandy Public House 20 Normandy Road London SW9 6JH 100021879871 531886 176370 The Paulet Arms Public House 19 - 21 Paulet Road London SE5 9HP 200000469764 531079 179036 The Pelham Mission Hall Lambeth Walk London SE1 7DQ 100023676525 530844 170902 The Rookery Streatham Common South London SW16 3BZ 100021890798 529870 176706 The Surprise Public House 16 Southville London SW8 2PP 010001112030 531015 180116 The Undercroft, Waterloo Roundabout London 100023230461 531144 178849 The Vauxhall Centre Walnut Tree Walk London SE11 6DN 100021885909 532662 172339 The Vine 58 - 60 Rosendale Road London SE21 8DP 100023226258 531462 179958 The Young Vic Theatre 66 The Cut London SE1 8LZ 200000483613 529658 176701 Thessaly Community Project 2 Thessaly Road London SW8 4HT 200000462875 531994 172783 Thurlow Park Special School Elmcourt Road London SE27 9BZ 100023382453 530955 177577 Triangle Adventure Playground Ashmole Street London SW8 1NF 200000487475 529788 175189 Triangle Nursery School 25 William Bonney Estate London SW4 7JQ 100021832804 530601 177324 Turners Function Centre 47 Dorset Road London SW8 1EX 010001111927 531434 174690 Turnmill House And Sharebourne House, Brockwell Park Estate, Effra 200000480070 531605 175012 Unit 1 Angela Davis Industrial Estate Somerleyton Road London SW9 8ND 010001112453 531004 175546 Unit 150 Brixton Enterprise Centre 442-444 Brixton Road London SW9 8EJ 100023257892 531988 175401 Unit 16 Mahatma Gandhi Industrial Estate Milkwood Road London SE24 0JF 100023257893 531989 175394 Unit 17 Mahatma Gandhi Industrial Estate Milkwood Road London SE24 0JF 100023257962 531985 175388 Unit 18 Mahatma Gandhi Industrial Estate Milkwood Road London SE24 0JF 100023257947 531981 175366 Unit 19 Mahatma Gandhi Industrial Estate Milkwood Road London SE24 0JF 100023257837 531966 175369 Unit 20 Mahatma Gandhi Industrial Estate Milkwood Road London SE24 0JF 200000480072 531598 175002 Unit 3 Angela Davis Industrial Estate Somerleyton Road London SW9 8ND 200000480073 531581 175037 Unit 4 Angela Davis Industrial Estate Somerleyton Road London SW9 8ND 100023257920 531981 175502 Unit 4 Mahatma Gandhi Industrial Estate Milkwood Road London SE24 0JF 200000480074 531575 175031 Unit 5 Angela Davis Industrial Estate Somerleyton Road London SW9 8ND 100023257891 531976 175493 Unit 5 Mahatma Gandhi Industrial Estate Milkwood Road London SE24 0JF 200000480075 531553 175072 Unit 6 Angela Davis Industrial Estate Somerleyton Road London SW9 8ND 100023572181 531976 175485 Unit 6 Mahatma Gandhi Industrial Estate Milkwood Road London SE24 0JF 200000480076 531548 175068 Unit 7 Angela Davis Industrial Estate Somerleyton Road London SW9 8ND 200000480077 531543 175065 Unit 8 Angela Davis Industrial Estate Somerleyton Road London SW9 8ND 100023305487 529190 173429 Unit 8 Grange Mills Weir Road London SW12 0NE 200000480078 531538 175061 Unit 9 Angela Davis Industrial Estate Somerleyton Road London SW9 8ND 010000446198 533123 170766 Units 1 To 3 High Limes Northwood Way London SE19 1EX 200000479809 530881 176267 Units 1 To 3 Redmayne House Sidney Road London 200000485029 530689 178139 Vauxhall City Farm 165 Tyers Street London SE11 5HS 200000480294 530492 177706 Vauxhall Park South Lambeth Road London SW8 1UY 100023230109 530782 178344 Vauxhall Primary School Vauxhall Street London SE11 5LG 100023225341 531063 179690 Waterloo Library 114 - 118 Lower Marsh London SE1 7AE 010008785396 529485 173745 Weir Housing Estate London 200000480850 529886 171243 West London Parish Celestial Church Of Christ 3 Station Approach London 200000474856 531975 172206 West Norwood Cemetery Norwood Road London SE27 9JU 010000446790 531941 172173 West Norwood Library 1 - 5 Norwood High Street London SE27 9JX 200000491071 532023 172015 West Norwood Neighbourhood Managment Office Cranfield Close London 200000455116 530447 174373 Windmill Gardens Public Open Space Blenheim Gardens London 100021868471 530217 174541 Windmill Lodge 115 Lyham Road London SW2 5PY 100023320010 529734 169815 Woodmansterne Primary School Stockport Road London SW16 5XE 200000454514 531775 175843 Woolley House Barrington Road London 010000443830 530133 173766 Yard South Of Mudie House Forster Road London 200000486856 529031 174796 Ye Olde Windmill Public House Windmill Drive London SW4 9DE 200000469752 530766 179048 Youth And Community Centre 218 Lambeth Road London SE1 7JY Page 56
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Asset Management Plan July 2004
Page 58
TABLE OF CONTENTS
Section Page No.
Executive Summary 3 1.0 Introduction 6 1.1 Context 6 1.2 High Level Corporate Objectives with Reference to Property 6 Management
2.0 Current Arrangements with Reference to Property 8 Ownership and Management 2.1 Current Arrangements 8 2.2 Roles and Responsibilities 9 2.3 Involvement of Service Departments with the Corporate Asset Management Process 11 2.4 Member Involvement in Asset Management 11
3.0 Corporate Property Management Framework 12 3.1 Introduction 12 3.2 Key Strategies 12
4.0 Planning and Consultation 15 4.1 Planning Context 15 4.2 Consultation Process 16 4.3 Integrating Corporate and Service Asset Plans (SAPs) 18
5.0 Portfolio Summary: Value, Condition and Data 20 Management 5.1 LBL Portfolio Summary Value 20 5.2 Property Condition 21 5.3 Data Management 23
6.0 Performance Management 25 6.1 Performance Management Framework 25 6.2 ODPM and Local Property Performance Indicators 26 6.3 Overview of Property Portfolio Performance in 2003/04 27 6.4 Translating Measurement into Improvement 30
7.0 Financial Summary 31 7.1 Condition of Assets 31 7.2 Current Spending Patterns 31 7.3 Resources and Funding Opportunities 32 7.4 Re-deployment and Disposal of Assets 33 7.5 Disposal Options for 2005/06 and Subsequent Years 34 7.6 Prioritisation of Investment 36
8.0 Programme Development and Implementation 40 8.1 Programmes of Work 40 8.2 Implementation Programme 44 8.3 Review Frequency and Mechanisms 45
Appendix 1 – Headline Strategies 46 Appendix 2 – Asset Implications of Corporate and Service 52 Objectives Appendix 3 – Performance Indicators 53 - 55 Appendix 4 – Investment Prioritisation Model 56
London Borough of Lambeth Asset Management Plan – July 2004 - 2 - Page 59
EXECUTIVE SUMMARY
• Purpose
The purpose of the Asset Management Plan (AMP) is to promote improved decision making on asset management issues, based on corporate priorities. The Asset Management Plan provides the controlling framework for property matters ensuring acquisition, occupation, disposal and maintenance are in line with best practice and the Council’s interests are protected.
It is a practical tool to define, implement and measure the mechanisms by which to:-
Develop a comprehensive record of property assets in logical groupings; Predict maintenance and capital expenditure over the life of property assets to ensure timely maintenance; Maximise the cost effectiveness of the property portfolio; Promote innovation and development in asset management; and Listen and respond to property users.
• Background
In 2002 the Council’s Asset Management Plan received a score of poor from the ODPM. The following year, the Plan was scored satisfactory . In 2003 the Plan achieved a score of good , the highest score. Significant progress has been made since the 2002 AMP. However, some of the desired outcomes are still proving elusive. These include:-
A reduction in maintenance backlog and improvement in condition. Although the funding provisions in the 2004/05 Capital Programme and the Lambeth Opportunities Fund will go some way in ameliorating the situation; Property to some extent continues not to be maximised in terms of meeting current and future service and corporate needs; Sustained capital and revenue funding to support the asset base; Achieving required property rationalisations. However, it should be noted that there are several property rationalisation initiatives in hand at the moment; Securing all the capital receipts necessary to support the capital programme; and Getting best value for money for assets.
Some of the reasons for this are:-
Insufficient understanding of future service and corporate accommodation needs; Under-funding of assets, although recently more funding has been secured. However, there remains a significant shortfall; Lack of clarity over Council-wide roles; responsibilities and expectations of all those involved in strategic asset management; Management of assets not given equal priority across the Council; and Insufficient property information. However, following the recent acquisition of a Corporate Property Information Management System, Corporate Property Services will continue to develop a reliable and relevant database.
This current Asset Management Plan seeks to address these deficiencies and will continue to develop the approach to property management based on a clear understanding of the requirements of the Council and the services it delivers combined with best practice in property management.
Comprehensive, corporate implementation of the Asset Management Plan will ensure high quality property management based on the principles of value for money and recognition of property as a corporate resource.
• Current Arrangements
Significant progress has been made since the 2002 AMP, however it would be of considerable benefit to the implementation of the Asset Management Plan and to the effective and efficient management of the process if the existing formal co-ordinating structure is adhered to and enforced. London Borough of Lambeth Asset Management Plan – July 2004 - 3 - Page 60
For example, a key element of the Asset management Plan is the production of Service Asset Plans by service departments. This requirement was introduced in 2001/2002 and agreed in formally approved documents (Asset Management Plan 2001, 2002 and 2003 respectively). However, only one department has produced a departmental Service Asset Plan. The asset management process will not succeed if the whole organisation does not subscribe to the requirements of the process. It is, therefore, proposed that the Star Chamber process includes the requirement on departments to prepare the departmental Service Asset Plan.
The difficulty in coordinating asset management across the Council is also reflected in the structures currently in place through which an attempt is made to fulfil these requirements. It is therefore, recommended that the Finance Strategy Board in conjunction with the Capital and Asset Management Group review their membership and terms of reference in the light of the necessity to introduce a more effective structure. The FSB or the CAMG must have the authority and influence to ensure that senior officers, with authority from their respective departments, attend meetings and ensure that appropriate action is taken in the department in response to agreements made at those meetings. It is essential that this central co-ordinating group is chaired at Executive Director level.
The remit for the group must include authority to approve the establishment of new groups formed to progress individual initiatives largely concerned with asset strategy. Close liaison will be required between the central group and any such working groups. The current situation by which this is not done, gives rise to a serious lack of co-ordination, not to mention unnecessary duplication.
Occupation of a building by a particular department is often perceived as synonymous with ownership. This is, of course not the case. The critical issue is that properties are well managed and maintained. The AMP proposes a review of the existing ownership arrangement and where properties currently managed by departments do not meet a set criteria, ownership will be transferred to the Centre.
There are short comings in the existing method of accounting for property expenditure and income in that it fails to reveal the full substance of the total transaction i.e rental income or rental outgoing against total expenditure (repairs, utility and management costs) and as such the AMP proposes an effective management accounting structure.
• Value of Portfolio
Property owned by the Council has a total book value of £3.72bn. Of this the vast majority is in housing residential, 32,110 dwellings, and 81 schools, leaving less than 5% for the remainder of the stock. The non-operational portfolio is valued at £65.2m, over 60% of which is derived from the shops portfolio. The shops portfolio is economically viable making a satisfactory annual return, however, there is little strategic purpose for retention. 72 units are due for disposal in 2004/05 and consideration is in hand on continuation of the disposal programme.
• Backlog Maintenance
Backlog maintenance is estimated at £85.04m (excluding housing residential), schools account for £49.2m, leaving over £36m for the remainder of the portfolio. On this basis the Council should invest £36.2m pa to sustain its properties in a satisfactory condition. These figures do not take account of the expenditure required in relation to DDA compliance and compliance with Asbestos at Work Regulations.
• Data Management
The Council has acquired a robust corporate property information system. The core data, ie ownership details, have been loaded onto the system. Transient data ie condition, floor plans, floor areas, DDA and asbestos data are loaded onto the system as the stock condition surveys progress.
• Performance Monitoring
The ODPM has identified a range of national property performance indicators and these are an integral part of the Council’s performance monitoring digest. These are combined with local performance indicators linked to the Council’s asset management objectives. Generally London Borough of Lambeth Asset Management Plan – July 2004 - 4 - Page 61 performance against the national indicators is reasonably satisfactory, but requires pro-active effort, for example, in the management of utility costs and timely effective deployment of capital investment.
• Regulatory Compliance
The areas of basic health and safety compliance along with essential work on addressing the DDA and the responsibility to deal with asbestos at work regulations currently lack corporate co- ordination and ownership. This represents a serious deficiency and must be addressed at the earliest opportunity.
• Property Retention Versus Disposal
As identified previously the Council has a considerable maintenance backlog compounded by the need to ensure its property portfolio is fit for purpose. Over the years the Council has undertaken a rolling programme of property reviews which has enabled it to generate significant capital receipts for investment into the remaining portfolio.
In 2003/04 this amounted to some £44.5m and in 2004/05 the target is £27m. Preparations for the 2005/06 programme is in hand.
This will be considered as part of the “Star Chamber” process in late Summer. However, it should be noted that after 2005/06, the Council will be in a similar position to many other local authorities with little scope for disposals.
• Allocation of Investment
There is an established investment prioritisation framework introduced in 2002/03 which is now embedded in the formal Council decision making process.
• Programme of Work
The AMP identifies corporate initiatives which inform the corporate work programme in the short to medium term.
Implementation of the key strategies identified in the Asset Management Plan (paragraph 3.2) will ensure achievement of corporate objectives with reference to property from a strategic perspective and from the perspective of service departments.
London Borough of Lambeth Asset Management Plan – July 2004 - 5 - Page 62
SECTION 1 – INTRODUCTION
1.0 Introduction
1.1 Context
1.1.1 The purpose of the Asset Management Plan is to guide and facilitate rational property decision making based on corporate priorities. It is a practical tool to define, implement and measure the mechanisms by which the Council:
Promotes improved decision making on asset management issues Develops a comprehensive picture of its property assets in logical groupings Predicts maintenance and capital expenditure over the life of its property assets Maintains and improves its assets Maximises the cost effectiveness of its property portfolio Promotes innovation and development in asset management Listens and responds to property users.
1.1.2 Good asset management optimises utilisation of assets in terms of service benefits and financial return, it ensures that the opportunity cost of financial resources tied up in property is minimised and capital and revenue expenditure on the portfolio is directed efficiently and effectively to provide value for money.
1.1.3 The property assets of the London Borough of Lambeth are generally held by the Service Departments. The Asset Management Plan provides the controlling framework for property matters ensuring acquisition, occupation, disposals and maintenance are in line with best practice and that the Council’s interests are protected.
1.1.4 It should be noted that:
The Plan applies only to property the Council owns or occupies. The plan has a five year time span, incorporating annual reviews The existing knowledge base provides a general appreciation of the condition of the portfolio but is by no means comprehensive. A full stock condition survey of all operational property will be available by 31 March 2005. The Plan sets out the context for and the programme of action relating to the property portfolio over the medium term and is intended for a wide audience including the public, as the Council’s statement of asset management practices and priorities, and the Office of the Deputy Prime Minister, particularly with reference to the Comprehensive Performance Assessment The format of the Plan reflects current guidance from the ODPM Housing residential stock, schools and other infrastructure assets are covered by service specific, departmental asset management plans. Where appropriate this Plan refers to service specific asset management plans and explains how the different plans interact The plan was developed in close consultation with internal and external stakeholders
1.1.5 Within LBL asset management is based on an iterative annual “Customer/Benchmarking Research Model” designed to ensure measurable performance improvement over time. The Asset Management Plan is supplemented with regular property performance reports, analysing performance against agreed targets.
1.1.6 In 2002 the Council’s Asset Management Plan started from a very low base and received a score of poor from the ODPM. The following year, the Plan was scored satisfactory . Subsequently in 2003 the Plan achieved a score of good , the highest score. The current Asset Management Plan seeks to develop and refine the approach to property management based on this excellent foundation.
1.2 High Level Corporate Objectives With Reference To Property Management
1.2.1 The high level, corporate objectives which govern the strategic direction of property management within the Council are as follows:
London Borough of Lambeth Asset Management Plan – July 2004 - 6 - Page 63 1. Making buildings fit for people and fit for purpose 2. Releasing latent value and hidden costs and promoting innovation in provision and use 3. Optimising income from property holdings through rental and capital maximisation 4. Generating capital receipts 5. Reducing property running costs 6. Optimising the use of space 7. Protecting the condition of properties 8. Ensuring legal requirements are met 9. Ensuring all reasonable measures are taken to ensure access to properties 10. Ensuring properties meet service needs
London Borough of Lambeth Asset Management Plan – July 2004 - 7 - Page 64
SECTION 2 – CURRENT ARRANGEMENTS WITH REFERENCE TO PROPERTY OWNERSHIP AND MANAGEMENT
2.1 Current Arrangements
2.1.1 The current arrangements for property ownership and management do not promote an approach in which property is regarded as a corporate resource. The Council, therefore, suffers from lack of coordination and strategic management in this area.
The key issues associated with the existing arrangements can be summarised as follows:
• Large property portfolio, acquired years ago for purposes which no longer apply • Freehold ownership of most of the portfolio which means there is a considerable amount of capital locked up in property • Properties of inappropriate size, type and in poor condition • Inherited inadequate record keeping • Individual properties not subject to regular appraisal and review • Good management hindered by departmentalism • Property not perceived as a corporate resource • No incentive to manage individual properties appropriately or encourage rigorous cost control • Opportunity cost of property not always considered in taking decisions • Current system of accounting does not facilitate good management and monitoring • Specific running costs not identified for individual properties • No consistent mechanism by which to identify individual properties with excessive running costs • Significant maintenance backlog: no corporately managed planned maintenance programme • Public relations issues particularly with reference to disposal of surplus properties and voluntary sector premises • Corporate Property Unit under resourced in comparison to the requirements of the Council.
2.1.2 Property Ownership
Ownership of property is regarded as incidental to delivery of a particular service. However, occupation of a building by a particular department is often perceived as synonymous with ownership. This is, of course, not necessarily the case. The critical issue is that properties are well managed and maintained. Formalities of “ownership” must not be allowed to distract from the responsibility of the Council as a corporate body to ensure appropriate arrangements are made to exercise the duty to manage and maintain its property to a good standard. This obligation cannot be fulfilled in the absence of resources to support the management and maintenance functions. In the current situation, departments are not resourced to manage and maintain property within their ownership. The very small team in Corporate Property Services is able to offer support in the form of advice and professional expertise. CPS does not have staff to undertake management and maintenance of the whole property portfolio and it has access to only limited budgets recently agreed for undertaking measured condition and asbestos surveys, and DDA audits.
The AMP provides the mechanism by which to ensure effective management of property pursuant to service delivery objectives. Its implementation will be limited if there are no additional resources to do so, either in departments or at the centre. Options for the ownership and management of the portfolio can be summarized as follows:-
• Retention of the status quo. • Ownership is transferred to the centre, excluding housing residential and schools, and the centre retaining responsibility for management and maintenance (significant resources implications). • Ownership is transferred to the centre, excluding residential and schools, and responsibility for certain functions remain with departments.
London Borough of Lambeth Asset Management Plan – July 2004 - 8 - Page 65 • A “hybrid” following a review of the portfolio. This will entail a mixture of the earlier options.
The last option would create the least upheaval subject to the allocation of additional resources. This option will entail all Council property excluding Housing residential property, Education Department Schools, and certain specific service properties identified following a review based on the criteria set out below should come under corporate ownership and control with effect from 1 April 2005. This will entail establishing a landlord and tenant arrangement with departments.
With corporate ownership and control the Corporate Property and Facilities Management Service should have responsibility for the operational performance of all properties identified following the review and should manage the day-to-day activities in relation to them. However, in order to have a practical and workable application of this principle, a review will be conducted of each property category to determine who is currently responsible for operational management and the effect on service delivery of any change. Following the outcome of the review, it is proposed that little, if any, change should be made to existing operational management arrangements where:-
• There is a requirements that occupiers should control and manage operational arrangements for the property they occupy, e.g. local management of schools; • There is a formal delegation of operational management to property occupiers through a lease or other arrangement, e.g. Joint Venture Agreements; • Performance of operational property management activities is a dominant feature of service delivery due to the nature of the property managed and its intrinsic role in the service delivery process, e.g. public conveniences, parks, etc.
Where departments currently operationally manage properties and none of the above criteria is relevant, it is proposed that the operational management responsibilities will transfer to the Corporate Property and Facilities Management Services Managers.
2.1.3 Property Holding (Memorandum) Account
The existing method of accounting for property expenditure and income were developed over the years on a piece-meal basis. They do not reveal the full substance of the total transaction i.e. rental income or rental outgoing against total expenditure (repairs, bad debts, and management costs), etc. To address this deficiency, it is proposed that officers investigate the feasibility of putting an effective management accounting structure in place and report of the findings no later than the 31 March 2005.
Ideally the accounting structure should contain information as follows: for individual properties:
• Property base (listing properties within the portfolio) • Capital Value • Asset Rents • Repairs and maintenance expenditure • Rental income • Management costs • Debt charges • Utility costs
2.2 Roles and Responsibilities
2.2.1 The AMP process in LBL continues to seek engagement from across the authority, build upon existing consultation arrangements and to ensure balance between corporate and service perspectives of assets. Responsibilities within the process include:
London Borough of Lambeth Asset Management Plan – July 2004 - 9 - Page 66
• Corporate Property Officer – The Head of Asset Strategy is the designated CPO (Corporate Property Officer) for AMP purposes with overall responsibility for developing asset management within the authority and for ensuring timely production of the AMP. The CPO identifies areas that need to develop or change in the future.
The principle role of the CPO is therefore:-
- To be the lead adviser to the Council, its committees, working parties and other groups on all asset management planning matters. - To continually review Council land and property for opportunities to improve service delivery, financial return and to generate capital receipts. - To monitor and contribute to all service asset plans, best value reviews etc. including identifying property implications and to translate these into effective asset management action planning. - To control corporate property records and develop these to deliver effective management information, contribute towards the objectives of the Council’s information and Communication Technology Strategy and implementing Electronic Government Strategy. - To ensure adherence to the Corporate Strategic Property Management Plan.
• Finance Strategy Board (FSB) – The Executive Director of Finance chairs the FSB and is supported by the CPO in this role. The FSB has representation at senior level from all departments across the Council. It is responsible for ensuring service engagement in the AMP and acting as an arbiter in evaluating changes to the portfolio through the Council’s programme of work.
The FSB is also responsible for developing the Capital Strategy and overseeing the Capital Programme. This arrangement ensures close integration between both.
• Executive – FSB reports to the Strategic Management Board (SMB – has overall responsibility for the main strategic decisions of the Council at officer level) and the Executive, the Council’s strategic decision-making body at Member level. Asset Management matters are reported directly to the Executive through the Executive Member for Finance, whose brief includes both Finance and Property matters. Formal reporting is supplemented by regular briefings.
• Capital and Asset Management Group – an advisory group with both corporate and service representation supports FSB. The group is concerned with putting AMP policy in practice through interpretation of guidance, development of Service Asset Plans (SAPs) and data collection. It concerns itself with more detailed matters allowing FSB and the Executive to focus on strategic issues.
• Corporate Property and Facilities Management – Acts as the focal point for the AMP process and is responsible (on behalf of the CPO) for drafting the Corporate AMP, data management policy, information for performance measurement and for matching property demands with supply in a timely and effective way.
2.2.2 The decision-making and consultation process for the production and implementation of the AMP is a collaborative two-way process designed to engage interested groups across the Council while balancing the service and corporate perspectives. The “backbone” of this is illustrated below with “links” established to other corporate and service activities at each stage in the process.
London Borough of Lambeth Asset Management Plan – July 2004 - 10 - Page 67
Key Links Group Role
Executive Ensure AMP reflects LBL needs (Senior Members) and strategic objectives
Strategic Management Board Ensure consistency of AMP with (Chief Officers) overall LBL objectives
Link with other corporate Oversee AMP processes and & service strategies – Finance Strategy Board production of Corporate AMP resolving conflicting (Senior Officers Cross- objectives/priorities department)
Link with service managers Identifying property needs arising within directorates Capital & Asset Management from service priorities and assist through Service Asset Plans Group in developing AMP concepts (SAPs) (Cross-departmental)
Identify problems & pressures in Property occupiers & users the LBL estate from an operational perspective
2.3 Involvement of Service Departments with the Corporate Asset Management Process
All service departments have representation on SMB, FSB and CAMG through a senior officer (first/second or third tier). This enables service needs and priorities to be clearly identified. In addition Service Asset Plans (SAPs) are developed for all major service areas on an annual basis and submitted to the FSB in order to inform the Corporate AMP and Capital Strategy. Whilst this is still a developing area, guidance has been published in order to promote a consistent approach to the format and content of SAPs. These will become a key forward planning mechanism ensuring that decisions about the portfolio are consistent with service needs.
2.4 Member Involvement in Asset Management
Members have an active involvement in asset management matters. The Executive approves the AMP and the CPO provides regular briefings to the Executive Member for Finance and Property. Members are also involved in determining the overall capital programme including receiving regular performance reports.
London Borough of Lambeth Asset Management Plan – July 2004 - 11 - Page 68
SECTION 3 – CORPORATE PROPERTY MANAGEMENT FRAMEWORK
3.1 Introduction
3.1.1 In order to address the issues identified above, a strategic property management approach is required. Implementation of the Asset Management Plan will ensure high quality property management based on the following principles:
Value for money - Ensure effective management of property income and expenditure - Reduce occupancy costs by ensuring efficient use of space - Identify facilities with higher than normal occupancy costs - Convert properties to ‘best use’ - Understand the real costs associated with the portfolio Recognition of property as a corporate resource Ability to plan ahead anticipating future requirements Improvement of the condition of the properties retained under a well resourced planned maintenance programme Up to date, comprehensive property record, professionally managed and maintained Generation of capital receipts from the sale of surplus assets
3.2 Key Strategies
Implementation of the following key strategies will ensure achievement of the high level corporate objectives (1 to 10) set out in paragraph 1.2.1 on page 6.
(Note: Please see Appendix 1 for detailed initiatives by which the key strategies will be achieved in day-to-day management terms).
3.2.1 In order to ensure best value :
The Council will not hold property for its own sake and will measure its use of property in financial terms (as with other resources) The Council will occupy the minimum property necessary to perform its duties and attain its objectives The Council will expend the minimum on day to day management consistent with value for money and good management
(Addresses all the high level corporate objectives)
3.2.2 In order to ensure good financial management :
A method of accounting will be introduced to reflect the full substance of the total transaction for each property, (that is, rental income and rental outgoing against total expenditure including repairs, bad debts, management costs, etc)
(Addresses high level corporate objectives 2, 3 and 4)
3.2.3 In order to ensure good physical maintenance of property assets and improve the prioritisation and forward planning of capital works :
The Council will give increased priority to property maintenance with the long term objective that maintenance should not exceed 10% of the value of the estate.
(Addresses high level corporate objectives 1, 5, 7 and 8)
3.2.4 In order to ensure the requirements of the Council’s sustainability policy are met :
The Council will undertake appropriate research and apply the requirements of sustainability to all aspects of property management.
(Addresses high level corporate objectives 2)
London Borough of Lambeth Asset Management Plan – July 2004 - 12 - Page 69 3.2.5 In order to ensure best value in procurement:
The Council will review and develop the process of procurement of property services and of property management activities.
(Addresses high level corporate objectives 7)
3.2.6 In order to ensure optimum management of non-operational property (commercial and industrial) :
The Council will satisfy itself that continued ownership is in the best interests of all relevant stakeholders.
(Addresses high-level corporate objectives 1 to 10)
3.2.7 In order to ensure efficient and proactive management of office accommodation :
The Council will provide appropriate space for employees and equipment in a technologically changing environment The Council will provide accommodation which enhances service delivery, promotes a good corporate image and helps to attract and retain employees The Council will manage office accommodation to achieve greater flexibility and reduce operational costs.
(Addresses high-level corporate objectives 1 to 10)
3.2.8 In order to ensure best value with reference to Council owned property and its use by the voluntary sector :
The Council will maintain a consistent, professional approach to voluntary sector premises in accordance with the review undertaken and approved in early 2004
(Addresses high-level corporate objectives 1, 2, 5, 6, 7, 8, 9 and 10)
3.2.9 In order to ensure accountability to the public :
The Council will establish a process for engagement and consultation with the community.
(Addresses high-level corporate objectives 1 to 10)
3.2.10 In order to ensure property resources are managed in the best interests of the Council’s service delivery priorities :
All departments of the Council will prepare and implement service asset plans.
(Addresses high-level corporate objectives 1 to 10)
3.2.11 In order to ensure optimum utilisation of Council resources :
The Council will maximise the generation of capital receipts from within the estate to meet other needs.
(Addresses high-level corporate objectives 4)
3.2.12 In order to ensure performance monitoring, review and analysis to support better property management :
The Council will invest in appropriate management information systems and develop the use of benchmarking, performance indicators etc.
(Addresses high-level corporate objectives 2, 3, 4, 5, 7, 8 and 9)
3.2.13 In order to ensure clear understanding of property management responsibilities and accountabilities : London Borough of Lambeth Asset Management Plan – July 2004 - 13 - Page 70
Property will be deemed to be held by the Executive and used by service departments in trust for the Council as a whole.
(Addresses high-level corporate objectives 1 to 10)
3.2.14 In order to ensure the full benefit of corporate property ownership is achieved :
The Council will consider corporate ownership and control with reference to all property other than housing residential property, schools and other specific exclusions according to criteria set out in paragraph 2.1.2 above.
(Addresses high-level corporate objectives 1 to 10)
London Borough of Lambeth Asset Management Plan – July 2004 - 14 - Page 71
SECTION 4 – PLANNING AND CONSULTATION
4.1 Planning Context
4.1.1 The AMP does not exist in isolation but is set within the context provided by other corporate and service plans. A summary of this is illustrated below.
Service Plans Corporate Plans AMP
Corporate Services Community Strategy (Strategic Planning) Best Value Performance Plan Education Department
Capital Strategy
Environment Services Corporate Asset Monthly/annual Management Plan property Housing Services performance report Departmental Plans Key Activities & Targets Social Services Business Unit Plans Objectives, Targets & Budgets
All underpinned by Budgets and MTFS (Medium Term Financial Strategy)
The overall strategic planning context for the AMP is set by the following plans. These are themselves a response to wider external and internal drivers impacting on LBL, and have been subject to consultation.
• Community Strategy – Corporate, borough wide priorities and the plans to deliver against the priorities.
• Comprehensive Performance Assessment Recovery Plan (Lambeth Recovery Plan) – along with other London boroughs, LBL went through the CPA last year (an evaluation by the Audit Commission of services provided). The Recovery Plan is both a response to the CPA assessment and the Council’s own self-assessment of the weaknesses and challenges it faces. The plan sets out how LBL will improve over the next three years (available at www.lambeth.gov.uk/lambeth ).
• LBL’s Annual Plan (Best Value Performance Plan) - available at www.lambeth.gov.uk/improvement Lambeth).
• The Capital Strategy – identifies LBL’s funding needs, funding sources and funding priorities, and provides a policy framework for the AMP.
4.1.2 Asset Implications of Corporate and Service Objectives
The asset implications of the Community Strategy are also illustrated in Appendix 4. These related themes underpin the work programme of the Corporate Property and Facilities Management Unit.
4.1.3 Goals and Objectives of Asset Ownership
LBL’s property policies provide the link between strategic objectives identified in the LBL corporate and service plans through its portfolio management. The Council has a set of property management objectives. These objectives provide the primary drivers for identifying management action with respect to property and progress tracked by performance measures directly related to the objectives. London Borough of Lambeth Asset Management Plan – July 2004 - 15 - Page 72
Strategic Objectives Purpose of Asset Management Management Objectives Set through Corporate & Service To optimise property to meet For assets (buildings) Plans LBL’s corporate & service For Services (activities) objectives
Objectives for Asset Management Objectives for Service Provision To optimise property holding To ensure cost – effective services To optimise property running costs To promote quality in services To ensure effective use of space To ensure timely & responsive services To protect the condition of property To optimise the value of property To ensure legal requirements are met To ensure property is safe To ensure access for all property To ensure property meets service needs To ensure client satisfaction with services
4.1.4 Issues from an Operational Perspective
In addition to the context provided by strategic plans, problems inherent in the portfolio are identified from the SAPs and through consultation with property occupiers and users. Since 2002/03 this has been undertaken in a variety of ways including:-
• Assessment of suitability/condition/location of premises through SAPs by the officers in charge. • A client satisfaction survey of estate services provided through the Council’s external Estate Management and Valuation contractor, Messrs Dunlop Heywood Lorenz. • Strategic and Facilities Management services retained in-house. • Stakeholder consultation on the corporate office accommodation portfolio. • Consultation through Best Value Review of services, for example, the Joint Venture Agreement with Team Lambeth (external contractors). • Consultation through the Local Strategic Partnership, for example, the recent review of the Council’s relationship with its voluntary sector partners.
Formal processes to gauge the views on properties and property services are undertaken on a regular basis through various client satisfaction surveys. The outcome of these surveys informs the setting of performance measures and targets with a view to continuous improvement.
4.2 Consultation Process
4.2.1 LBL consults widely on key corporate and service strategies and works in partnership with other public, private and voluntary agencies in the delivery of shared objectives. The AMP rather than duplicate consultation undertaken as part of other corporate or service objectives, draws on them as part of the AMP process, for example, in respect of the HRA portfolio, consultation is principally through the Tenants Council; Social Services hold regular focus group meetings with service managers, users/stakeholders to discuss issues such as commissioning of services which have a direct link with assets; the Education Department consults all schools and Diocesan Boards on the Education Policy Statement and Education AMP; whilst Environment Services consults its various stakeholder groups on parks and other leisure related issues. In 2003/04 the Council undertook an extensive consultation exercise of its community and voluntary sector partners. The exercise culminated in a robust Community and Voluntary Sector Premises Policy, which is now at the implementation stage.
4.2.2 The consultation framework for the AMP is as follows.
Consultation Framework for AMP
Members Criteria for decisions on investment priorities, approval of the AMP prior to submission, progress on identified actions, and portfolio performance. Finance Strategy Board Approval of the AMP prior to submission and progress against (FSB) actions.
London Borough of Lambeth Asset Management Plan – July 2004 - 16 - Page 73 Service Managers On AMP concepts, processes and data needs, changes to the portfolio; criteria for informing investment priorities; actions identified within the AMP. Property Users and Through an annual representative sample survey on the problems in Occupiers the estate from an operational perspective, including suitability of accommodation.
Clients receiving property Annual client satisfaction survey of property services supplemented services by regular meetings on Service Level Agreements (SLA). Community High-level consultations through the Local Strategic Partnership (LSP), Town Centre Forums, Area Committees and the Lambeth Voluntary Action Council.
4.2.3 All departmental service plans identify customer priorities; define departmental objectives and the level of services to be provided. The Council is committed to continuous improvement (as evidenced in the Lambeth Recovery Plan) in all its services and service plans emphasise this by identifying:-
• Areas requiring improvements. • Opportunities for improvement. • Constraints to improvement.
Corporate Property and Facilities Management Unit, for example, measure and monitor the following for continuous improvement purposes:-
• Client satisfaction – Building. • Client satisfaction – Services. • Asset performance.
4.2.4 Targets set are either based on current performance, consultation or from data sourced from external benchmarking through the Association of Chief Estates Surveyors (ACES – London Branch) and the Corporate Property/IPF Benchmarking Club.
4.2.5 Recent asset related consultation exercises including issues raised and actions taken in 2003 are set out below and have been linked to LBL Local Performance Indicators.
Stakeholders and Issues Raised
Stakeholder Group Issues Action/Proposed Action • End Service Users Tenants in commercial Consultation with this stakeholder properties group is ongoing. Voluntary Aided Organisations Availability of properties to let. Community and Voluntary (Council Funded) Ease of access and reliability of Sector Premises Strategy now Council as landlord to undertake in place and being repairs – property condition. implemented. Suitability of premises (type, size, location, etc.) Rent subsidy. Services and support. Statutory residential tenant Professional services on time. Additional resources provided (RTB) by the External Contractor to deal with the increase in the number of applications. Members of the public Flexibility in reception areas Reception areas in the Town Availability of information. Hall and at the Benefits Office Honest and timely response. have been refurbished with a view to enhance service delivery. • Building Users (Staff in Provision of user-friendly work The views of staff have been Client Departments) environment to enable service factored into the recently delivery. reviewed Office Accommodation to comply with pre- Accommodation Strategy. agreed space standards • Internal Front Line Service Flexibility to meeting changing Reinforce good Asset Departments service priorities Management Planning in LBL. Corporate Services Predictable costs. Educate and build capacity for London Borough of Lambeth Asset Management Plan – July 2004 - 17 - Page 74 Stakeholder Group Issues Action/Proposed Action Education Robust procedures. asset planning in Environment Time limited. departments. Housing Quality monitoring. Work regarding the Social Services Corporate Property Information implementation of the PIMS is Management System (PIMS) in progress. • Internal Corporate Clients Meeting Best Value. Regular monthly meetings Corporate Services Revenue Income. under existing Service Level Chief Executive’s Office Capital Receipts. Agreement arrangements, Utilisation of Assets. and through asset Corporate Planning. management corporate Serving the interest of the public. groups such as the Finance Strategy Board and the Capital and Asset Management Group. • Tax Payers (Council and Value for Money. Regular monthly monitoring NNDR) Confidence. meetings with external contractor and through benchmarking. • Elected Members Serving the interest of the public. Delivery of the Asset Efficiency and effectiveness. Management Plan and the Best Value. AMP objectives. Flexibility to meet changing needs.
4.3 Integrating Corporate and Service Asset Plans (SAPs)
4.3.1 Service departments develop SAPs on an annual basis. These SAPs inform the Corporate AMP. This is part of a wider “top down – bottom up” process, which integrates planning at a corporate, service and individual establishment level and provides a direct linkage between corporate priorities established by Members, the occupiers and users of properties. A priority since 2002/03 and carried forward in subsequent year’s AMP process.
4.3.2 Progress in developing SAPs continues to be slow. However, further emphasis has been given to the process through guidance on format and content to promote a consistent approach including its inclusion as a mandatory requirement in the corporate business planning cycle; and through an initiative to develop these jointly between the Corporate Property and Facilities Management Service Unit and the respective service departments.
4.3.3 Briefly, the issues highlighted in the “Guidance” and to be addressed in SAPs include the following:-
• Services objectives as formulated in the departmental business plan including: - service outcomes to be achieved with performance indicators - service outputs to be delivered with performance indicators and targets
• Description of departmental property portfolio with details of categories used for the development of the SAP
• Results of analysis of matching property performance and service delivery strategies: - property service dependencies - property condition - property utilisation - property location - property sufficiency - property suitability
• The property actions proposed in response to their: - Capital Strategy overview - Asset maintenance overview - Health and Safety overview - Surplus Asset/Disposal overview - The cross impact each of these proposals has on the others
• Benefits to the department and or Council from these proposed property actions
London Borough of Lambeth Asset Management Plan – July 2004 - 18 - Page 75 • Analysis of property performance required to deliver the required service outcomes over the duration of the SAP
• Analysis of opportunities for joint asset or service delivery between departments/partner agencies.
London Borough of Lambeth Asset Management Plan – July 2004 - 19 - Page 76
SECTION 5 – PORTFOLIO SUMMARY: VALUE, CONDITION AND DATA MANAGEMENT
5.1 LBL Portfolio Summary and Value
5.1.1 Property Asset Base
LBL is a major landowner. Through this ownership it has a significant impact on domestic and working life across the borough. As the landlord of approximately 32,110 dwellings (£3.2 billion), 289 operational buildings (£94.702m), 81 schools including voluntary aided and foundation (£316.555m), 689 non-operational properties (including 190 miscellaneous interests) (£65.223m) and 85 indirect operational interests (properties leased to voluntary sector organisations or partner agencies) valued at £16.496m within its boundaries. The aggregate value of these interests is £3.727 billion (this is a value for capital accounting purposes rather than a market value) as at 31 March 2004. Most of this value is in the housing residential stock and schools used by the Council to deliver services in direct support of community priorities. The asset allocation by property category as a percentage of total portfolio value is shown below.
Asset Category Value of Holdings as % Major Asset Holding Value of Holding as % of Total Portfolio Value of Total Portfolio Value Operational Property 2.5% Housing (Dwellings) 86.8% Non-Operational Property 1.8% Schools 8.5% Operational Indirect 0.4% Property Asset Allocation by Property Category as a Percentage of Total Portfolio Value
The Council’s residential stock, schools, and infrastructure assets are covered by their own respective asset management plans, reflecting the huge investment in these areas and their importance in service delivery. Where appropriate, the corporate AMP makes reference to service-specific asset plans already in place, and explains how the various strategic plans interact. It does not substantially reproduce their content, but does consider assets used by those services that are not covered directly in their own plans (e.g. non-school buildings of the Education Department), and contains statistical information on maintenance backlog for all areas of the corporate estate. The composition of LBL’s asset base and its value is set out below. These categorise the portfolio according to the recommended CIPFA classification.
Asset Category No. (%) Major Asset Holding No (%) Operational Property 289 (0.86%) Housing Dwelling 32,110 (96.5%) Non-Operational Property 689 (2.07%) Schools 91 (0.27%) Composition of the Council Property Asset Base
5.1.2 Non-Operational Portfolio
The Council’s non-operational portfolio (investment properties retained for income generating and socio-economic purposes) comprises shops, industrial estates, car parks, leasehold ground rent investments and other miscellaneous interests. The majority of the shop investments are owned under the housing powers and retained within the Housing Revenue Account (HRA).
The investment portfolio as at 31 March 2004 is valued at £65.22m. The portfolio is currently retained for the generation of rental income (revenue) and meeting other socio-economic objectives. The continued ownership of the portfolio is at the Council’s discretion and as such it is paramount that the Council satisfies itself that continued ownership is in the best interest of the community. An appraisal of the portfolio is undertaken annually and reported to Members accordingly. Last year, the Council divested itself of the industrial estates excepting the Angela Davis and Mahatma Gandhi Phase II industrial estates. This year, in addition to assets surplus to requirements, following an appraisal of its shops portfolio, the Council agreed to dispose of shops within the Clapham NDC area, Clapham Road and Kennington Park Road.
By continuing to chase rent arrears promptly and where necessary appointment of bailiffs, historic rent arrears have been reduced as well as collecting current rents due. This is reflected in the rent collection statistics set out in the schedule below:-
London Borough of Lambeth Asset Management Plan – July 2004 - 20 - Page 77
April 2003 to March 2004 Committee Demanded Collected % Collected £ £ Housing 3,739,766 3,890,215 104.02 Environment 1,299,143 1,469,150 113.07 Depots 198,508 267,281 134.65 Social Services 451,549 459,688 101.80 Education 150,583 144,753 96.13 Corporate Resource: Facilities Management 81,937 82,015 100.10 Corporate Resource: Social Account 264,601 202,873 76.67 Others 23,778 15,942 67.05 TOTAL 6,209,865 6,500,033 104.67
The poor performance in respect of the properties held by Corporate Resource: Social Account is due to the fact most of the tenants comprise community groups and voluntary organisations. Many of these groups were refusing to pay rent in anticipation of the Council adopting a policy of concessionary rents for such occupiers. The Council has now agreed that full rents shall be charged with a phased implementation or increase over four years. These groups are now being contacted with a view to, where necessary, regularise the terms of occupation and setting up appropriate rent payment arrangements.
5.2 Property Condition
5.2.1 Due to the ringfencing of the HRA, properties within the account including Area Housing Offices accommodation and related facilities management are dealt with in the Housing Department. The other service department with a large portfolio is the Education Department, which has a dedicated team which co-ordinates its revenue and capital investment programme. The situation in Education is complicated since schools benefit from devolved formula Capital, which they receive under the Fair Funding Framework. These monies can only be spent on the buildings.
Mindful of the DfES and ODPM guidance on stock condition surveys, the Council commissioned a condition survey of a majority of its stock in 1999/2000. As these surveys are over five years old, the Council recently completed a new measured condition and Asbestos survey including a Disability Discrimination Audit of its office accommodation, schools, and Environment Department property portfolios. Condition Surveys of schools were undertaken in 2003. Surveys of the remainder of the operational portfolio (Social Services, Education Non-schools and voluntary sector premises) are due to be completed in March 2005. However, based on the available condition survey information, the position regarding the condition of the portfolio is set out as follows:
Asset Type Estimated Estimated Comments gap at 31 annual cost of March 04 maintenance at satisfactory standard £m £m Schools 49.211 26.162 Costs based on AMP Condition survey – take no immediate account of suitability and sufficiency shortcomings. Education – Other 1.787 0.950 Costs derived by comparison with schools. More detailed condition information sought. Housing Stock 525.264 27.183 This information is based on the 2004/05 star chamber submission by Housing. The estimated annual cost of maintenance for the stock is taken to be the MRA figure that is £27m. Libraries 1.877 0.975 Costs derived by comparison with schools. More detailed condition information sought. Parks 6.431 1.608 This information is from the AMP 2003/04. A condition survey is currently being undertaken and details will be available in mid-May. Sports/Recreation 4.063 1.016 This information is from the AMP 2003/04. A condition survey is currently being undertaken. Non-Operational 1.500 0.250 Maintenance is deemed responsibility of property (investment tenant, therefore assumed liability nil. London Borough of Lambeth Asset Management Plan – July 2004 - 21 - Page 78 Asset Type Estimated Estimated Comments gap at 31 annual cost of March 04 maintenance at satisfactory standard £m £m Properties) However, third responsibility estimated at £1.5m. Office Accommodation 14.300 3.860 Condition Surveys undertaken: Statutory Health & Safety £2.75m; Stat DDA £2.00m; Non Stat works £9.55m; Stat reconfiguration/ refurbishment £3.4m; Non Stat reconfiguration/refurbishment also £3.4m; Non Stat DDA £2.7m. Excludes buildings recently sold; I.e. Offley Rd, Clapham Park Rd & 357 Brixton Rd (Registrars) & Porden Rd. Works carried out to date are assumed to be minimal and compensated by risk items, i.e. a contingency item. Excludes utilities & project costs. Other Operational 1.237 0.300 Condition surveys for Social Services and Property Environment Dept. properties were undertaken in 1999/2000. The accuracy of this information is questionable and as such cannot be guaranteed and in 2004, is out of date. However, based on this survey, backlog maintenance for SSD portfolio properties has been estimated at £1.237m (excluding Libraries). Estimated annual cost of maintenance at satisfactory standard of £300k. A 2004/05 Capital Programme allocation of £250k has been earmarked to undertake new measured condition surveys/DDA/Asbestos surveys. The contract procurement process has commenced, however, due to EU procurement procedures the exercise is not likely to be completed until March 2005. Voluntary Sector 1.500 0.350 No condition survey data is available for this Premises segment of the portfolio. However, a cautious estimate of £1.5m is suggested. Estimated annual cost of maintenance at satisfactory standard £350k. An NRF bid of £808k.has been made for this financial year. If successful this will fund a measured condition survey/ DDA audit/ Compliance with Asbestos at Work Regulation including responsive and planned maintenance in 2004/05. As a fall back, the survey of the properties will be included in the 2004/05 programme of surveys. A further bid of £300k was successfully made for the 2004/05 Lambeth Opportunities Fund with a view to ensuring that the Council has reliable information on the condition of all its operational properties. Crematoria/Cemeteries 3.100 0.775 This information is from the AMP 2003/04. A condition survey is currently being undertaken and details will be available in mid-May. TOTAL 610.306 63.429
5.2.3 The above figure compares with a total asset value of £3,727.034,135. The estimated expenditure needed to bring the assets up to a satisfactory standard is thus equivalent to 16.38% of the total value of the assets.
The information used for estimating the gap is the best available, but is of variable quality. In some cases the information is based upon recent condition surveys and is considered reliable. In others the information is more than five years old or is estimated.
5.2.4 A significant proportion of the non-operational portfolio is let on full-repairing leases, thereby shifting the repairing obligation from landlord to tenant. The Council has generally retained direct repairing obligations in respect of its HRA shops where these are integral to residential
London Borough of Lambeth Asset Management Plan – July 2004 - 22 - Page 79 blocks, and here the property management approach is developed in conjunction with the Housing Department.
5.2.5 For the operational properties, under existing arrangements, the Council operates on devolved responsibility for repairs and maintenance. Revenue budgets for repairs and maintenance is devolved to departments. Each department is required to formulate its own annual repair and maintenance programme within their SAP framework under the guidance of the Design and Technical Services Unit and in liaison with the Corporate Property Service Unit. Each departmental planned maintenance programme is then pooled together to make up the corporate planned maintenance programme (PMP). The service PMP should address the following:-
• Demonstrate the linkage of the PMP to its service delivery outcome. • Link the plan with their total portfolio. • List the maintenance tasks to be undertaken. • List the resources required. • Provide a framework for performance monitoring.
5.3 Data Management
5.3.1 Data Needs and Collection Priorities
A “road map” of data needs to support asset management was determined along with an assessment of data sources, availability and collection priorities. A Unique Property Reference Number (UPRN) is ascribed to each property in Lambeth Local Land and Property Gazetteer (LLPG). A programme to collect other data (intermediate and transient) where this does not currently exist is being undertaken as part of the ongoing comprehensive property review exercise. A summary position statement for the key data needs includes:-
Data Position Statement Address and UPRN Available for all properties and consistent with NLPG requirements Core Data Available for all properties Condition Available for some properties Use Available for all properties Value Available for all properties Suitability Available for some properties Sufficiency Available for most properties Running Costs Available for all properties in block and for some properties individually Floor Plans/Floor Areas Available for some properties
5.3.2 Information System (Current Position)
Work to establish a definitive list of the Council’s assets is ongoing. From the results so far, the Council can reasonably define the extent of its property ownership. However, in relation to small parcels of miscellaneous land, further investigative work needs to be undertaken. The Council’s ownership can be drawn from five primary sources:
• Core data for all properties held on the recently acquired Technology Forge Corporate Property Information Management System (PIMS); • A traditional manual property database maintained by the Corporate Property and Facilities Management Service Units; • An estate management database held on behalf of LBL by its external Valuation and Estate Management contractors on its Estate Computer System (ECS); • Land Terrier, including title deeds of all LBL property ownerships held by the Legal Services Unit; and • Residential property ownership details held on the Housing Department HICS system.
Although the combination of these data sets holds almost all the required data, these disparate systems are difficult to view collectively; a fundamental requirement for continuous improvement. However, the ongoing data population of the recently acquired Corporate Property Information Management System (PIMS) will address the situation. Implementation is due for completion by March 2006. The initial phase entailing data capture has been completed. This data is being expanded upon to cover:-
London Borough of Lambeth Asset Management Plan – July 2004 - 23 - Page 80 • Registering all property assets (interests in land and building) in which the Council has an interest; • Incorporating available detailed information on the physical attributes e.g. condition/DDA/ Asbestos/Floor plans of all premises as these become available; • Occupancy/utilisation rates collected from Service Asset Plans.
The contents of the respective systems are also being cross-checked, record by record, to validate the data with the resulting data progressively being used to populate the new system.
The Council has successfully developed a Local Land and Property Gazetteer (LLPG) which is now fully operational as part of a uniform system. Integration of the Gazetteer within the uniform suite of products means that Development Control, Building Control, Local Land Charges and some Regulatory Services functions already source addresses from the LLPG. The Council Tax and Housing systems have been supplied with a cross-reference file of local system identifiers and LLPG UPRNs, although no measures are yet in place for regular maintenance of these cross-references to facilitate system integration.
There is a firm corporate commitment to the LLPG, with the aim of linking existing address based systems to the LLPG. Major system replacements currently under consideration for Social Services and Housing include integration with the LLPG within their specifications. The proposed Corporate Property Information Management System (PIMS) will interface with the LLPG, and all addresses will be sourced from the LLPG.
Over 100 users in departments throughout the Council currently use Geographic Information System (GIS) in one form or the other. Funding was secured to implement Intranet GIS tools throughout the Council as part of the Lambeth Recovery Plan. The implementation is driven by the Corporate Geographic and Property Information Team, which the Corporate Property Officer attends. Implementation is already at an advanced stage with a number of departments already accessing the system.
The Councils traditional manual property terrier held in Corporate Property Services has been digitised and will be made available via the corporate GIS. By linking ownership data to the Gazetteer, mapping and analysis of property data will be simplified.
London Borough of Lambeth Asset Management Plan – July 2004 - 24 - Page 81
SECTION 6 – PERFORMANCE MANAGEMENT
6.1 Performance Measurement Framework
6.1.1 The development of a better performance management culture, along with a robust corporate performance management reporting framework is one of LBL’s core corporate objectives. A framework for performance measurement of property has been developed which relates property performance indicators (PPIs) to LBL’s corporate and service objectives through property management objectives. An outline of this showing how PIs are related to objectives, links with national Pls (such as ODPM Pls) and collection processes is shown in illustrative form below. The framework is not static, but continue to be refined in use and as national performance initiatives are established. The Corporate Performance Digest includes some of these Property Performance Indicators. The digest is discussed at the Executive each month and is also published on the Internet.
Relationship Between Corporate Objectives and Property Performance Measures
Corporate & Service Property Management Performance Targets Objectives Purpose & Objectives Indicators (pPIs)
Set within LBL Key Purpose Context Measures These will be defined Corporate and To optimise property (& Relating scale of portfolio incrementally as Service Plans associated services to & associated services to performance measurement meet LBL’s objectives) authority size & spend processes & information development
Asset Management ODPM pPIs A “5 year target” has been set and agreed for each pPI Objectives As defined by latest CPA Recovery Plan by ISB as the basis for ODPM guidance on improvement asset
Service Provision Local pPIs Progress against targets Objectives Defined by LBL to are measured through underpin ongoing monthly, quarterly & annual property management Property Performance objectives Reports
Measuring Processes
LBL local Pls and internal data gathering ODPM Property Performance Indicators District Audit Benchmarking of property running costs National Best Value Benchmarking Scheme ACES Benchmarking for Local Authority Property Annual client satisfaction survey Annual s urvey of building
6.1.2 Where possible work is undertaken as part of a London-wide collaborative initiative through the Association of Local Authority Chief Estate Surveyors (ACES). This allows comparisons with others through use of consistent definitions and validation of results. Only where no regional work is in hand have specific LBL Pls been developed and in such cases the approach has been pragmatic, “keeping it simple” in terms of available data. LBL will continue to participate in the ACES Benchmarking Scheme and with the London Borough of Wandsworth on areas of work undertaken by the Council’s external Valuation and Estate Management contractor; and CorpProp/IPF Benchmarking Club.
6.1.3 The overall process adopted is one of continuous improvement based on simple “Customer/ Benchmarking Research Model” which links customer survey feedback and benchmarking data to strategic planning and building/service improvements. As part of the process of developing and improving our asset management processes, performance comparisons have been undertaken and these are set out in Appendix 3. Performance is reported to the FSB and Members and the analysis used to identify key actions for improvement within the AMP and setting a programme of work for the subsequent year.
London Borough of Lambeth Asset Management Plan – July 2004 - 25 - Page 82
Stakeholder Consultation/Benchmarking – Continuous Improvement
Determine stakeholders needs Determine Performance Gaps Set standards & (surveys) Measures - building needs – Property services Stakeholder Needs Current Performance
Benchmarking analysis Action Plan Meet Standards Corporate and Service Objectives (Strategic Goals) Reduce Costs Property Performance Measures Re-engineer Modify Delivery (Replace) Process Delivery Process Enablers: - Reallocate - Refurbish - Improve services
Measure Implement Results/Performance Action
6.1.4 LBL’s performance monitoring function is performed at both asset and property service levels. Results are then benchmarked accordingly and strategic adjustments determined as necessary. At the asset level , LBL’s asset performance is measured against six principal components:-
• Return on investment – Paragraph 1.2 (3) • Costs and utilisation – Paragraph 1.2 (5) • Condition – Paragraph 1.2 (1) & (7) • Suitability – Paragraph 1.2 (1) & (10) • Sufficiency – Paragraph 1.2 (10),and • Improvement from status quo – Paragraph 1.2 (2)
At the property services provision level performance is measured against customer/ stakeholder satisfaction comprising five principal components:-
• Economy – Paragraph 1.2 (2) • Effectiveness and efficiency – Paragraph 1.2 (1- 10) • Quality – Paragraph 1.2 (10), and • Improvement from status quo – 1.2 (2)
6.2 ODPM and Local Property Performance Indicators
6.2.1 The published OPDM pPIs have been integrated into LBL’s overall performance measures. These are tracked and reported on an annual basis through the AMP. A table providing a 2004 baseline and targets for all the ODPM pPIs is provided in Appendix 3. It should be noted that comparative national performance data for 2003.04 will not be published until January 2005. In addition LBL has defined local pPIs, which are related to on-going property management objectives, which in turn underpin the Council’s corporate and service objectives. In each case it is intended that the pPI has a “5 year target” set by FSB against which improvement can be measured. These are reported upon as part of the AMP process to Chief Officers and Members. They may be subject to revision as performance measurement becomes more embedded in our overall processes. The local pPIs relate to both asset management (buildings we manage) and service provision (the professional activities we procure) and are also set out in Appendix 3.
6.2.2 It should be noted that some of the basic information that are required in order to acquire a useful perspective on our operational estate involves floor areas, utilisation/occupancy rates etc., collection of this data will be from the ongoing measured condition surveys and returns London Borough of Lambeth Asset Management Plan – July 2004 - 26 - Page 83 on Service Asset Plans. This is essential for determining how much it costs to run and manage the operational portfolio. Obtaining this information has proved to be problematic because of lack of floor space data and they way accounts are structured in the corporate accounting database. The long-term solution is through the establishment of a property memorandum account as proposed in paragraph 2.13. Discussions regarding how this is established are ongoing with the Finance Department.
6.3 Overview of Property Portfolio Performance in 2003/04
The following are the highpoints during the year.
6.3.1 Non-Operational Portfolio
Despite investment sales of income totaling £1,300,000 the commercial property rent roll only decreased from £6,535,558 at 31 March 2003 to £6,209.865 at end of March 2004.
This represented a reduction of 5% in the rent roll for 2003/04. Had the sales not taken place the rent roll would have shown a probable like for like increase to approximately £7,800,000 for the year 1 April 2003 to 31 March 2004. A possible increase of 120% over the year.
£6,500,003 was collected as rent representing an overall rent collection rate of 105% thus reducing long term and former tenant arrears.
20 lettings were completed 55 rent reviews were agreed 57 lease renewals were completed 29 lease assignments and licences for works were considered.
The rate of return at the end of 2003/04 in respect of the industrial portfolio and shops were 11.34% and 12% in comparison to the 2002/03 national local authority average of 12.34% and 12% respectively. This is generally considered to be a good return. (Comparative data for 2003/04 is not yet available).
6.3.2 Right to Buy
3,448 Right to Buy valuations were carried out 1,759 Right to Buy plans were prepared 368 Right to Buy re-determinations were contested 1,410 Right to Buy properties have been sold producing capital receipts of £111,200,000.
There is no national performance data for comparison.
6.3.3 Rates Appeals and Rebates
These were mostly dealt with in 2002/03 and the savings achieved continue. Further appeals against rating assessments will be made against the new Non-Domestic Rate Assessments, which will be effective from April 2005.
There is no national performance data for comparison.
6.3.4 Disposals
52 properties have been sold including eight industrial estates comprising 90 units. The disposals produced capital receipts of £44,461,901. This figure is reduced to £28.85m – 16.35% of the value of the portfolio when receipts in respect of HRA residential sales and schools are excluded. This is an increase compared to the 4.7% in the previous year.
6.3.5 Instructions
In excess of 150 additional instructions to the ongoing and recurring work were issued by Corporate Property Services.
£1,023,841 was paid to Dunlop Heywood Lorenz in fees with further invoices awaiting submission (as at 31 March 2004).
London Borough of Lambeth Asset Management Plan – July 2004 - 27 - Page 84
6.3.6 Asset Valuations
Valuations of the Council’s property assets were carried out representing £90,000,000 worth of property assets.
6.3.7 Operational Property Portfolio
• Maintenance Backlog
Repair and maintenance costs per sq.m of total floor space was £21.83/m 2 whilst maintenance backlog at a percentage of asset value was 16.38%. This compares with a national average of £16.52/m 2 and 40% respectively.
In relation to the floor space figures in indicator (1a), we will be able to compare our performance with the national average following the completion of the Measured Condition Surveys in March 2005 early enough for the 2005 Asset Performance Report.
• Strategic Management Costs
The annual property strategic management costs for both operational and non- operational for 2003/2004 of £4.10/m 2 and £3.55/m 2. This compares with a national average of £2.67/m 2 and £3.10/m 2 respectively. (Opportunities for reducing the latter are minimal as costs are based on the DHL property management contract).
However, it should be noted that a national local authority common approach to calculating this indicator is yet to be agreed. Furthermore, the size of the team dealing with this work in most authorities is dependant on the emphasis accorded to this area of work. In the case of LBL, due to recent adverse criticism of the authority by District Audit, the Council took a considered decision to increase its capacity in this area of the service.
• Utility Costs
In 2002/2003 the Council spent £0.809m on energy, which represents £7.87/m 2 and compares poorly with the national average of £6.53/m 2. Regarding CO2 emissions, Lambeth’s results showed that it emitted 0.02t/m 2 less than the national average. Officers recognise that subject to further investment, there is potential for further energy savings to be made.
In 2002/2003 the Council spent £0.325m on water, which, equates to £3.17 per square metre and 45% more than the national average. The approach adopted by well performing authorities is being investigated.
It should be noted that there are considerable variations between Lambeth’s figures and those obtained for comparison. Officers are very concerned about these variations and consider that maybe because authorities are measuring energy and water consumption using different methodologies. In order to ensure a more sensible and useful set of comparative figures in future years officers are working within their benchmarking groups to develop a consistent approach to energy and water consumption measurement.
• Capital Project Deliveries
In its 2002/2003 delivery of capital projects, LBL performed better than average in comparison with the national average, particularly in respect of projects being completed on time, with projects being delivered within 77% of estimated cost and 90% of projects being delivered within agreed timescales.
For the year 2003/2004, there has been a minor dip in the delivery of capital projects to cost and time. Figures show that 76.3% of projects were within estimated cost and 80% of projects were on time.
• Review of Facilities Management
Review of Facilities Management has been completed and has examined space utilisation as a local Performance Indicator, particularly in relation to the Council core London Borough of Lambeth Asset Management Plan – July 2004 - 28 - Page 85 offices. Space standards have been set and are used in evaluating the space utilisation of the Core offices. Data has already been collected for all quadrants in the core offices and are used in determining the best utilisation of all relevant office space. The current space standard averages at 11m 2/workstation.
• Condition Surveys
Condition surveys have been undertaken for a large number of properties (Core office accommodation, Environment Department properties and Schools). Arrangements are now in place to undertake surveys for the remaining properties, i.e. Social Services, Education non–schools and the Voluntary sector properties. These outstanding surveys are programmed for completion in March 2005. All elements of each building will be assessed against condition categories A to D and an overall categorisation made using the assessments.
From 2005/06 and subsequent years the information obtained from the condition surveys will inform the Council’s corporate planned maintenance programme, enable the Council to better compare with the national Pls in this area, and works will be prioritised on established priority gradings categorised as follows:
Categories 1 to 3 (Category 1 - urgent works, Category 2 - essential work required within 2 years and Category 3 - desirable works required within 3 to 5 years.)
• Compliance with Asbestos at Work Regulations
In order to meet statutory requirements regarding the compilation of asbestos information for all of its buildings as well as identify any asbestos that could pose a risk to building users, the Council has initiated a programme of asbestos surveys.
Currently, all core offices, several libraries and leisure centres were surveyed. More recently all the Environment Department properties were surveyed. The remaining properties are programmed to be surveyed before the end of this financial year.
All asbestos identified as posing an immediate risk will be removed. Where unavoidable delays occur in removal, management procedures will be established to ensure that risks are negated or minimised. The available asbestos surveys data have been recorded in the new Asbestos Database module in the newly acquired Property Information Management System.
• Disability Discrimination Act
Under the requirements of the Disability Discrimination Act 1995 (DDA) the Council has to ensure that all of its public buildings must be fully accessible, where appropriate, by October 2004. In order to identify the accessibility of its buildings and the costs required to undertake any adaptation works, a programme of audits have been initiated. The Office Accommodation, some libraries and all Environment Services properties have been audited for this purpose. Further audits will cover Social Services, Voluntary sector premises, and the outstanding properties of the Education Dept. non-schools portfolio.
BVPI 156 (access to buildings) covers the percentage of authority buildings open to the public in which all areas are suitable for and accessible to disabled people. The outturn figures for 2002/2003 and 2003/2004 were 13% and 19% respectively. 19% places LBL in the high quartile, an improvement of 6%. The projected figures for 2004/2005 and 2005/2006 are 20% and 23% respectively.
• Sufficiency and Suitability
As part of the preparation of the property Asset Management Plan, Corporate Property Services consulted with Service Departments on the sufficiency and suitability of properties used to provide services. This has assisted in identifying the gaps between future requirements and the current provision and performance of the authority’s property assets.
London Borough of Lambeth Asset Management Plan – July 2004 - 29 - Page 86
6.4 Translating Measurement into Improvement
6.4.1 The iterative approach set out in paragraph 4.2 above facilitates LBL’s commitment to providing a cost efficient, quality, customer service through determining existing levels of customer satisfaction and seeking to improve assets and services provided. Using customer feedback through surveys and benchmarking data, the CPO gets direct input on those areas that require attention and priorities are then set accordingly. Standards of service and performance targets are based upon these analysis, and an action plan (work programme) has been developed to address modifications or re-engineering to meet standards/targets. The results of measurement and analysis are then used in the next iteration of the AMP planning process. The CPO then begins the process over again to re-address the ever- changing requirements of LBL, its stakeholders and customers.
6.4.2 The CPO has initially focussed on customer satisfaction in terms of buildings and services where it is perceived significant performance improvements can be made (quick win areas). The role will include providing assistance in developing Service Asset Plans as forward planning tools; provide challenge to option appraisal; assist in developing project briefs (to minimise costs and time slippage); analysing post-project evaluation reports with a view to identifying opportunities for improvement and measure client satisfaction with property services.
London Borough of Lambeth Asset Management Plan – July 2004 - 30 - Page 87
SECTION 7 – FINANCIAL SUMMARY
7.0 Financial Summary
7.1 Condition of Assets
7.1.1 The condition of the Council’s assets has a significant effect upon the lives and perceptions of the domestic and working population. In bringing its assets of all categories up to a satisfactory condition the Council can anticipate positive effects upon crime levels, homelessness, inward investment, educational achievement and health. In paragraph 3.2 it was stated that information on the current condition of assets is patchy. For some asset classes information is very good. For others, condition surveys do not exist, or the information is out of date. Therefore, it has only been possible to estimate the investment gap for existing assets at £610.306m. This represented the amount required to bring the condition of the Council’s assets up to a satisfactory standard as estimated by departments. The definition of ‘satisfactory’ is that generally used in the Council’s condition surveys – “performing as intended but showing minor deterioration”. The summary analysis of the gap is set out in paragraph 5.2.1. Further condition surveys are under way but at this point the results are not known.
7.1.2 It is clear that investment in maintaining assets has been inadequate in the past, and that this has led to their deterioration. Likely contributing factors are the restricted revenue resources available in the past, use of capital resources to cover revenue overspending rather than fund capital works. In order to improve the position, the Council must invest in maintaining its capital assets every year as well as addressing the backlog. This will take the form of planned maintenance and asset replacement programme. If it does not do so, the funding gap will grow.
7.1.3 The total value of the maintenance backlog compares with a total asset value of £3,727m. The estimated expenditure needed to bring the assets up to a satisfactory standard is thus equivalent to 16.38% of the total value of the assets. The table below shows how this compares with other local authorities is shown in paragraph 6.3.7 above.
7.1.4 The cost of bringing the housing stock up to the government’s Decent Homes standard was estimated to be £525.264m at 31 March 2003.
7.1.5 Another area in which the condition gap is of significance is schools (£49.211m).
7.1.6 It is estimated that an annual sum of £36.2m (operational properties 7.701m) will be required to sustain the properties in a satisfactory condition.
7.2 Current Spending Patterns
7.2.1 The total value of capital expenditure over the six previous years was £451.72m; of which Housing was £281.12m (62%), Schools was £63.58m (14%), and Roads £34.19m (8%).
• Housing
The annual value of capital spent on Housing increased from £38.66m to £57.92m over the period. There was a 29% increase in capital expenditure on Housing in 2000/01 and a 16% increase in 2003/04. Most of the growth was in Housing Repairs and Improvements. The rate of growth is higher than the rate of inflation, so in real terms the Council has been significantly increasing its investment in the existing housing stock.
• Schools
The annual capital expenditure on schools has also grown significantly over the period, from £6.59m in 1998/99 to £14.26m in 2003/04. There has been a very substantial increase well in excess of the rate of inflation in each year. In 2001/02 there was a 69% increase.
London Borough of Lambeth Asset Management Plan – July 2004 - 31 - Page 88 • Roads
Annual expenditure on roads grew from £0.91m in 1998/99 to £9.44m in 2003/04. Again, this is a very substantial increase well in excess of the rate of inflation.
• Other Assets
Asset categories in which the level of capital investment has been low are Libraries (£2m in total over the 6 year period), and Parks, Sport and Recreation (a total of £3.3m over the period).
7.2.2 Underspending against capital budgets remains a problem. In 2003/04 the capital budget was underspent by £26.1m gross [£22.841m net of overspends in Housing (£3.169m) and Social Services (£0.110m)]. It is planned that a new approach to monitoring the delivery of capital projects will be commenced this year, using the Programme Office.
7.3 Resources and Funding Opportunities
7.3.1 A summary of estimated capital expenditure for the next three years and information on the source of capital funds is shown below (excluding Lambeth Opportunities schemes).
Actual Estimate Estimate Estimate Estimate 2003-04 2004-05 2005-06 2006-07 2007/08 £'000 £'000 £'000 £'000 £’000 Education 14,263 27,363 14,776 13,726 13,000 Social Services 2,147 3,988 160 0 0 Housing 57,917 53,370 45,290 39,753 36,750 Environment 9,636 13,720 6,850 6,850 4,000 Central Services 12,393 18,453 16,495 16,495 11,000 RTB Admin costs 1,226 Revenue Capitalisation 24,700 2,000 TOTAL 122,282 118,894 83,571 76,826 64,750 FUNDING BCA 13,384 0 0 0 0 SCE (R) 24,060 20,455 20,455 19,000 SCA 3,705 0 0 0 0 Grants 60,992 44,712 42,393 39,684 36,750 Capital Receipts 44,201 50,122 31,049 17,512 9,000 TOTAL 122,282 118,894 90,905 77,651 64,750
7.3.2 There is a significant reduction in capital resources from capital receipts expected over the next three years, from £50m in 2004/05 to £9m in 2007/08.
7.3.3 From 1 April 2004 the old complex control regime for capital finance was replaced with a new prudential system. Although the government retains reserve powers, the new system largely depends on self-regulation by local authorities. The new regime allows authorities to borrow to finance capital expenditure providing that they can clearly demonstrate that it is prudent to do so and that it can be afforded both in the short and longer term.
7.3.4 The Council’s capital resources are limited, with few options available to increase them. As more and more assets are disposed of and the remaining number of potential RTB dwellings dwindles, receipts available from this source will decrease. The following table sets out the estimated position for the next three years:
ESTIMATED SINGLE CAPITAL POT RESOURCES 2005/06 TO 2007/08 Resources 2004/05 2005/06 2006/07 2007/08 £’000 £’000 £’000 £’000 Single Capital Expenditure (SCE) Allocation Housing 8,515 9,241 9,241 8,000 Education 15,314 11,214 11,214 10,000 London Borough of Lambeth Asset Management Plan – July 2004 - 32 - Page 89 ESTIMATED SINGLE CAPITAL POT RESOURCES 2005/06 TO 2007/08 Resources 2004/05 2005/06 2006/07 2007/08 £’000 £’000 £’000 £’000 Social services 231 0 0 0 Sub-total SCE 24,060 20,455 20,455 18,000
Receipts Right To Buy 23,000 21,000 12,000 12,000 General Fund 12,000 N/A N/A N/A Affordable Housing 15,856 10,049 5,512 0 Sub-total receipts 50,856 31,049 17,512 12,000
Total SCE + receipts 74,916 51,504 37,967 30,000 Less: Commitments -35,967 -15,131 -12,459 Education SCE -10,060 -11,214 -11,214 Earmarked for Affordable -10,856 -10,049 -5,512 Housing Revenue capitalisation -2,000 0 0 Total available for 16,033 15,110 8,782 30,000 allocation
Under the ‘Single Pot’ arrangement local authorities have the discretion to target central government allocation to local needs. However, there is a risk that future resources could be reduced if targeted allocation by central government is diverted to other schemes.
The available resources do not cover the cost of restoring the Council’s existing assets to a satisfactory level and maintaining them thereafter.
7.3.5 More emphasis must now be given to other sources of finance. For example PFI, Lottery Funding, European grants, developers’ contributions (s106), partnership with local businesses, and bidding for competitive grants from central government departments. There is also the option to increase our borrowings above that allocated by OPDM. However, this is subject to three criteria. Any additional borrowing must be affordable, sustainable, and prudent.
7.4 Re-deployment and Disposal of Assets
7.4.1 In view of the importance of the Council’s portfolio as a resource, choices made regarding their utilization have a considerable affect on the community. The duty and objectives of the Council has traditionally been to deliver services to the community and in the context of this object, the following three policies are pursued:-
• The Council will not hold property for its own sake and will measure its use of property in money, just like its other resources; • The Council will occupy the minimum necessary amount of property measured in financial terms, which it actually needs to perform its duties and attain its objectives; and • It will expend the minimum necessary resources on the day-to-day management and use of its properties.
The resulting management will bring about the “economic, efficient and effective” use of its property portfolio.
Economic because the property portfolio will be maintained on a businesslike footing, producing sufficient benefit (enablement of performance of duties and attainment of objectives) at a minimum possible cost. Efficient because it will produce the desired effect (provision of property to enable the Council to perform its duties and attain its objectives) with the minimum possible input of resources Effective because it will have the desired effect (of providing property to enable the Council to perform its duties and attain its objectives).
7.4.2 The Council therefore has established a disposal programme for land and buildings, which have been declared or likely to be declared surplus to requirements. The Corporate Property Officer manages the programme and regular monitoring reports are made to the FSB, London Borough of Lambeth Asset Management Plan – July 2004 - 33 - Page 90 Executive Directors, Lead Members including the Executive Member for Finance and Property. Each year the Executive approves the capital programme and an assumed level of receipts from disposals is set as a target to resource this programme. The target for 2004/05 is £50m. Land and buildings, which are surplus to requirements, presently enter the disposals programme through two principal routes. The first is through individual departments undertaking service reviews as part of their SAP process and, declaring property assets held by them surplus to their requirements. This is followed by an FSB review to establish the following:-
• Capital and Revenue Programme Requirements: established in consultation with the Director of Finance (£45m in 2003/04); • Alternative Use: where a surplus property may be suitable for alternative use by the council for example, (appropriation of three hostels from Social Services to the Housing Dept); • Retention for Strategic Purposes: based on forward planning of regeneration and other schemes where retention will help secure wider strategic objectives e.g. in projects requiring Community use or site assembly. This may be combined with temporary income generating uses by third parties; • Disposal: where properties have been identified as surplus, and where there are no compelling financial, strategic, or service led reasons for retention they are fed into the Council’s disposal programme to produce capital receipts.
7.4.3 The other route into the disposals programme is through the Corporate Property Services management of the non-operational property portfolio, for example commercial properties that prove hard to let by the Valuation and Estate Management Contractor are generally considered for disposal. Another route is through the cyclical rationalisation of the Office Accommodation portfolio. The Council recognises that the disposal of those properties no longer required also impacts on the Community in that the presence of a building in an area may provide a sense of Community quite apart from the service either presently or previously provided from the property. Failure to address such concerns may result in community objections and delays in the disposal process. To minimise this understandable concern, the Council will take steps through consultation, education and provision of information to the community where appropriate with a view to breaking the perceived nexus between the services it provides and the properties used to deliver them. In view if the aforementioned, a process of engagement with Ward Members and consultation with the community on disposals based on the principles of:
• Working in partnership through developing a common community area approach; • Engaging with the community and seeking integrated solutions that will make a difference to the community are pursued.
7.5 Disposal Options For 2005/06 and Subsequent Years
Potential properties for consideration as part of the Star Chamber process in the autumn are as follows.
7.5.1 Non-operational Portfolio
7.5.1.1 The continued retention of the portfolio needs to be considered in the context of other demands for revenue and capital resources and the priorities that the Council has set out in its Community Strategy.
The Council’s HRA shops portfolio comprises 113 assets (387 units), which produce a gross annual rental income of £2,980,000 per annum.
For ease of reference the table below provides a summary of the number of properties considered and the current rental income on a category by category bases:-
London Borough of Lambeth Asset Management Plan – July 2004 - 34 - Page 91
Portfolio Category Number of assets/ Current rent per properties annum Units on Retail Parades 43 Parades (322 units) £2,500,000 Units Not within Retail Parades 49 £370,000 Retail Units occupied by Community 16 £110,000 Organisations Total 387 £2,980,000
Note: 73 shops with an annual rent roll of £780k are in the process of being disposed as part of the 2004/05 Disposals Programme.
7.5.1.2 Asset Performance Evaluation
Each asset has been appraised against a range of key performance criteria. These have been grouped within two main areas. Firstly, commercial assessment criteria which focus on the commercial investment performance of the asset and secondly, non commercial criteria which relate to the asset’s broader strategic role. It is important for these non commercial criteria to be considered separately from the commercial criteria in order to examine whether there may be other strategic reasons why a property should continue to be held by the Council despite poor commercial performance, which would otherwise suggest disposal of the asset. The key criteria used within the evaluation model and the basis of assessment is set out below:-
Based upon the above, the total score achievable for an asset (or group of assets as appropriate) in respect of the commercial assessment criteria was set at 60 points and in respect of the strategic assessment criteria set at 20 points. A summary of the scoring system is outlined in the table below.
Commercial assessment Description Non commercial Description criteria score assessment criteria score 0 – 25 Low 0 – 5 Low 26 – 40 Medium 6 – 10 Medium 41 – 60 High 11 – 20 High
The evaluation model summarised below allowed each property to be compared against each other and external benchmarks. Whilst it is subjective, it enables under-performing assets to be identified and highlighted specific areas of under-performance. It is important to look beyond the total scores for each asset and consider the particular areas where a property may be under performing. The model does not provide final answers but is a useful tool in action planning and decision making.
The table outlined considered the individual assets (or groups of properties as appropriate), the evaluation model scored and awarded each asset or asset group an overall performance rating. The review identified only a relatively small number of assets as having strategic or operational significance ie there are non-commercial reasons why the Council may wish to hold these assets. On the basis of the overall performance rating several options together with associated financial implications are recommended for consideration. The performance evaluation assists in leading towards a recommendation for future action in respect of the asset. In broad terms, this is summarised below.
Good Satisfactory Poor Rent Estimated Rent p.a. Estimated Rent Estimated p.a. capital capital p.a. capital value value value Retail Parade 622,698 7,687,003 1,778,347 23,818,571 79,064 804,733 Base Individual Retail 191,506 1,882,168 179,508 2,283,210 14,250 264,832 Units Schedule 814,204 9,569,171 1,957,855 26,201,781 93,314 1.069,565
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7.5.1.3 Options and Associated Implications
In overall terms, the Council’s retail portfolio, if offered for sale, would be very attractive to the property investment market. There are a small number of properties that, due to their constraints, would not be attractive to the market. These are principally individual retail units that are an integral part of a larger residential block.
The disposal mechanism for the retail properties with separate residential accommodation above requires careful consideration due to the fact that these are not stand alone assets. The Council presently holds the freehold interest in these assets and given the mix of uses, i.e. retail and predominantly social/affordable residential accommodation, it will not generally be advisable for the Council to consider the disposal of the freehold interest. In most cases it is envisaged that the Council would wish to retain the freehold interest in the property in order to ensure that overall management control is retained.
As the Council is yet to agree its 2005/06 Disposals Programme, the report proposes a number of disposal scenarios.
In considering the timing of any shops disposal, an important factor will be the changing financial regulations in respect of HRA set aside. The relaxation of these set aside rules now makes the disposal of some of these properties much more attractive.
Option 1 - Whole Portfolio Disposal
Option 2 – Disposal of The Satisfactory and Poor Performing Properties
It is recommended that the Council disposes of the properties rated ‘Satisfactory to Poor’ could be disposed as a singe lot or in tranches of a minimum package size of £5m capital value in order to generate good competitive market interest. However, in considering the later, it should be noted that the longer the disposal programme timeframe, the less predictable the level of realisable capital receipts. There is a risk that this approach would realise a lower level of capital receipt than the single portfolio disposal as retail market conditions are not expected to improve in the medium term.
7.5.2 Operational Property Portfolio
As part of the “Star Chamber” process in 2003/04, a rigorous examination of the operational estate was undertaken with a view to ensuring that the Council did not continue to retain properties that it no longer required for the provision of services. Most of the properties were included in the CPO’s report on asset disposals to the Executive in February 2004. A Disposals Programme for 2004/5 with an estimated open market value of £27m was agreed. The programme is progressing well and as at the end of July 2004, 19 property interests with a value of £10.7m (net) have been sold.
All other identified properties not included in the 2004/05 Disposal Programme will form the basis of the 2005/06 and subsequent years programme. The review process has so far identified property interests with an estimated open market value of £25m.
Corporate Property Services through the Corporate Disposal Management Team (a sub- group of the Capital and Asset Management Group) will continue to appraise the portfolio with a view to formulating a 2005/06 Disposal Programme for consideration in the 2005/06 “Star Chamber” process.
7.6 Prioritisation of Investment
7.6.1 All capital resources are corporate. The FSB oversees the allocation of all capital resources within the capital strategy framework. The Board co-ordinates bid for external funding to maximize contributions for capital projects. To assist this role a central register of external capital grants is maintained in the Finance Department.
7.6.2 The Council aims to maximize its capital receipts by managing its property portfolio efficiently. Departments are encouraged to produce imaginative schemes that will release assets for disposal by giving them the benefit of any revenue saving that will accrue. LBL’s capital London Borough of Lambeth Asset Management Plan – July 2004 - 36 - Page 93 programme bidding process enables the Council to consider asset acquisition and enhancement options effectively and to establish priorities. This enables capital investment to be applied to new projects and investments to satisfy corporate objectives, and to obtain best value for money. Starting from 2002/03 all bids are generated by the individual departments via their Service Asset Plans and departmental strategies. An investment proposal for each individual proposal is prepared for consideration of the FSB. Each proposal addresses the appraisal criteria, indicate the preferred funding source and sets out the full costs, benefits and risks. The Investment Strategy Board undertakes the co-ordination and appraisal of all capital bids for corporate resources. Appraisal is via a standard process illustrated by the pro- forma set out in Appendix 4, which uses twelve different criteria resulting in a score for each scheme. The process appraises the scheme for its match with corporate goals, departmental plans, government initiatives and legislative requirements. It also weights the scheme for financial factors such as net revenue implications, financing requirements, external financing available and the VAT partial exemption calculation. The most weighting is given to the corporate goals, followed by various financial and resource requirements. The bids are generated by departments from their Service Asset Plans (informed by the condition surveys) and consultation processes (including Best Value Reviews). As additional resources arise schemes are fast tracked from the pre-appraised schemes which to date are unfunded.
LBL has developed an investment prioritisation model, defined in the Capital Strategy, to inform its prioritisation of projects. The model is applied to “discretionary” elements of capital funding and used to support decision making on the capital programme, the final approval of which rests with Members.
The decision process outlined in Appendix 4 is designed to ensure that the impact of scarce resources is maximized and that a strategic overview of all schemes is maintained. This overview is supplemented by detailed officer scrutiny to ensure schemes are well planned and achievable. Progress on the capital programme is monitored through quarterly reports to FSB and to Executive. This allows early identification of actual or potential slippage, allowing re-prioritisation of “reserve” schemes for inclusion in the programme.
The key priorities for the 2003/04 financial year were as follows:-
Key Priorities Outputs Outcomes Environment (8.971m) Better and cleaner streets and a • Repairing and • Borough wide repairs and greener environment. reconstructing the worst maintenance to Lambeth • Improvements to the borough roads roads including emergency borough’s 100 worst roads. response works. • Resurface Dulwich and • Increase in minor repairs Leigham Court Roads. to carriageways. • Repair footways and • Increase in minor repairs carriageway of several to footways. roads including Rosendale Avenue, Tritton, Abbotswood and Truslove Roads. • Repairs to borough-wide • Essential repairs and A better deal for the community. parks and play area safety replacement of various improvements fixed play items, in accordance with recommendations contained in the 2000 ROSPA report:- • Larkhall Park • Mostyn Gardens • Pedlars Park • Ruskin Park • Streatham Vale • Hillside Gardens • Myatts Field Park Education (£20.084m) • Matching the supply and • Balance the schools Providing lifelong education in demand for school places. capacity to the increase in Lambeth through addressing the populations shortage of places in schools
London Borough of Lambeth Asset Management Plan – July 2004 - 37 - Page 94 Key Priorities Outputs Outcomes • Ensuring suitability of all • Increase capacity in and provision of new secondary school facilities. primary schools in line with schools in the centre and south predicted need taking 1 ½ of the borough, which are open form entry primary schools to all local children. to 2 form entry. • Replacing with permanent • Building a new secondary structures all temporary school in the south of the classrooms. borough and a new City Academy in Brixton. • Modernisation of all • Complete Primary Schools education buildings to Development Strategy by: make them fit for purpose. - Completed Durand • Provision of new secondary School expansion school. project. - Procure new Crown Lane Primary School. - Complete Kings Avenue and Park Hill Schools. - Complete South Bank Youth Resource Centre. Social Services (£1.244m) • Investing to allow a greater • Improve facilities in Reframing our policy for number of people to live services to Children and vulnerable children. more independent lives Families including the • Reducing our dependency while avoiding the need to renovation of a number of on the use of Council live in a residential properties for the Mental properties to deliver accommodation (Public Health Service. services. Service Agreement). • Recognition of our responsibilities as a corporate parent. • Investment to improve the quality of services to Children and Families (Public Service Agreement) • Investment to improve • Essential works and • A caring community. peoples’ access to services improvements to Mary • Promoting equality and – recognising the Seacole and Hopton diversity. requirements to improve House with a view to access to buildings for making them DDA those with disabilities. compliant. • Investing in IT • Produce and implement • Sustaining improvement in new client information services. system (replacement for • Improve value for money SSID) by 31/12/2004. through delivering the business improvement programme. • Improve arrangements for procurement and commissioning of services. • Making the delivery of services less dependent on the use of property.
Housing (£48.357m) A better deal for tenants and • To maintain and improve • Disposal of uneconomic leaseholders. the Council’s housing stock void property to establish a • All Council homes to meet ensuring that all homes pool of receipts of £20m for the Decent Homes meet the Decent Homes refurbishment and Standard by 2010. Standards by 2010. affordable housing. • A better deal for tenants and leaseholders. • 300 homes becoming decent in 2003/04, 400 in 2004/05 and 1,100 in 2005/06. • To maximize the supply of • See through the affordable housing. completion of regeneration scheme that delivers additional affordable housing:- -St Matthews London Borough of Lambeth Asset Management Plan – July 2004 - 38 - Page 95 Key Priorities Outputs Outcomes - West Stockwell - Angell Town - Clapham Park • Development and implementation of a Key Worker Strategy. • Year on year change in the • 40:60 (2003/04); 50:50 ratio of planned: (2004/05); 60:40 (2005/06). responsive repairs and expenditure. Chief Executive (£13.635m) Building on a safer Lambeth. • Supporting regeneration • Complete compulsory partnership. purchase of one remaining property in Brixton Central Site Redevelopment Phase I. • Promoting Community • Complete final phase of the • Safety community. Safety. Home Office Crime • Safer streets. Reduction Grant to install • Safer homes. 48 cameras (19 in Brixton Town Centre and 28 domed cameras on 4 estates) linked back to the Council’s CCTV Control Room (including installation of 10 new monitors). • Investment in new systems • Deliver a Corporate Improving business processes. and technology to facilitate telephone contact centre. • Year on year increase in improved services to • Deliver the ICT Strategy the interaction with public customers. New ways of and the implementation capable of electronic working and improved plan for improving service delivery and which administrative efficiencies. customer services. are being delivered using Internet protocols or other paperless methods. • Implement corporate GIS • Year on year increase in system. the satisfaction levels of • Implement corporate HR managers regarding system. access to core information • Implement Housing system management system. replacement. • Implement Social Services system replacement • Implement Corporate Property system. Implement Joint Service • Centres • Develop flexible work • Year on year increase 3% strategy: - (2003/04), 10% (2004/05), - Mobile 20% (2005/06) in the - Home number of staff taking - Desk Sharing advantage of flexible working arrangements. • Rationalisation of office • Implement the Office • Reduction of the reliance accommodation. Accommodation Strategy. of service delivery on the use of property assets through the efficient, effective and economic use of office accommodation. • Compliance with Health • Deliver a scheduled • Reduction in office space and Safety including programme of build by:- making buildings maintenance. - 6% (2003/04) “watertight”. - 10% (2004/05) - 20% (2005/06) • Delivery the Property Asset • Year on year increase in Management Plan. the level of satisfaction of staff/customers.
London Borough of Lambeth Asset Management Plan – July 2004 - 39 - Page 96
SECTION 8 – PROGRAMME DEVELOPMENT AND IMPLEMENTATION
8.1 Programmes of Work
LBL has a number of property related work programmes through which its identified property needs are delivered. In summary these are:-
• Capital Programme – is directed to ensure that limited resources are invested in the most effective way to improve service delivery. Service Directorates are responsible for identifying capital projects needed to meet their needs, for feasibility assessment and development of a funding “bid”. Thereafter prioritization of competing bids and development of the capital programme is undertaken as part of the Council’s overall budget process and through FSB prior to Member approval.
• Condition Survey – progress measured condition survey of outstanding properties.
• Maintenance Programme – establishment of a corporate planned maintenance programme designed to ensure existing property is maintained to a good standard consistent with the service occupiers’ intentions is under consideration. Work will be prioritized annually (within budget constraints) using available condition survey data.
• Disposals Programme – aims to dispose of surplus property in the most beneficial way so as to release capital for re-investment in service delivery. (See paragraph 7.4)
• New Developments – the development of a new secondary school in the south of the borough, the re-provisioning of a new swimming pool/leisure centre within the proposed mixed use scheme in Streatham, the development of a number of Joint Service Centres and Healthy Living Centres in various locations in the borough, the development of a new City Academy in Brixton and the Myatts Field Housing PFI proposals etc.
• Revenue Projects – these include renewing leases of a number of LBL’s office accommodation, leasing new equipment, schemes for environmental and energy management improvements, health and safety works, including asbestos removal, works in connection with the Disability Discrimination Act.
• Best Value Reviews – an example of how Best Value reviews have influenced the asset management planning process is the Best Value review of Services for Older People, Children and People with Mental Disabilities, which included consideration of the latest Care Standards and Disability Discrimination legislation. The outcome of the reviews was significant from the property standpoint, as the Council’s facilities required significant improvements to ensure they comply with legislation by 2007. The outcomes included a range from retention and refurbishment to PFI redevelopment or disposal.
• Business Improvement Strategy – in addition to the work programmes identified above, the Council has management strategies directed at discrete parts of the portfolio or in response to specific issues. These include for example, the Council’s Business Improvement Strategy (a combination of its e-Government Vision and Office Accommodation Strategy). This is linked to the Government Modernising Agenda and is, in effect, a drive to improve office working environment and the quality of services. Reduce inequalities, deliver a substantial part of Council services electronically and reduce costs. Office based staff will move to more flexible ways of working, such as home working and “hot desking”, allowing the progressive reduction in office accommodation occupied by Council staff. A range of property implications has arisen as a result and has been incorporated in LBL’s Asset Programmes.
• Property Information System – earlier, under “Data Management”, an explanation of the role that property information plays or should play in effective asset management planning was explained. Progress on the acquisition of a modern PIMS is at an advanced stage.
• Education and Housing Services – the Education Department’s objectives and associated key investment issues are covered in detail in the Education Asset London Borough of Lambeth Asset Management Plan – July 2004 - 40 - Page 97 Management Plan as submitted to the DfES. The Housing Service’s objectives and key investment issues are contained within the Housing Strategy and Business Plan. Developed for 3-5 years and reviewed on an ongoing basis, with an update submitted to the ODPM annually.
• Voluntary Sector – Implementation of the Voluntary Sector Premises Strategy.
• Customer Satisfaction – conduct annual client satisfaction survey (of property services).
• Strategy for the Commercial Estate – the relevance of holding the commercial portfolio is under review. The bulk of the portfolio does not particularly support our strategic objectives, and nor is there a statutory imperative for retention. An assessment of the capital and revenue implications is currently under consideration.
• Decent Homes – in response to the government’s target of meeting the Decent Homes standard by 2010, the Council has identified several initiatives that will increase the resources available and / or reduce the capital required. These include partial stock transfers, disposal of sites previously not considered, such as garages and brownfield sites, and a shift towards planned maintenance and away from responsive maintenance. In this way the funding gap has been reduced to approximately £46m.
• Affordable Housing – Housing has formed a Housing development Group to review and develop opportunities for the development of affordable housing in the Borough. This group has representatives from across the Council and meets with the Registered Social Landlord every six weeks to discuss a development programme including provision under Section 106 agreements.
• Tenant Choice – the Housing Investment Commission was a panel of Lambeth tenants and leaseholders. It studied future options for the housing stock and recommended a ‘positive retention’ policy. This involves keeping the majority of the stock with the council, but through a culture change in the way services are delivered. The investment strategy to raise the money needed to keep the stock is now being refined. A few estates in the worst condition will probably be transferred to housing associations to reduce the investment needed. On July 2003 the Office of the Deputy Prime Minister (ODPM) approved two partial stock transfers – Stockwell Park Community Trust (1,164 homes), and Kennington Park Estate (683 homes). It had also held open a place for Clapham Park New Deal for Communities (1,969 homes) while further work is done on its Business Plan. These transfers will bring in additional resources to these estates not only to achieve decent homes standard but also to secure significant improvements to the built environment. The Council is working with local resident groups to achieve the first of these transfers before end of 2004.
• New Regional Development Boards – these Boards will be responsible for distributing the pooled capital receipts from RTB sales for housing redevelopment based on government assessment of need.
• Building Schools for the Future – Lambeth has not yet learned whether it has a place in the second wave of BSF funding. With this lack of certainty, it is difficult to programme works to our secondary schools (or special schools with secondary age pupils). In addition to the major maintenance works (funded through the NDS Modernisation Grant), those schools that achieve specialist status will receive funding for the building works to provide necessary accommodation. Value for money would not be provided by undertaking works to buildings scheduled for demolition under the BSF proposals. When the Government’s decision on our position in the funding stream has been taken, there will be a need to commission options appraisals/feasibility studies for the secondary estate in advance of the receipt of the funds, in order to meet a tight programme.
• Health and Safety Compliance – Increasing rigour by the Health and Safety Executive, and the introduction of the CAWR (Control of Asbestos in the Workplace Regulations), will necessitate spending on compliance. Under the Disability Discrimination Act there is a requirement to begin to make “reasonable adjustments” to those parts of premises accessible to the public from October this year. Part 4 of the Act (the Special Educational Needs and Disability Act) extends this duty to all Education premises. It is unlikely that the existing funding will be sufficient to cover required works. London Borough of Lambeth Asset Management Plan – July 2004 - 41 - Page 98
• Un-funded Government Education Policies – there are a number of Government initiatives that have no allocated funding, although Lambeth Education subscribes to all of them – they have been variously incorporated in the BSF proposals for secondary schools. All of these reflect a desire to obtain better value for money by increasing the use of schools and their sites. They include:
Extended schools: schools which incorporate other community uses, such as libraries, doctors’ surgeries, One Stop Shops, neighbourhood offices, etc.
Full service school: this offers a comprehensive community service on one site, preferably incorporating all the uses listed above.
Increased Community use of school facilities: an initiative to make suitable facilities available for Community use out of school hours. Facilities could include school halls and other internal, and external, sports facilities. There is a current funding stream – Spaces for Sports and Arts – which is funding seven projects, but there are at present no proposals to extend this to new projects.
Through schools: the sharing of a site and building between primary and secondary schools.
Inclusive education: adaptations or extensions to existing schools so that Special Educational Needs pupils can share mainstream facilities as appropriate (a measure of inclusion to be made available to SEN pupils whose needs are such as to preclude their attending mainstream schools inclusively).
• Government proposals for Education – what has been described as “…a radical reform of funding…” (TES) is expected from the Government this month. While this, it seems, is largely concerned with direct revenue funding to schools, it includes Devolved Formula Capital – should this increase markedly the Lambeth Education de minimus limit for building works might be revised. The statement is awaited with interest, as it may include other items impacting on the education capital programme.
• E-government - the review of Customer Contact has identified a number of areas that need to be addressed. These are associated with the implementation of our e- government strategy and involve the development of a Customer Contact Centre and a number of areas based ‘One Stop Shops’. The accommodation strategy is being implemented ensuring that it meets the changing requirements of services, and embraces new ways of working, and the use of technology to improve services and achieve efficiencies. The potential for the sharing of accommodation and services with partner organisations including the Health sector and Police is being exploited.
• Regeneration – Environment is involved with the Vauxhall Regeneration Company, Cross River Partnership and Community Renewal to identify future opportunities under the Vauxhall Cross transport scheme. Education is working with a range of Services under New Deal for Communities in giving consideration to the increase in number of primary schools. The community is involved in the development of community ‘hubs’ providing public services through ‘third sector’ agencies. For example, Streatham hub. This is a joint development resulting in the re-provision of the existing leisure facilities onto a new site, development of a supermarket, and affordable housing. The leisure aspect of this will be achieved through a Public Private Partnership (PPP) with Tesco. The estimated investment is £13 million. The New Deal for Community (NDC), the Clapham Park Project places the regeneration and renewal agenda at the heart of the community, working towards a new master-plan for the area encompassing housing and environment investment, improved education, employment opportunities, and community safety.
• Crime Prevention – Community Renewal is undertaking a number of initiatives to tackle crime including – CCTV implementation in Clapham, North Lambeth and Norwood – The Reducing Burglary Initiative aimed at vulnerable Council properties in Angel ward. In addition, ERDF projects have specific requirement to identify how the projects address the cross cutting themes of Equalities, Sustainable Development and ICT. A similar project is in progress in Stockwell.
London Borough of Lambeth Asset Management Plan – July 2004 - 42 - Page 99 • Every Child Matters – the integration of Children’s services will require the development of an integrated client database.
• TfL - Greater London Authority/Transport For London – a strategic authority to consider not only strategy development but also a funding opportunity to deliver strategic improvement. Lambeth has over 30 KM of Transport for London road network within its boundary. LBL is currently the implementation and delivery mechanism for TfL Street Management; a major partner in delivering our desired improvements for the street environment, improving safety, increasing the potential for public transport use and revitalising our own centres.
• Sustainable Development – the Sustainable Development Review has had significant implications for the strategy in Housing which now has a major commitment to ensure that the programme of major repair reflects best practice and has adopted a sustainable construction policy that promotes environmentally friendly specification and energy efficient outcomes.
• Capital Implications of Service Plans – each department produces a three-year service plan on an annual rolling basis. Although the plans have had a three year time horizon, they have mostly focused on revenue planning. In the budget setting and business planning process for 2005/06 departments will be asked to integrate their revenue and capital planning.
In making their plans departments will have regard to government policies as well as local needs and the availability of resources. The capital implications of service plans will be identified in departments’ Star Chamber submissions and considered in the context of other demands for revenue and capital resources and the priorities that the Council has set out in the Community Strategy.
The Council will develop a new approach to capital planning that sets the Council’s capital spending requirement in the context of long term funding prospects. It will not now be possible to develop this approach in time for the 2005/06 budget.
• Leisure Services Review – implementation of the outcome of the review.
• Library Services Review – implementation of the outcome of the review.
• Community and Voluntary Sector Hubs – development of community and voluntary sector hubs in each of the five Town Centre.
• Property Review and Rationalisation – LBL’s rigorous approach to identifying and disposing of surplus property is based on the notion that it will not hold property for the sake of ownership. This policy partially informed a series of thematic systematic reviews on an area and service basis over a long period of time. As a first stage in the preparation of SAPs for 2004, the Corporate Property Services in conjunction with Service Departments embarked on an area based comprehensive property review. The outcome of the exercise will inform the 2005/06 Disposals Programme.
Whilst review processes associated with the need for holding/retaining property are becoming embedded within the authority, processes to measure running cost efficiency are less well developed. These have been constrained because of the lack of readily available cost information at an individual property level. It is anticipated that further emphasis will be given to this area through development of the Corporate AMP and associated processes.
• Joint Use of Property and Inter-Agency Use – Subsequent to the 2003 AMP submission, significant progress has been made in the identification of opportunities for shared accommodation use, with a view to providing a complimentary approach to service delivery. For example, as a result of joint working with the local NHS Trust (Social Services and Mental Health Teams now share a number of buildings, location of an Employment Agency Office in a Library in the north of the borough, the development of an LBL owned site to provide an integrated Primary Care Centre, containing “joined up” services including a health centre, nursery, Council One-Stop-Shop, community hall and affordable housing. A replacement Primary Care Trust in Streatham is going to be London Borough of Lambeth Asset Management Plan – July 2004 - 43 - Page 100 provided by a LIFT, in partnership with the Council and the Primary Care Trust. The Council’s application to the ODPM for PFI credits for £13.3m Multi-Agency Joint Service Centres was also successful, the sharing of a parking fine payment office with the Metropolitan Police in the south of the borough.
The potential for joint working on health issues, through lead commissioning, service integration and pooled budgets, continues to expand in this area generally in response to the Health Act 1999. In a move towards a more joined-up approach, the Corporate Property Officer is engaged in exploring strategies for shared resource with partner agencies.
• Rationalisation of the Office Accommodation – the implementation of the office accommodation strategy has continued on schedule. The strategy principally involves eliminating the compliance liabilities on the core office portfolio and undertaking cost effective reconfiguration of office space to enable buildings to be rationalized and capital receipts released.
The strategy is currently being reviewed and consideration being given to where office accommodation fits within the overall development of a number of strategic sites within Lambeth. The review is due for completion by September 2004 and is the subject of a separate report on this agenda.
8.2 Implementation Programme
In addition to other property related programmes of work eg annual review of the Asset Management Plan 2003, a programme of action has been identified and is set out as follows:
Action Output Lead Timetable 1 Annual Property Performance Report to the U Nwanze Sept 2004 report, which includes Executive comparison of performance against other Councils. 2 Annual disposal programme to Report to the FSB/ Jan/Feb be presented to the Executive Executive U Nwanze/ 2005 as part of the corporate annual R Ennis budgetary process. 3 Review support to voluntary Report to the Joint U Nwanze/ March 2005 organisations through the Member and J Kerridge provision of premises. Officer Working Group 4 Completed measured Surveys completed U Nwanze/ March 2005 Condition/Asbestos Surveys/ and reported to M La Rue/ DDA Audits. FSB K Griffiths 5 Review of property related Report to FSB U Nwanze/ March 2005 accountancy structure I O’Donnell 6 Review existing ownership of Appropriation U Nwanze/ March 2005 property in the spirit of Report to FSB I O’Donnell corporate ownership and transfer resources as appropriate. 7 Undertake a rolling Annual Property U Nwanze/ Annually programme of comprehensive Review outcomes CAWG/FSB property reviews of the factored into the operational portfolio. “Star Chamber process” 8 Departments to prepare Report to the CAWG/ Annually departmental Service Asset Executive on U Nwanze/FSB Plans (SAPs) as part of the Annual Asset corporate annual business Management Plan planning process 9 Prepare and implement a Report to the U Nwanze/K Annually corporate planned Executive Griffiths maintenance programme. 10 Implement a corporate Annual report to U Nwanze March 2006 London Borough of Lambeth Asset Management Plan – July 2004 - 44 - Page 101 Action Output Lead Timetable property information system. SMB 11 Publish asset management Publication of CAWG/FSB March 2005 “Corporate Practice Guidance” Guidance on Intranet. 12 Implement Intranet access to Intranet access of CAWG/FSB December corporate property databases. PIMS 2005 13 Review 2003 Asset Annual report to the CAWG/FSB June 2005 Management Plan and report Executive to the Executive
8.3 Review Frequency and Mechanisms
The AMP is not a static document but subject to continuous change. It will retain a five year time horizon but be updated by an annual review. This will coincide with other corporate and service planning processes so that actions arising from these can be reflected in the AMP. In addition, the performance of the property portfolio (and related professional services) culminates in an Annual Property Performance Report. This provides trend data with progress against performance indicators and targets. The programmes of work which implement the AMP are kept under periodic review and overall AMP processes are monitored through FSB, which meets monthly.
Uzo Nwanze Head of Asset Strategy Corporate Property and Facilities Management Tel: 020 7926 9929 Email: [email protected]
London Borough of Lambeth Asset Management Plan – July 2004 - 45 - Page 102 Appendix 1
HEADLINE STRATEGIES
This framework has been translated into the following key strategies:
(1) BEST VALUE
The Council will not hold property for its own sake and will measure its use of property in financial terms just like its other resources.
The Council will occupy the minimum possible amount of property measured in financial terms which it needs to perform its duties and attain its objectives.
It will expend the minimum possible resources on the day-to-day management of its property.
At its most strategic level this means that in making the following decisions, the financial measure which will be used is that which results in the minimum possible amount of the Council’s resources being used, ie “opportunity cost”.
• To retain or dispose of existing property; • To invest further capital in property it already owns; or • To transfer or let property to a Community Organisation or partner agency; or • To retain property for other strategic purposes, eg land assembly for regeneration purposes; • To acquire new property.
The following policies will support this strategy:
• Properties will be managed corporately, in accordance with strategic aims and long-term objectives; • Property management processes and systems will be aligned to function effectively; • Essential property data and information will be complete and up-to-date, providing a reliable basis for decision making including data for both internal and external comparisons; • Investment decisions will be made on land management information including return on investment and value for money; • All repairs and maintenance works will be co-ordinated and managed in a planned, timely and effective manner; • Ensure through a proactive review of current and future needs that property assets are provided and held in a way that maximises the contribution they make to the achievement of the Council’s service objectives; • Ensure that the financial return from its investment property is maximized except where property is held to support the Council’s other socio-economic objectives; • Disposal of land and property in a way that achieves the best capital receipt and meet other corporate objectives set for the disposal; • Adoption of a “cost centre culture” to encourage building users to monitor and control expenditure; • Making the delivery of services less dependent on the use of property assets.
(2) RESPONSIBILITY AND ACCOUNTABILITY
To ensure clear understanding of property management responsibilities and accountabilities.
The following policies will support this strategy:
• Property will be deemed to be held by the Executive and used by service departments in trust for the Authority as a whole; • The Executive, advised by the Finance Strategy Board will – define property policies, standards and strategies; approve service department asset plans and new property acquisitions; keep the property portfolio, its utilisation; costs in use and all property management activities under review; London Borough of Lambeth Asset Management Plan – July 2004 - 46 - Page 103 receive annual stewardship reports as to the corporate estate and monitor annual service department asset stewardship reports; manage the planned maintenance programme; dispose of property declared surplus by service departments. • Service departments will – Identify property necessarily required for the proper delivery of their service plans; Evaluate options for service delivery in Best Value reviews, when reviewing these annual asset plans or considering new property needs; Monitor utilisation and true costs and benefits of property held for service purposes; Declare surplus all property no longer required for service purposes, with as much prior notice as possible but not less than one year. • Corporate Property and Facilities Management Services will play the role of the Corporate Property Client.
(3) ACCOUNTABILITY TO THE COMMUNITY
The Council will establish a process of engagement and consultation with the Community.
Based on the principles of working in partnership, the Council will engage with the community where appropriate to seek integrated service delivery solutions that will make a difference to the community.
The following policies will support this strategy:-
• Prior to declaring a property surplus to requirement, each department, as part of its business planning process, will undertake a detailed assessment and consultation process, involving external as well as internal partners. Therefore, by the time surplus properties have been collated into the Corporate Property Disposal Programme, they have been subjected to a wide ranging consultation process. • The Annual Disposal Programme will be reported to the Executive as part of the annual budgetary report.
(4) GOOD FINANCIAL FRAMEWORK (PROPERTY MEMORANDUM ACCOUNT)
The existing method of property accounting will be improved to reflect the full substance of the total transaction for each property ie rental income or rental outgoing against total expenditure (repairs, bad debts and management costs).
The following policy will support this strategy.
Establishment of an effective management accounting structure by way of a Property Holding (Memorandum) Account. The PHA will comprise six separate Memorandum accounts as follows:
• Office Accommodation Account • HRA Investment Property Account • General Fund Investment Property Account • General Fund Industrial Investment Estates Account • Voluntary Sector Premises Account • General Fund Operational Property Account
Each Sub-Account will contain the following information for each property:
• Capital value • Asset rental/rental income • Reactive maintenance expenditure • Planned maintenance expenditure • Debt charges • Utility costs • Management costs
London Borough of Lambeth Asset Management Plan – July 2004 - 47 - Page 104 (5) DEPARTMENTAL SERVICE ASSET PLANS
To develop property planning processes, within the corporate strategic management framework, to ensure property resources are managed in the best interest of the Council.
The following policies will support this strategy:-
• Service asset plans, in a form determined by the Finance Strategy Board (FSB) from time to time, shall be prepared within service/business plans and be approved by the FSB, taking short (3 year), medium and long term perspectives. Service Asset Plans will record:- the purpose of which property is needed – or otherwise stating the property is or will be surplus; including alternative non-property service delivery strategies; sufficiency, condition and suitability in meeting Council needs; options for future management, from property and service viewpoints; future management strategy with associated costs and benefits and in particular:- - proposed capital and improvement works; and -maintenance programme. • Service asset plans must ensure Best Value in overall corporate and service contexts which:- minimises capital investment over time minimises overall true costs of service provision Commensurate with maximising the utility gained from property maximising residual value upon eventual disposal • Service asset plans should be challenging of property usage and maximise generation of funding from capital receipts within the estate through recycling property not strictly required for service purposes; • Such service asset plans are to be consistent with corporate and resources policies and strategies – not least as to capital and revenue provision and sustainability; • Service asset plans must properly evaluate the risk of future changes in service need and potential impact upon property need, in order to ensure appropriate flexibility is incorporated into property plans and that future property needs are fully considered; • New or amended property needs which are not contained within service asset plans will not be approved by the FSB; • In evaluating future management options, full regard must be had to all present and future liabilities of the Council, including maintenance, running costs and improvements which may be necessary eg to comply with fire, DDA and Asbestos at Work Compliance Regulations and other standards, including changes in service needs, etc; • An annual stewardship report to be made to the FSB, and service asset plans shall be annually reviewed and revised; • The Executive to keep the estate and its utilisation under continuous review.
(6) IMPROVEMENT AND MAINTENANCE
To ensure good physical maintenance of property assets and improve the prioritisation, delivery and forward planning of capital works.
The following policies will support this strategy:-
• The Executive, in considering approval to property capital works and improvement, shall ensure schemes are in accordance with corporate, service, resources and property plans, programmes and budgets; • Maximum advantage is to be taken of external funding opportunities and new procurement initiatives to support pursuit of Best Value, within the constraints of affordability – eg PFI, PPP, JV’s EU, Lottery etc; • All projects should be tested for opportunities for joint working, within the Authority, as well as with external partner agencies; • Capital and improvement projects which significantly reduce maintenance backlog, deal with “timebomb” issues or which reduce running costs or energy utilisation will receive appropriate ranking in formulating programmes of work, balanced against service needs; • Schemes shall be progressed in accordance with best practice, particularly as to necessary timescales to ensure proper briefing, consultation, feasibility/appraisal, financial planning, procurement and implementation; London Borough of Lambeth Asset Management Plan – July 2004 - 48 - Page 105 • All (significant) projects shall be subject to life cycle costing, risk and option appraisals and value management processes; • Excepting LMS and HRA works, all projects in excess of £25,000 shall be commissioned through the Corporate Property and Facilities Management Services (CPFMS); • Estimates, which shall first have been agreed in consultation with the CPFMS, shall be reported to the FSB specifically as either:- Budget; or Final estimate (pre-tender); or Based on tender prices. • Post project reviews shall be undertaken of all (significant) property capital and improvement work and reported to the FSB within 12 months of completion of works.
The Council will give increased priority to property maintenance with the long term objective that maintenance should not exceed 10% of the value of the estate.
The following policies will support this strategy:-
• The Council’s property will be maintained in a reasonable, healthy and safe state taking into account the Council’s public roles and corporate service and resource strategies and property plans; • The Council will aim to reduce backlog below 10% of the asset value of the estate, subject to the availability of resources, within 10 years; • Property planned maintenance shall be the responsibility of the FSB to ensure Best Value for money in maintenance across the estate as a whole; • Internal maintenance shall be delegated to service managers, on the basis of the existing arrangements; • All property shall be subject to regular inspection to identify future maintenance needs and all maintenance shall be programmed in accordance with a priority system approved by the Council from time to time and in liaison with service managers; • Annual reports shall be made to the FSB about the state of maintenance of property, policies and strategies for the future management of that property; • An annual report shall be made to the Executive in relation to maintenance of the Council’s estate as a whole.
(7) CAPITAL RECEIPTS
To maximise the generation of capital receipts from within the estate to meet other Council needs.
The following policies will support this strategy:-
• Annual service asset plan and property reviews shall ensure that all property held by the Council is wholly, necessarily and primarily needed for Council purposes; • Asset plans shall ensure that property which is or may become surplus shall be properly identified and appropriate arrangement put in hand for early disposal; • Where property will or may become surplus, full and proper investigations shall be made as to alternative users as a basis for sale on the open market and all necessary consents obtained as soon as possible; • Capital receipts so generated shall be treated as corporate receipts, available for distribution at the discretion of the Executive, save as regards cases where specific approval of the Executive has been given for the reinvestment in replacement assets, in accordance with Government Capital Finance Regulations.
(8) SUSTAINABILITY
The Council will undertake the appropriate research and apply the requirements of sustainability to all aspects of property management.
The following policies will support this strategy:-
• To develop the application of the Council’s “Environment Charter” in property, within external constraints (eg Health and Safety standards) focusing on – Property need and location Design, materials and construction London Borough of Lambeth Asset Management Plan – July 2004 - 49 - Page 106 Property use and management. • To require that service asset plans set out proposals and targets for energy conservation; • To require that annual stewardship reports to the FSB and corporately include position statements as to energy requirements and future energy management strategies.
(9) PROPERTY INFORMATION
The Council will invest in appropriate management information and develop the use of management information benchmarking and performance indicators to inform and support better property management.
The following policies will support this strategy:-
• The Finance Strategy Board (FSB) will be responsible for corporate property data which accords with CIPFA standards and the requirements of property estate management; • Maximum advantage is to be taken of co-ordination between service departments on information collection, manipulation and presentation to minimise costs and avoid duplication of effort; • Priority is to be given to development of benchmarks and performance indicators to better support the decision making processes in pursuit of Best Value in property management; • The Performance Measures set out in Appendix 3 will be utilized in monitoring the delivery of this strategy.
(10) BEST VALUE IN PROCUREMENT
The Council will review and develop the process of procurement of property services and of property management activities.
The following policies will support this strategy:-
• Best Value shall be measured with regard to true costs and benefits in respect of property, taking qualitative and quantitative factors into account which best reflects the needs of the people of Lambeth; • Full advantage shall be taken of all methods of procurement as appropriate to the Council’s duties as a public body, and within statutory, European and other laws, regulations, codes and best practices; • The Council shall keep under review methods of procuring property, property management activities and the necessary professional and support services and shall maintain an improvement programme.
(11) OWNERSHIP OF NON-OPERATIONAL PROPERTY
The Council will satisfy itself that continued ownership is in the best interest of the Community.
The following policies will support this strategy:-
• Regular (3 yearly) examination of other opportunities lost by locking resources in the portfolio; • By regularly exploiting opportunities for improving the quality of the investment capital appreciation/revenue return; • Poor performing property will be disposed of.
(12) EFFICIENT AND PRO-ACTIVE MANAGEMENT OF OFFICE ACCOMMODATION
To provide appropriate space for employees and equipment in a technologically changing environment.
To provide buildings and space which enhance service delivery and the corporate image; and helps attract and retain employees.
To achieve greater flexibility and reduce operation costs.
The following processes will support this strategy:- London Borough of Lambeth Asset Management Plan – July 2004 - 50 - Page 107
Well defined and comprehensive Departmental Service Asset Plans will inform the development of the Office Accommodation Strategy. They will specify the services to be provided in sufficient detail to assess office accommodation options against their service component.
The Departmental Service Asset Plans will:-
• Define the departmental core business service it intends to deliver, examine service delivery methods and determine the most efficient cost effective means of service delivery; • Show the departments organisational structure together with client and other major stakeholder relationships; • Broadly define the resource requirements (human, IT and financial) of the department and/or its various divisions/business units together with the associated overall accommodation needs. • Establish the key accommodation issues based on the departments needs as well as corporate objectives.
The Service Asset Plans across the Council will then be collated to:-
• Identify opportunities for change to meet the gap between existing and required accommodation; • Determine whether leases should be renewed or freehold premises retained and action proposed; • Determine preferred options; • Incorporate necessary maintenance/improvement works in the Corporate Planned Maintenance Programme.
London Borough of Lambeth Asset Management Plan – July 2004 - 51 - Page 108 Appendix 2
ASSET IMPLICATIONS OF CORPORATE AND SERVICE OBJECTIVES
IMPROVING LAMBETH FINANCES • Deliver the budget • Improve financial systems and their operational usage • Closure of accounts without significant qualification • Reduce outstanding debt and increase income IMPROVING LEADERSHIP AND CULTURE • An effective consistent and coherent leadership • Embedding performance management and improving the accuracy of performance information
• Deliver HR strategy
IMPROVING COMMUNITY LEADERSHIP • Improved spend on building • Develop and agree a community strategy maintenance • Strengthen health partnership working • Better support for voluntary sector • Maximisation of income • Agree and implement community engagement and participation strategy and improve the way we consult with people • Improved accommodation standards INVESTING ICT AND IMPROVING BUSINESS PROCESSES • Improve arrangement for procurement and commissioning • Building adaptations for disabled • Improving value for money through delivering the business access improvement program • Improve customer services through the provision of self-service via the • Better support for Voluntary internet and one stop shops and call centres Organisation on premises • Improve management information systems • Improve infrastructure • Scrutiny of need for property and its IMPROVING FAILING SERVICES utilisation • Stabilise the budget, achieving income targets and working towards 3 year severance budget to deliver MTFS • Increased demand for flexible • Deliver improvements in services through the JVA buildings negotiations/recommissioning and the PSA targets for highways • Build an organisation capable of delivering sustainable service • Maximisation of capital receipts improvements SUSTAINING SERVICE IMPROVEMENTS • Increased supply of affordable housing • Invest in ICT to improve performance and drive out costs
• Deliver improvement plan • Changing demand for office space • Reduce costs and type
Libraries • Release latent value of portfolio • Delivering year 1 of Libraries Plan achieving improvement assessment
by Audit Commission and meeting 16 of 19 national standards • Scrutiny of property running costs • Increase the number of users • Increase offering and value for money
Planning • Fully integrate the planning service • Improving handling times and reduce applications backlog • Develop policy framework • Recruitment and retention
Education • Identify and implement improved strategic management capacity support to school improvement • Improve inward investment and asset inclusive delivery of schools expansion programme • Improve joint working with partners including Social Services and Health to raise standards of achievement
Social Services • Vulnerable Children Strategy • Building capacity
Community Safety • Deliver on the Crime Reduction Strategy • Deliver the Safety for Citizens Best Value Review • Prepare for next Community Safety Strategy
HOUSING RE-EVALUATION • Providing better value for money in housing • Address the lack of investment in stock • Increase the supply of affordable housing
London Borough of Lambeth Asset Management Plan – July 2004 - 52 - Page 109 Appendix 3
PERFORMANCE INDICATORS
Objectives Performance Ref LBL Corporate Property/IPF 2002/03 LBL LBL Comments Indicators ODPM/ 2002/03 National Benchmarking Data 2003/04 2003/04 LBL Actuals Actuals Targets High Mid Low Quart Quart Quart Asset Management To optimise % of total floor Local PI 73.50% N/A N/A N/A 71.82% <70% The selection of property space which is 1.6% is as a holdings operational consequence of disposal of surplus property To optimise Premises related Local PI 28.2% N/A N/A N/A 5.41% >20% property expenditure as a running costs % of net LBL annual spend Premises related Local PI £18.87/m 2 N/A N/A N/A £15.44 m2 >15m 2 The reduction expenditure/sq m of £3.43/ m2 is as a result of a significant reduction in the Council’s utility bid To ensure Vacant/surplus Local PI 0.31% N/A N/A N/A N/A effective use of space awaiting space service rationalisation as % of total floor space Area occupied Local PI 11 m2 N/A N/A N/A 11m 2 This compares per workstation well with OPD (operational Index office accommodation) To protect % of floor space ODPM The information condition of in condition (1a) used is of property Condition A 6% N/A N/A N/A N/A variable quality particularly in Condition B 60% N/A N/A N/A N/A respect of the Condition C 31% N/A N/A N/A N/A backlog Condition D 3% N/A N/A N/A N/A maintenance Urgent and ODPM 92% N/A N/A N/A N/A and floor areas. essential priority (1b) It is anticipated (1-3) % of overall that on the backlog completion of Repair and ODPM £22.47/m 2 £16.52/ m2 £11.54/m 2 £8.62/m 2 £21.83/m 2 the measured maintenance (4a) condition costs/ m2 (G1A) survey in March Maintenance ODPM N/A N/A N/A N/A 16.38% <10% 2005, the available backlog as % of (1b) information will asset value be utilised with Ratio of reactive Local PI N/A N/A N/A N/A N/A 30:70 confidence maintenance spend to total maintenance spend To optimise the ODPM The sale of 7 of value of urn (IRR) for – (2) the Council’s 9 property (a)Industrial 12% 14.99% 12.34% 9.80% 11.34% >12% industrial Portfolio estates in July (b)Shops portfolio 2003 impacted 15% 15% 12% 10% 12% >15% on these Pls Capital Receipts Local PI 4.79% N/A N/A N/A 16.35% A significant as a % of asset increase in the value number of surplus properties sold % of rent Local PI 104.25% N/A N/A N/A 104.6% <100% Continued high collected performance in rent collection % of debt Local PI 28.03% N/A N/A N/A 28.03% >25% Continued high outstanding at performance in end of financial debt collection year Voids as a % of Local PI 7% N/A N/A N/A 2% <5% Significant units let improvement in the management of vacant properties
London Borough of Lambeth Asset Management Plan – July 2004 - 53 - Page 110 Objectives Performance Ref LBL Corporate Property/IPF 2002/03 LBL LBL Comments Indicators ODPM/ 2002/03 National Benchmarking Data 2003/04 2003/04 LBL Actuals Actuals Targets High Mid Low Quart Quart Quart Increase in rent Local PI 5.82% N/A N/A N/A -5% >5% Lease renewals during financial /rent reviews year done in the financial year effected
London Borough of Lambeth Asset Management Plan – July 2004 - 54 - Page 111 Appendix 3
PERFORMANCE INDICATORS
Objectives Performance Ref LBL Corporate Property/IPF 2002 LBL LBL Comments Indicators ODPM/ 2002/03 National Benchmarking Data 2003/04 2003/04 LBL Actuals Actuals Targets High Mid Low Quart Quart Quart Asset Management To ensure legal Health and Safety Local PI N/A N/A N/A N/A N/A N/A requirements defects reported pa are met To promote Energy costs/ m2 ODPM £6.47/m 2 £7.88/m 2 £6.53/m 2 £4.95/m 2 £7.87/ m2 >£6/ m2 Higher than sustainability in (4b) average property costs, investi- gations underway Water costs/ m2 ODPM £1.65/m 2 £1.95/m 2 £1.45/m 2 £1.12/m 2 £3.17/ m2 >£1.50/m 2 (4c) CO2m tonnes/ m2 ODPM 0.110/m 2 0.10t/m 2 0.08t/m 2 0.06/m 2 0.06t/ m2 >0.06 Performing for operational (4d) better than property (Core the national Offices) average To ensure The % of authority BV156 13% N/A 14% N/A 19% 13% Performing access for all buildings open to better than property the public in which the national all public areas are average suitable for and accessible to disabled people To ensure % of buildings not Local PI N/A N/A N/A N/A N/A property meets suitable/major service needs inhibition % of schools not Local PI N/A N/A N/A N/A N/A suitable/major inhibition Service disruption Local PI N/A N/A N/A N/A N/A as a % of total operating time To increase the Sites/properties N/A N/A N/A N/A N/A 111 supply of sold to partner RSL affordable housing Service Property ODPM £4.26/m 2 £4.95/m 2 £2.67/m 2 £1.35/m 2 £4.10/ m2 Higher than Provision management (3a) average Strategic costs/ m2 costs Property associated Management with the large (LBL activity) disposal programme Property ODPM £5.46/m 2 £5.38/m 2 £3.10/m 2 £1.37/m 2 £3.55/ m2 Performance management (3b) within costs/ m2 (non- national operational) average Average client satisfaction Score (%) Local PI N/A N/A N/A N/A N/A regarding:- -effectiveness -timeliness -condition of assets -customer senti- ment xx of physical work (environment) Delivery of Cost predictability ODPM 77% >85.70% 50% 14% 76.3% <90% Performance Capital (+/- 5% for projects (5a) higher than Programme > £25k) the national average Time predictability ODPM 90% >76.25% 45% 0% 80% 100% Higher than (+ 5% for projects > (5b) average £25k) national performance Property Average client Management satisfaction (External Score (%) Local PI N/A N/A N/A N/A N/A Valuation & regarding:- Estate -effectiveness Management -timeliness Contract) -understanding of client business+
London Borough of Lambeth Asset Management Plan – July 2004 - 55 - Page 112 Appendix 4
INVESTMENT PRIORITISATION MODEL
Ref Weighting Criteria Scoring 1H/1I 25 Meets CPA Recovery Plan Does not meet (0) Objective/ Corporate Goal Partly meets (15) Fully meets (25) 1J 10 Meets Department/Service Does not meet (0) Plan Objectives Partly meets (15) Fully meets (25) 1K 10 Meets Department Asset Does not meet (0) Management Plan Objective Partly meets (15) Fully meets (25) 1L 10 Recommended by Service Does not meet (0) Review Team Partly meets (15) Fully meets (25) 1M 10 Meets Government Initiative (ie Does not meet (0) Disability Act) Partly meets (15) Fully meets (25) 1N 10 Produces Revenue Savings Revenue savings as % of capital cost (max = 10%) 1O 5 Supports meeting statutory Does not meet (0) obligation (this is different from Partly meets (3) legal requirements) Fully meets (5) 1P 10 Involves external/internal None (0) partnership working Limited (3) Full (5) IQ 10 Generates Capital Receipts As % of capital cost: from disposal of assets 1-9% (1); 10-19% (2); 20-29% (3); 30-39% (4); 40%+ (5) IR 10 Is part funded from externally 1-9% (1); 10-19% (2); 20-29% (3); 30-39% (4); generated resources (eg 40-40% (5); 50-59% (6); 60-69% (7); 70-79% grants, SCAs) (8); 80-89% (9); 90%+ (10) IL 10 Environmental impact (e.g. 0-10% energy savings) IL 10 Contributes to a reduction in Partly contributes (5) street crime/improvement in Fully contributes (10) Community Safety 130 Total
London Borough of Lambeth Asset Management Plan – July 2004 - 56 - Page 113 Agenda Item 8 b
Finance Scrutiny sub-committee 19 th October 2006
Voluntary & Community Sector Premises Portfolio Item 8 All wards/all areas
Cabinet Portfolio: Report authorised by:
Paul McGlone. Chris Lee Executive Director Regeneration and Housing.
Executive Summary
This report indicates progress on regularising the terms of occupation of Council premises occupied by community groups and voluntary organisations.
Summary of financial implications
There are no direct financial implications arising from this report but rent subsidies referred to in the Report will be accounted for against potential market rent estimates within operational budgets.
Recommendations (1) That the Sub-Committee notes the progress made to regularise the occupation of Council premises occupied by community groups and voluntary organisations.
Consultation
Name of Directorate or Organisation Date sent Date Comments consultee to response appear in report consultee received para: from consultee
Internal Chris Lee Executive Director Regeneration & 2/10/06 Housing Mike Dickens Head of Legal Services 2/10/06 2/10/06 1.1 & exemption of Appendix 2 Tony Otokito Directorate of Finance 2/10/06 2/10/06 Councillor Cabinet Member for Community McGlone Renewal Councillor Abrams Deputy Cabinet Member Councillor Dickson Cabinet Member for Finance Uzo Nwanze Head of Asset Strategy 2/10/06 2/10/06 None
John Kerridge Assistant Director Strategy & 2/10/06 3/10/06 None Partnerships, ACS Entered in Consultation and Events Diary? N/A Page 114
Report history
Decision type: Urgency item? For information No Authorised by Date report Report deadline: Date report sent: Executive member: drafted: 05.10.06 26.09.06 06.10.06 06.10.06 Report no.: Report author and contact for queries: 157/06-07 Mike Perrott, Principal Property Manager 020 7926 0453 [email protected]
Background documents
Lambeth Council’s Comprehensive Performance Assessment Recovery Plan Voluntary and Community Sector Premises Policy 520/03-04
Appendices
Appendix 1-General Eligibility Criteria for rent subsidy.
Appendix 2-Schedule of Premises occupied by community groups and voluntary organisations - Exempt from publication by virtue of paragraph 3 of Schedule 12A of the Local Government Act 1972, as follows: Information relating to the financial or business affairs of a particular person (including the authority holding that information)
Voluntary and Community Sector Premises Portfolio
1. Context
1.1 The Finance and Scrutiny Committee has requested a report on the progress of regularising the occupation of the Council’s buildings and property assets by the voluntary sector.
1.2 The Executive on the 5/04/04 (reference 520/03-04) adopted the policy regarding the occupation of Council owned buildings by local voluntary and community groups. It was noted that a number of Council properties were occupied by groups without formal tenancy agreements and it was agreed that the terms of occupation should be regularised. The key elements of the policy requires:
a) That all occupiers of Council premises shall hold a valid tenancy agreement. b) That tenancy agreements shall reflect the market rental value of the asset. c) That rent subsidies are available subject to groups meeting Eligibility Criteria d) That a stock investment programme shall be considered to ensure that the Council’s statutory repairing liabilities are complied with. Page 115
e) That the concept of Community Hubs shall be explored and developed whereby groups are encouraged to share premises .
2. Proposals and reasons
Premises occupied by community groups and voluntary organisations
2.1 The Council values the contribution of community groups and the voluntary sector to the provision of services to residents of the Borough. However, the terms of occupation of Council property should be regularised. A market rent policy enables a common approach to all property lettings. This is best practice, provides transparency and removes hidden costs and subsidies.
2.2 The term ‘community group’ can have a wide variety of interpretation. For example, a play group occupying premises for a few hours a day and staffed by volunteers ranging to a Limited company or charity providing a service to a particular section of the community and possibly contracted services to the Council.
2.3 If the Council wishes to support an occupier then ideally, the rent is considered as part of a grant to the occupier. The Policy Report (520/03-04) acknowledged that where a grant is not available there may be an opportunity for an interim arrangement whereby the occupier seeks a temporary rent subsidy so that the asset rental value can be phased in over a 3 year period.
2.4 Occupiers seeking a rent subsidy shall be assessed against a General Eligibility Criteria as described in the Policy Report. The Criteria is attached as Appendix 1. These applications were to be considered by a Joint meeting of members and officers. The Group will either:
a) Agree a rent subsidy by way of phasing; b) Agree a tenancy but without subsidy. c) Request the group to vacate the premises.
2.5 The initial report to a Joint Member and Officer Working Group in September 2004 was primarily concerned with identifying Council owned properties occupied by groups or organisations where the rental value of the asset was not recognised and/or no legal agreement existed regarding the occupation.
2.6 The report indicated that over 150 properties occupied by voluntary sector and community groups or similar users should be examined to ascertain the basis of occupation. It should be noted that the schedule was not totally exhaustive. From time to time, properties are added to it or removed. For example, a group may disband or a company may fold or relocate or a new letting to a new group may take place. As explained below all new lettings will be at full rental value and subject to legal agreement.
2.7 The Schedule currently stands at 121 properties and is attached as Appendix 2 which is exempt from disclosure for the reasons set out in the list of appendices above. The Schedule indicates the 28 groups where a short term concessionary rent has been approved by the Joint Member and Officer Working Group in order to phase in a rent to full rental value. The rent phasing is granted as a temporary Page 116
concession where the Council does not necessarily wish to pursue possession or withdraw support from the group but no other or insufficient Council funding has been identified. It allows a group a reasonable breathing space to rearrange finances and possibly pursue other grant opportunities.
2.8 In order to occupy Council premises an occupier will be required to enter into an appropriate legal agreement which sets out the respective responsibilities and which states the rental value of the property. The occupier will be expected to pay the rent and will be subject to the normal procedures for recovery of money owed to the Council. If a concessionary rent is granted then the demand issued by the Council will be reduced to reflect the concession.
2.9 The use of the property will be reviewed on a yearly basis. If the Council is not happy with the operation of a facility or service provided then it is at the Council’s discretion to withdraw the subsidy and to pursue the full rent due. This will normally result in the Council obtaining possession of the premises. If an occupier pays the full rent due then the letting is regarded as a normal commercial letting and action can be taken under the tenancy terms to prevent any nuisance etc.
2.10 Of the properties and groups already examined 55 properties have been let on valid legal agreements reflecting a variety of circumstances.
For example:
a) Some are occupied on what seem to be concessionary terms. However the rental term reflect the initial financial contribution of the group to the premises. Groups have often introduced capital funds for the refurbishment of the property. This contribution is reflected as a reduced rent as it would be unfair for the property to be assessed on its improved condition if the group had contributed or attracted funds for the refurbishment in the first place.
b) Other groups receive grant funding and the asset rental value is already taken into account in the existing grant arrangement. As grants are reappraised these arrangements will be phased out.
c) Some groups provide services under contract to the Council and the provision of the premises is an integral part of the service provision and has been structured into the contract value. Again the asset rental value will be updated and taken into account when contracts are renewed.
2.9 Progress on regularising the terms of occupation of premises by community groups indicated in the schedule is indicated below:
Concessionary rent authorised: Offer made but 17 agreement still to be concluded Concessionary rent authorised : Agreement 11 completed Properties subject to established agreements 55 Properties inspected and occupation to be 23 pursued and resolved Properties still to be inspected 15
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3. Support to the Voluntary Sector with Premises.
3.1 The Council does not have an inexhaustible supply of premises and cannot hope to satisfy demand. Groups seeking premises are provided with a list of vacant commercial properties available to let and are advised which units are likely to be suitable for community use subject to planning consent. Any letting to these properties will be subject to a tenancy agreement stating a rent the group will be expected to pay.
3.2 The grant of a tenancy is not tied to any possible grant assistance and wherever possible groups are referred to other possible landlords or opportunities to share premises.
3.3 Some groups will not qualify for grant assistance or will only receive project specific grants. The provision of premises rent-free or at a concessionary rent- will be an unrecognised subsidy or invisible grant. As stated above the groups can pursue grant funding for support through the various sources within the Council or elsewhere. The application will be considered on its merits along with all other applications. Any grant will then be entirely visible and will be subject to monitoring and review.
3.4 In some cases, groups do not receive grant aid and cannot afford even the subsidised rent. These cases will be reported to the JM&OWG with a view to authorising the commencement of repossession proceedings.
4. Security of Tenure & Repossession
4.1 It should be noted that most occupiers of Council premises will have gained security of tenure. Where this is a possibility the Council will be advised, depending on the circumstances, to acknowledge the occupation by the grant of a formal tenancy at the full asset rental values. If the occupier agrees the terms and pays the rent then the letting is regarded as a normal commercial letting and the payment of rent will be pursued.
4.2 The Council may have concerns or reservations, sometimes anecdotal, about an organisation and service provided by a particular group. These reservations may not be sufficient to enforce possession and it will be easier, simpler, and less costly in the long run, to offer a commercial tenancy at full rent. If the occupier cannot afford the rent then possession of the premises can be pursued for non- payment of rent. In these cases, the accommodation will then be available to let once more, probably to another voluntary group or community organisation.
4.3 All council owned properties will be let on recognised terms reflecting the asset rental value and the Council will assess the support to groups by way of any grant assistance related to the benefit of the service provided. It should be remembered that a standard tenancy term is that premises must not be used for illegal purposes.
4.4 Dealing with groups can be a time consuming and difficult. All groups, understandably, are primarily concerned about the service they provide to their community. They do not necessarily appreciate the desirability of ensuring that Page 118
all groups and occupiers are treated the same way and that the value of the Council’s assets should be fully recognised.
5. Provision of Community Hub and investment in multi occupied premises.
5.1 The Council has a duty to maintain multi occupied premises and in the past year repairs have been carried out to the following buildings in order to bring the properties up to a basic standard of repair and decoration and in order to comply with relevant legislation.
5.2 The Council carried out Measured Condition Surveys, DDA surveys and Asbestos Surveys together with essential repairs costing £300,000 to the premises at a), b) and c) below using targeted funding from Lambeth’s Opportunities Fund in 2005/6. This work was funded from the relocation of groups from 2/4 St John Crescent and 378 Coldharbour Lane and the subsequent sale of these properties producing a capital receipt of £1,625,000.
a) 363/365 Brixton Road - This accommodation comprises upper ground floor and semi basement offices within a 4 storey building. It is fully occupied by Archro, CALA, Sangayi, Mo Wa Taifa, Eritrean Community Lambeth and Somalia Relief Society.
b) 13/15 Stockwell Road - This accommodation comprises offices within a 3 storey building with a 2 storey annex. It is currently occupied by Eritrean SAHO, Tigreyan Refugee Association, Lambeth Somalis Assoc. and Lambeth Planning Transport Group.
c) 1 Othello Close - This former Day Centre has been converted to provide offices for the South London Family Mediation Centre and offices, display space and archive facilities for Black Cultural Archives.
d) Laburnum Court - This is a former respite care centre. It is currently occupied by contractors to Adults’ and Community Services providing care services in the Borough and elsewhere.
e) Former Norwood Library, Knights Hill - This building has been substantially refurbished and is used by a number of community and voluntary groups. The terms of occupation need to be regularised.
5.3 A possible future Community Hub has been identified at the underused shops at Lambeth Walk. This parade is already occupied by Sure Start, Riverside Community Trust and African Child Association. Further vacant shops are being looked at with a view to offering the space to other community groups.
6 Comments from Executive Director of Finance
6.1 There are no financial implications arising directly from this report. Page 119
7. Comments from Director of Legal and Democratic Services
7.1 The Council's powers to provide grants and other financial assistance to voluntary organisations are set out in various enactments. For example, section 65, Health Services and Public Health Act 1968 empowers local authorities to make grants to voluntary organisations providing services, inter alia, for the welfare of children, the elderly, persons who are ill or disabled, and mothers with children under 5. Section 19(3) of the Local Government (Miscellaneous Provisions) Act 1976 provides similar powers in relation to providers of any recreational facilities. In addition, section 111, Local Government Act 1972 allows the Council to do anything which is calculated to facilitate, or is conducive or incidental to, the discharge of any of its functions.
7.2. By virtue of section 2, Local Government Act 2000, local authorities have the power to do anything which they consider is likely to achieve the promotion or improvement of the economic, social and environmental well-being of their area. This "well-being" power includes the provision of financial and other assistance to any person and may be exercised in relation to, or for the benefit of, the whole or any part of the authority's area or all or any persons resident or present in their area.
8. Results of consultation
8.1 The Policy report (ref 520/03-04) was the subject of wide consultation with the voluntary sector. There are no consultation issues arising directly from this report.
9. Risk management: None
10. Equalities impact assessment:
10.1. This was considered as part of the Voluntary and Community Sector Premises Policy report ref 520/03-04.
11. Community safety implications: None
12. Environmental implications: None
13. Staffing and accommodation implications: None
14. Any other implications: None
15. Timetable for implementation
All premises occupied by voluntary groups and community organisations will be inspected and where necessary tenancy terms proposed by summer 2007. Page 120
Voluntary & Community Sector Premises Portfolio Appendix 1
General Eligibility criteria for charitable groups wishing to occupy Council owned premises.
Criteria Examples of evidence (not exhaustive)
The organisation must be providing a service Service plans, charitable objectives, funding that complements the Council’s service applications, service level agreements. priority. The organisation must be able to manage a Draft/working policies. Staff/management committee building within the terms of a lease and attending training. Lease agreed and signed. statutory responsibilities. Organisation working within the terms of the lease. Services from the building must be for the Catchment area for group, service- monitoring benefit of Lambeth residents, rather than statistics, funding applications. Client profiles. London wide. The organisation must demonstrate the ability Funding applications, income projections. The to pay the agreed rent requested by the organisation must not have rent arrears owing to the Council for use of the building Council from previous or present occupancy. The organisation must demonstrate that it is Constitution, rules, charitable registration number, properly constituted. and/or Memorandum and Articles of Association. The organisation must demonstrate its Audited accounts. Operational budgets that indicate financial sustainability. the projected annual income etc.
Priority will be given to groups that are Service plans, aims and objectives of the group. providing a service to meet unmet need in Priorities within Lambeth Community Strategy. Lambeth. Services aimed at meeting the needs of traditionally excluded communities. The activities of the organisation must be Funding applications, service plans. ones that the Council has a power in statute to support. The management committee must be fully Minutes from management committee meetings. operational and fulfilling its responsibilities. Organisations complying with the requirements of the lease. The organisation is operating within the terms of its constitution. The organisation is providing its services Service policies, charitable objectives, employment within an equal opportunities ethos. policies, business plans and committee reports. The organisation must demonstrate that it Constitution, monitoring reports, minutes from the does not seek to support or oppose any management committee, business plans, funding political party or otherwise engage in political applications. activity. The Council will not provide premises under Constitution, monitoring reports, service plans, its voluntary sector policy for activities that are funding applications. purely religious in nature. The organisation must demonstrate that it Does not operate a private members club for works for the benefit of the community. example. The property is available and suitable for the The Council has at its disposal property that is purposes requested. suitable for the activities of the group.
Page 121 Agenda Item 9 b Finance Scrutiny sub-committee 19 October 2006
Lambeth Benefits Service Review September/October 2006 Item 9
Report authorised by : Executive Director of Finance and Resources: Mike Suarez
Executive summary
This report reviews current year performance of Lambeth Benefits Service, updates the Comprehensive Performance Assessment rating for the Service and outlines the risks and mitigation measures in seeking further service reform.
Summary of financial implications
There are no financial implications directly from this report.
Recommendations (1) That the Committee notes and comments on the Lambeth Benefits Service Review.
Consultation
Name of Directorate or Organisation Date sent Date Comments consultee to response appear in report consultee received para: from consultee
Internal Mike Suarez Executive Director, Finance & Resources Mike Dickens Legal and Democratic Services 27.09.06 4.1 Jonathan Williams Directorate Finance Officer 27.09.06 3.1 Entered in Consultation and Events Diary? N/A
Report history
Date report drafted: Report deadline: Date report sent: Report no.: 27.09.06 06.10.06 05.09.06 /06-07 Report author and contact for queries: Vincent Seivwright-Smith, Divisional Director of Lambeth Benefits Service 020 7926 0990 [email protected]
Background documents
None.
Appendices
None. Page 122
Lambeth Benefits Service Review September/October 2006
1. Context
1.1 In September 2003 the BFI published their CPA Improvement Report for the service. The report found that there were over 260 areas of weakness within LBS and that on a five point scale of poor, fair, fair towards good, good and excellent – LBS was providing a ‘poor’ service. Suffice to say this was not the first time we had received this rating. As a result of stagnation in the previous two years the Office of the deputy Prime Minister had placed LBS under supervision.
On 21 July 2006 the DWP announced that the recent performance of the service was such that they would disengage from close supervision provided current improvements and satisfactory performance was maintained over five specific and one general area of service provision. These requirements are broadly in line with current rates of improvement as well as LBS’s own plans and targets for 2006/7.
2. Proposals and reasons
2.1 This report reviews current year performance of Lambeth Benefits Service, provides and update on the Comprehensive Performance Assessment rating for the Service and outlines the risks and mitigation measures in seeking further service reform
3. Comments from Executive Director of Finance & Resources
3.1 LBS operates a £250m business that affects 38% of the borough’s residents. The progress reported in this review will positively impact on the finances of the Lambeth Benefits Service, in particular improved accuracy of assessment (BVPI 79a) which has risen significantly to 96.4%. The financial implications of these improvements are currently being assessed through the budget monitoring process. The Service has been successful in attracting inward investment from the Department of Work and Pensions to fund service improvement. The Service will need to build on 2006/07 improvements to ensure these are sustained in the current year and beyond.
4. Comments from Director of Legal and Democratic Services
4.1 By virtue of section 123 of the Social Security Contributions and Benefits Act 1992, provision is made for schemes for the administration of, inter alia, housing benefit and council tax benefit to be specified or determined in accordance with regulations. The regulations in question are the Housing Benefit (General) Regulations 1987 as amended from time to time.
Section 123 places duties on every authority granting housing benefit, and every billing authority for the purposes of council tax, to take such steps as appear to them to be appropriate for the purpose of securing that persons who may be entitled to housing benefit and/or council tax benefit are made aware that they may be entitled to it.
Section 134 of the Social Security Administration Act 1992 states that housing benefit provided by virtue of a scheme under section 123 of the Social Security Contributions and Benefits Act 1992 shall be funded and administered by the appropriate housing authority or local authority.
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5. Results of consultation
5.1 LBS has been closely monitored by both the Government Monitoring Board of the former ODPM and the DWP since 2003. On 21 July 2006 the DWP announced that the recent performance of the service was such that they would disengage from close supervision provided satisfactory performance was maintained over five specific and one general area of service provision. Performance against the criteria will be considered as a whole so that, say, a seemingly good average for clearing new claims was supported by a healthy age profile of outstanding work and acceptable levels of accuracy. These requirements are broadly in line with Lambeth’s own plans and targets for 2006/7.
6. Organisational implications
6.1 Risk management: The management intervention that has delivered the performance reviewed in this report mitigates financial and budgetary risk to the Council.
6.2 Equalities impact assessment: None specific.
6.3 Community safety implications: None specific
6.4 Environmental implications: None specific.
6.5 Staffing and accommodation implications: None specific.
6.6 Any other implications: None specific
7. Timetable for implementation
7.1 None specific
Page 124
Page 125
Lambeth Benefits Service Review September/October 2006
1. Introduction
1.1 The Executive ratified the Lambeth Benefits Service (LBS) Strategy in November 2004. The Strategy brought together pipeline and operational objectives for the Service into a single document and outlined how LBS would be transformed into an efficient, accessible and value for money service, which was capable of achieving the Benefit Fraud inspectorate (BFI) standards and more besides. The Strategy presented a single picture of the targets and milestones needed to complete the transformation of the Service, and provided an overarching framework to guide the delivery of that transformation.
1.2 The Council’s commitment to improving this Service is tangible and visible, and has had a fundamental impact on the success of delivery of service reform to date.
2. Current Performance
Fig 1
2.1 August saw 86.54% of all new claims assessed within 14 days of all relevant information being received. This is the second successive month that the target of 83% has been exceeded; it represents a 13% improvement on the performance achieved over the same period in the previous year; and is a credible improvement on the performance achieved in July. July and August have been particularly difficult operationally due to a high proportion of annual leave. The continued improvement over the period is therefore particularly worthy of note as it provides further evidence of the consolidation of sound management principles behind the ongoing reform of LBS as well as evidence of the engagement and innovation of the officers delivering the service. Management will now seek to ensure that performance does not fall away over the remainder of the year before considering raising the bar further in 2007/08.
2.2 Operation Themis is the embodiment of the principle of putting claims into payment quickly, accurately and at first point of contact with the claimant. Previously, claimants
Page 126 had to wait several days before seeing an experienced assessor, often after having received incomplete information or advice. The resource for this initiative was carved out of the mainstream assessment function. Evidence-based good practice developed by Themis has now been fed back into business and used for the mainstream assessment function. Operation Hestia has now gone on to emulate the proven good practice from Themis by processing benefit claims for households whose first point of contact with the Authority is the Housing Department's Re-Housing and Homeless Persons Unit. This initiative is staffed by LBS assessment officers working out of Housing Department premises. The intention was to drive up performance across the board toward the target of 90% of all claims assessed in fourteen days of all relevant information being received, while at the same time maintaining accuracy of above 95%. We are now close to achieving that target. This is part of the "risk managed" strategic approach to achieving sustainable, improved performance against this key performance indicator.
Fig 2
Page 127
Fig 3
2.3 There is no direct link between Themis and performance on changes in circumstances. However, the "halo" effect of Themis is that a streamlined process and early intervention – the principles on which Themis is based, is extended to this area of work and will have similar outcomes. However, this area of work represents 64% of all assessments performed by LBS and it is clear that much still remains to be done vis-à-vis this Key Performance Indicator. A significant gear shift is now required to gain focus and to move the Service closer to the annual target and further still to the London average.
3. Emerging and continuing risks
3.1 The LBS Transformation will be delivered by everyone within the organisation developing new capabilities to handle and absorb the kind of repeated performance challenges posed by both seasonal surges in incoming work, and improving our position in a league table composed of other improving services and national agenda issues such as polarisation within a tightening labour market for experienced and capable benefit assessors.
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Source data: ALG September 2006
Fig 4
3.2 Figures 1, 2 and 3 show that good progress continues to be made against the ambitious targets set out for the service. 2005/06 saw the achievement of a CPA rating of 2, a clean bill of health on all BVPIs, unprecedented accuracy of 90.4% and an average turnaround time for new claims of 53 days against a quarterly target of 54 days.
3.3 The feature of 2006/07 is that the improvement of the previous year has been accelerated. In September 2006, the BFI confirmed that LBS performance has improved since 2005 and the Service is now deemed to be at CPA3, this equates to service provision being assessed as ‘Good.’ There have been significant improvements in accuracy with this measure now standing at 96%, compared to a low point of 74% in 2003/04. Staff productivity, workflow management and customer satisfaction have all shown similar improvements, when taken together with Key Performance Indicators, current performance indicates business maturity, a positive response to necessary change and ongoing reform of a previously failing service.
3.4 The significance of these achievements cannot be underestimated. However, as illustrated in Fig 4, they are set against the backcloth of London-wide improvements.
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Changes in Circumstance
10000 300
9000 250 8000
7000 200 6000
5000 150
4000 Volume Volume CIC of 100 3000
2000 50 TotalStaff - LBS/Agency/M Summers 1000
0 0
4 4 4 4 5 5 5 5 5 6 6 6 6 6 04 0 0 0 0 0 0 05 0 06 - l- -04 -0 -05 -0 l- -05 -0 -0 -0 u g t- c- b r y- n g- p t-05 n b g- ay un- J ov-04 e a Ju c e Jul-06 Apr-04M J Au Sep-04Oc N De Jan-05F Ma Apr-05M Ju Au Se O Nov-0Dec-05Ja F Mar Apr-0May- Jun-06 Au
Apr- May- Jun- Jul- Aug- Sep- Oct- Nov- Dec- Jan- Feb- Mar- Apr- May- Jun- Jul- Aug- Sep- Oct- Nov- Dec- Jan- Feb- Mar- Apr- May- Jun- Jul- Aug- 04 04 04 04 04 04 04 04 04 05 05 05 05 05 05 05 05 05 05 05 05 06 06 06 06 06 06 06 06 Changes of Circumstances received 3149 2811 3203 2754 2254 2180 2345 2216 2134 2090 2200 2312 2606 2740 2596 2488 3107 3571 3179 2853 1922 2418 2350 3011 2396 2358 2649 2217 2693 Changes of Circumstances decided 6320 4630 4436 5051 4441 6117 6212 5336 5114 4163 3271 5577 5527 3482 3601 2909 2799 2768 2387 1957 1808 2242 2135 8754 2848 2721 2363 2427 2225 Total Changes of Circumstances outstanding 5095 3640 3246 2775 2330 1549 1444 1437 1046 1034 1433 1199 1115 1203 1137 1341 1525 2134 2882 3162 3422 3231 3357 3291 5136 2873 2557 2179 2063 Total Staff 232 236 235 228 234 231 234 233 234 249 270 269 276 272 276 278 285 269 257 260 260 260 260 260 251 248 251 251 244 Fig 5
3.5 There are four factors that will shape continued success for the service. The delivery of the LBS Transformation Project; the integrity of the project team; the commitment of senior executives and staff; and the effort required by employees directly affected by internal and external change. Over the life of the strategy the first three factors have proven themselves to be effective and fit for purpose. It is the last element that poses the biggest challenge vis-à-vis the package of reforms yet to be delivered. There is clear objective justification to continue to extract effort from all available staff resources. The LBS Talent Management Initiative is the vehicle that will assist in building the necessary adaptive capacity within the Service.
3.6 Themis has highlighted the importance of competent first-contact human interventions in customer satisfaction and in sustaining high levels of accuracy in the assessment process. Themis has also given useful insights into the value to the organisation of flexible working practices and the importance of the workforce accumulating and retaining the knowledge to work in smarter ways.
3.7 However, management have identified a number of perverse incentives for assessment staff not to complete work. Fig 5 shows a trend of increasing outstanding work related to changes in circumstances, against a generally flat intake of new work. Some of this can be put down to the inherent tension between speed and accuracy. A certain proportion of assessments are double handled as a consequence of initially failing quality checks. At the same time an investigation highlighted issues such as a possibly over-engineered quality checking regime that discourages staff from “having a go”. There has also been the development of non-standard approaches to routine tasks resulting in a lack of consistency and opaque audit trails. Management have developed approaches to address these perverse behaviours. In addition, to the ongoing work to identify the bottom ten per cent of assessors and deploy the authority’s capability and conduct frameworks, quality checking continues to evolve and now, in addition to rejecting incorrect assessments, now seeks to identify and ‘pin down’ all assessors who erroneously delay putting a claim into payment on three successive occasions. The third instance will trigger a comprehensive review of all of those assessors work to ascertain which of either the capability or disciplinary frameworks are applicable. The initiative operates on the “three strikes and you’re in” principle (“in” to either the Capability or the Conduct framework).
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4. DWP funding/Subsidy loss
4.1 There is a strong argument to suggest that Lambeth’s subsidy loss is not being evaluated equitably by the Department for Work and pensions (DWP). The decision of DWP to recover subsidy deemed to have been overpaid at the rate of 40% (increasing to 50% for 2002/03) means that Lambeth is being penalised in a way that other authorities have not been. In the “Anglesey” case, recovery at 20% was justified by DWP at Judicial Review because Anglesey stood out as the worst case of failure to adhere to the subsidy regulations (and was described as a corporate failure by the district auditor). The DWP accepts that Lambeth’s historic administrative failing did not incur loss to the public purse. The decision to recover twice the percentage applied to Anglesey (and more for 2002/03) therefore unfairly penalises Lambeth yet again. This is significant not only because of the sums of money involved, but also because it comes at a time when LBS has demonstrated sustained improvement in BVPIs in recent years. In summary, corporately the authority is seeking comparable treatment to that given to other authorities.
Improvements in Accuracy
100.00%
22% Improvement 95.20% 96.00%
95.00% 92.80% 92.80%
90.40%
90.00% 86.60%
85.00% 83.20% 82.40% 80.80% 80.80%
80.00% 76.80% 76.00% 76.00% 74.40% 75.00%
70.00% Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 2003/04 2003/04 2003/04 2003/04 2004/5 2004/5 2004/5 2004/5 2005/6 2005/6 2005/6 2005/6 2006/07 2006/07
Fig 6
Notes to Fig 6.
1) 2003/04 Subsidy loss = £300k. LBL successfully argued that Single Person Discount error should not contribute to subsidy loss, rather LBS should be allowed to fix the problem. DWP gave LBL space and time to fix the problem. 2) Despite improvements in accuracy 2004/05 subsidy loss = £3m. This was due to assessment error in 'standard charge' cases – getting income wrong, non-dependant charge errors, applicable date errors etc. These errors do not necessarily impact a quarterly accuracy audit but they do impact the claim for subsidy. You can for example use the wrong applicable date but pay the correct amount of HB. Such a situation would result in the quarterly Stat 128 showing the payment as ‘correct’ but the subsidy element being under or over claimed and therefore ‘incorrect’.
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5. Workflow Management in context
5.1 Having made consistently good progress in managing workflows, February 2006 saw the introduction of 3,500 rent increase notifications in one hit. This was immediately followed by five days downtime in March. These factors combined with an additional 4,500 rent increase notifications sent in by our Housing Association Partners. Together, they account for the spike in outstanding work in March. This additional work absorbed considerable operational capacity but is mainly hidden in that it does not show as “future work” in the electronic work flow tool.
5.2 More recently Verification Framework visit reports and Hostels and Temporary Accommodation work, previously excluded from the electronic document count, has come on-stream and similarly absorbs capacity without necessarily showing in advance in the workflow system.
6. Appeals and Court
6.1 There is a backlog of work on both the appeals and the courts teams. Resource Review Report 2 (CTSG 28 April 2005) commented on the approach to tackling these backlogs. With regard to Pre-Court Checks, LBS has redesigned its Housing Benefit Pre-Court Check, Court Report and Warrant Report arrangements to comply with the protocol; given Housing Department colleagues full read access to Document Management and Housing Benefit systems; withdrawn from premature involvement in housing management decisions to seek recovery of a property for non-payment of rent; and developed an approach with housing, the starting point of which is an acceptance that both organisations have significantly improved in recent years and fully understand the current situation and each others constraints. LBS has also placed five officers within the Homeless Persons Unit (Operation Hestia) in order that potential benefit claimants receive appropriate advice and correctly complete HB claim forms at first point of contact, thereby reducing the likelihood of landlord possession action for rent arrears.
6.2 In order to eradicate the Appeals Backlog, we are currently collaborating with our off-site processors to augment the efforts of LBS officers to clear the long-standing unresolved claims. At the April 2005 CTSG, we reported 608 outstanding appeals and 142 outstanding revisions. The corresponding September 2006 figures are 342 appeals outstanding and 92 revisions. We will continue to report progress against this important area of work.
6.3 Housing Departments have historically relied heavily on the use of Court action as a means of recovery rent arrears. As a result of the new pre-action protocol recently added to the Court rule book and effective from 02.10. 2006. This will no longer be possible. The objective of the protocol being to reduce the instances of tenants appearing in Court and of losing security of tenure by becoming tolerated trespassers. This will be achieved by statute demanding more contact between the landlord and their tenant.
6.4 A large part of the protocol details steps that must be taken prior to Court action even being considered. The protocol goes on to detail the requirements of the Courts once these steps have been taken. One of the key factors being the provision of Housing Benefit Certificates (Witness Statements) on each case, both when the case is initially taken to Court and when it is resubmitted if a "postponed order” is broken. Where the landlord (in our case the London Borough of Lambeth) unreasonably fails to comply with the protocol, the Court may either impose an order for costs or adjourn or dismiss the claim.
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6.5 Changes to legislation and the pending change in Court protocols has led LBS to redesign the way it deals with Court, Complaints and Appeals. The aim being to have them managed as one separate generic unit to feed back results to DMT & TUP so that lessons can be learned and shared. This can only serve to improve the quality and quantity of performance for the CPA & BVPI measures.
Appeals Outstanding
600
500
400
300
200
100
0
03-Apr-06 01-May-06 05-Jun-06 03-Jul-06 07-Aug-06 04-Sep-06 Appeals 404 446 478 498 436 342 Revisions 75 90 113 113 127 92 Fig 7
7. Conclusion
7.1 LBS embarked on turning around the last failing service in the council against a recent history of very poor performance and low levels of customer satisfaction. So far we have achieved improved processing times, an improved CPA score, unreserved BVPI status and unprecedented levels of processing accuracy. All Authorities aspire to improve under the revised regulatory assessment process. Lambeth has set its target as one of delivering excellent services and the achievements over the last twelve months – the provision of a ‘Good’ service is now the new starting position. In order to achieve the ambition of excellence all the measures against which the service is assessed must now be maintained at well above-average performance. With the gap between LBS and other improving inner London Authorities at risk of widening, much of our future success rests on catching up with those at the head of the field and the effective delivery of the LBS Talent Management Initiative.