APPENDIX 20
Memorandum from the Green Minister, Office
of Public Service
INTRODUCTION
The Environmental Audit Committee invited me
to contribute to its examination of the arrangements within Government
for promoting the integration of environmental protection and
sustainable development into Government's decision making, the
"Greening Government" initiative. This memorandum covers
the subject areas identified in the Committee's letter of 28 January
and represents the consolidated contribution of the Cabinet Office,
including its agencies:
— The Central Computer and Telecommunications
Agency.
— The Civil Service College.
— The Government Car and Dispatch Agency.
— The Property Advisers to the Civil
Estate.
— The Security Facilities Executive;
and
Generally, the "Greening Government"
initiative affects departments in two ways: assessing the environmental
impact of their policies and improving environmental aspects of
their day-to-day management and operations. The latter is easy
to expand upon, but assessing the impact of Cabinet Office policies
is more difficult. Most of the Cabinet Office's activities are
of a cross-departmental co-ordinating kind, and directly affect
mainly others in government, so that impact outside Government
tends to be indirect. Moreover, the work of the Cabinet Secretariat
rarely has a direct effect on the environment. Where policies
directly affect the public, the Department performs the appropriate
appraisals (environmental, regulatory, etc.) when required. Where
policies only affect other government Departments, we would consider
only their impact within those Departments and not the likely
wider consequences of the Department's implementation of policies;
this would be for the Departments themselves to consider when
putting the policies into action.
ROLE OF
THE GREEN
MINISTER IN
THE DEPARTMENT
The responsibilities and objectives of our Green
Minister are implicit in the Department's Environment Policy statement.
The Departmental Green Ministers' role has been described in briefing
as "The primary role of Green Ministers is to see that environmental
aspects are taken into account in the policies and work of their
Department. In a small department such as the Cabinet Office,
the major items of concern to the Green Minister are the drive
to rationalise the Department's property holdings, supervision
of work in support of the Environmental Strategy, and oversight
in London of the continuing work on "Greening" the Department
(see the section on "Greening the Department's Operations"
below).
One full time official looks after the Cabinet
Office domestic energy and environmental issues. He is supported
by Infrastructure Division's accommodation officers and a network
of "Green Officers" across our estate. In addition,
the Green Minister has been supported on occasions by a member
of the Better Regulation Unit on policy and appraisal matters,
who has drawn on other resources within the Department when required.
The role of Green Minister is evolving and has
changed from that under the previous administration. It has not
been found necessary so far as to develop specific reporting responsibilities
for the Green Minister and the balance between issues of economy,
environment and social equity has not yet arisen because of the
nature of the Department's work.
ENVIRONMENT STRATEGY
The Department's environmental strategy document
addresses both policy and operational points and is available
on request. (A copy is attached at Appendix A). The strategy was
endorsed by the Office of Public Service (OPS) Management Board
and is taken forward on a day-to-day basis by the same officials
who support the Green Minister. All refurbishment work undertaken
within the Department reflects the Department's environmental
and energy efficiency requirements which are embodied in the tender
documents for all such work. The Department's managing agents
are also fully aware of these requirements and comply with them
wherever practicable. In total, this represents a broad spread
of awareness of the Department's environmental and energy strategy,
all of which helps considerably with its implementation.
The Department's strategy was forged to support
the previous Government's White Paper on the Environment, which
itself evolved from the Rio Summit. Its objective is to support
the Government's initiatives on environmental issues, and the
wide range of activities and functions which support this objective
are clearly stated in it.
Although the strategy documents does not specifically
mention energy efficiency targets, the range of functions and
activities which it embodies underpins the drive towards improved
energy efficiency. All such activities have resulted in the Cabinet
Office more than meeting the target, set by the previous Government,
of a 15 per cent reduction in energy consumption to April 1996.
The same effort will continue to be made to meet the Government's
commitment to further reductions in consumption and emissions,
to the agreed levels, by the year 2000.
The Department is currently working with the
treasury to establish a target for minimising waste in our jointly
occupied building in GOGGS. The collective volume of waste from
our other central London buildings has been established and targets
will be set in the near future.
The Department has regularly published energy
and energy efficiency articles in the staff journal and kept staff
informed of the progress being made against the target reduction
of 15 per cent in energy consumption. The appointment of "Green
Officers" across our estate has also helped to this end.
The Chief Executives of all the Department's
agencies have signed up to the Department's environmental policy
and are vigorously pursuing their own energy and environmental
agendas in support of the Government's strategy. More details
are contained in the section on "Departmental Agencies, NDPBs
and Other Sponsored Bodies" below.
The Department has not placed any of its papers
in the public domain, although the achievement against the declared
target of 15 per cent has been published annually via a written
Parliamentary Answer. The Cabinet Office has also contributed
examples to the Government's digest of Environmental Best Practice,
which is available to the public.
The Department has many fora at which views
may be sought on its strategy and targets, including "Green
Officers", managing agents, and house committee meetings.
The Department has been guided in its consideration
of the development of an energy management system by an environmental
impact specialist from the consultancy branch of the Environmental
Council. The advice indicated clearly that pursuing accreditation
to ISO 14001, or its British Standard equivalent BS 7750 would,
for a Department our size, generate additional resource costs
disproportionate to any practical savings or environmental benefits
that would accrue. We are looking at alternative systems, particularly
the "Tool Kit", developed by the Building Research Establishment
in conjunction with PA Consulting Group. It does not aim to meet
the full ISO standard but implementing it would produce a sound
environmental management system.
The Department's environmental strategy is reviewed
every two years and the action plan to support its aims and objectives
is updated annually. The Department's internal auditors have audited
our procedures and performance twice in the past four years and
their recommendations have been implemented wherever practicable.
Further audits are due in the next 18 months as part of their
rolling plan of audits. Additionally, the Department's overall
performance in reducing energy consumption, and therefore CO2
emissions, is published annually via a Parliamentary Answer. Any
information about the Department's environmental strategy and
performance is available on request.
Arrangements were made in 1994 for a copy of
the Department's environmental policy document to be included
in new entrants' induction packs. A section in the induction training
course for new entrants also introduces the Department's energy
and environmental objectives. Additionally, energy and environmental
articles, from within the Department, and from its agencies, are
published in the house journal. Staff with responsibility for
managing the Department's buildings have all undertaken the trilogy
of courses in facilities management at the Civil Service College,
as well as other modules, such as health and safety in the office.
SUSTAINABLE DEVELOPMENT
Because of the Cabinet Office's functions, it
has multiple objectives. The "Ministerial Code" (July
1997) requires that memoranda for Cabinet and Cabinet Committees
should set out "any significant costs and benefits to the
environment". Beyond this, it is rare that the work of the
Secretariat is relevant to sustainable development. On the other
hand, the Office of Public Service has five objectives but none
of these specifically mention the environment. However, as mentioned
above, the OPS Management Board have endorsed an environmental
policy.
The Cabinet Office Agencies are dealt with in
the appropriate section later. No arrangements for education and
training on sustainable development have been made beyond those
already in place for the Department's environmental strategy.
THE DEPARTMENT'S
IMPACT ON
THE ENVIRONMENT
The Department has been developing plans for
the electronic delivery of services by other departments which
would improve people's access to Government through greater use
of IT. Benefits from this programme would include a reduced demand
for transport and reductions in the paper needed. Other initiatives
within the Cabinet Office to promote electronic means of communication
between departments will have a similar effect on reducing the
physical movement of paper. The Cabinet Office is not aware of
past environmental liabilities nor does it have an environmental
effects register.
POLICY APPRAISAL
The Cabinet Office incorporates appraisal in
its own policies and programmes when appropriate. As already mentioned,
the "Ministerial Code" includes guidance on the need
to set out any significant costs and benefits to the environment.
Furthermore, the Better Regulation Unit has developed Regulatory
Appraisal for all measures likely to impose a burden on businesses,
charities or voluntary organisations. The Secretariat are reinforcing
the checks made by individual Departments. While the two types
of appraisal have different techniques and subject areas, they
are both aimed at improving policy making. According to the latest
"Guide for Departments on Cabinet Committee Business",
issued by the Secretariat, Cabinet papers or letters to colleagues
should explain the impact on businesses, charities and voluntary
organisations as well as significant costs and benefits to the
environment. We are not aware of any difficulties with our current
procedures and do not see any reason at this time to change them.
GREENING THE
DEPARTMENT'S
OPERATIONS
Examples of the Department's successes in greening
its operations are as follows:
— A contract placed in 1996 to recycle
all classified waste raised our recycling efficiency above 90
per cent.
— Full energy surveys of our core central
London estate were undertaken and their recommendations implemented
wherever practicable.
— Provision of bottle and can recycling
facilities. The Department was presented with an award last year
for its contribution to the Westminster City recycling scheme
over the preceding four years.
— Provision of green bins, across the
estate, for recycling white paper.
— Electronic mail facilities now available
to all the Department's buildings.
— Installation of code of Practice
5 electricity meters to enable the Department to negotiate more
competitive tariff rates from suppliers.
— ongoing development of a building
management system;
— Work completed to improve the efficiency
of the hot water supply system in our core buildings in Whitehall.
The requirements of the Department's environmental
strategy are clearly stated in all its standard contracts for
goods and services.
The Cabinet Office and its agencies exceeded
the target of a 15 per cent reduction in energy consumption between
1991 and 1996.
DEPARTMENTAL AGENCIES,
NDPBS AND
OTHER SPONSORED
BODIES
The Central Computer and Telecommunications Agency
The Central Computer and Telecommunications
Agency (CCTA) has an environmental strategy which does address
both the Cabinet Office's policy responsibilities and its operation.
It is not publicly available but a copy is attached at Appendix
B. The CCTA's Estates Services are responsible for carrying forward
and implementing the strategy but no full-time resources are dedicated
to this task; it is incorporated into the day-to-day working practices.
The CCTA's aims and objectives also include a commitment to sustainable
development.
The CCTA has particular problems with the Building
Management System for its offices, Rosebury Court. Currently,
the main objective is to resolve these problems to optimise and
reduce energy consumption for the building.
The Civil Service College
The Civil Service College has signed up to the
Department's environmental strategy and day-to-day responsibility
rests with the Head of Facilities Services. The College also has
a policy statement on environmental protection and a copy is attached
at Appendix C. This statement was one result of a project in 1994
to audit environmental practice and recommend action as required.
Some recommendations were dealt with and completed immediately
and others are on-going. The College actively maintains these
policies and reports to the Cabinet Office when required.
The Government Car and Dispatch Agency
The Government Car and Dispatch Agency has an
environmental policy which addresses both its responsibilities
and its operational criteria. In order to gain ISO 14001 accreditation
the policy is publicly available. The Management Board, in particular
the Personnel Director, have overall responsibility for the strategy.
In addition, the Quality and Standards Manager heads an Environmental
Panel of five section leaders. The Agency provided specific training
for the introduction of ISO 14001 and it is planning an internal
environmental audit training course for relevant staff.
Objectives and targets adopted so far are:
— In order to achieve ISO 14001, recognition
targets and objectives are being defined and will be agreed with
senior management as part of the process towards accreditation
of the Environmental Management system.
— The Agency's energy efficiency targets
are under review to meet the ISO 14001 requirements.
These objectives and targets will also take
account of sustainable development.
The Property Advisers to the Civil Estate
The Property Advisers to the Civil Estate (PACE)
provide advice, both general and specific, to Government. Promotion
of best practice is a key part of this role and PACE works closely
with the Department of the Environment, Transport and the Regions
(DETR) in developing guidance on environmental issues related
to property and channelling this to managers of premises.
PACE's own guidance material has a wide circulation
around departments, agencies and NDPBs. It incorporates the current
thinking on environmental protection and sustainable development,
and advises recipients how to take due account of these issues
in their property related activities.
A lesser known part of the role of PACE is to
provide heating and electricity to offices in the Whitehall area.
When it became necessary to replace the existing system, the decision
to install a gas turbine based combined heat and power plant took
into account both financial and environmental factors in seeking
to achieve the highest levels of fuel efficiency.
PACE also provides specific advice to departments,
including best practice on environmental issues where appropriate.
The recently completed Whitehall Accommodation Study, tasked with
examining the current accommodation requirements of Cabinet Office/OPS,
Foreign and Commonwealth Office and Treasury in the Whitehall
area, used the concept of life cycle costs for buildings to ensure
that maintenance and energy benefits were fully considered. Such
practice is reflected in the management of PACE's operational
properties, six in all.
The Security Facilities Executive
The Security Facilities Executive (SAFE) does
not have a separate environmental strategy. However, as a previous
member of the former Department of Environment, SAFE has adopted
that department's strategy, a copy of which is attached at Appendix
D. Responsibility for carrying forward the policy rests with the
Chief Executive and the management but no specific resources are
dedicated to the task. SAFE's aims also incorporate a commitment
to sustainable development.
The Buying Agency
The Buying Agency (TBA) has an environmental
policy which is publicly available and a copy is attached at Appendix
E. It also has a formal environmental management system in place,
which aims to conform to ISO 14001, and covers both the direct
(operational) and indirect (resulting from procurement decisions)
impacts on the environment. This is an internal management document.
Responsibility for the policy rests with the Chief Executive but
is discharged through the Environmental Management Steering Committee
chaired by the Procurement Director. There are five members of
the committee and it meets five times a year. All staff are required
to carry out activities relating to environmental management as
part of their normal duties. An audit function requiring some
part-time resource is expected to emerge over the next year. Sustainable
development is also included as part of the ISO 14001 requirement.
TBA has adopted the following objectives:
— To minimise the use of paper consistent
with the needs of the business. The measurement used is paper
purchased per head and is measured by orders placed for 80g and
100g paper, including pre-printed stationery, and by tonnes recycled;
— To minimise car miles, allowing for
the needs of the business, especially in respect of contracting
customers. The measurement used is car miles per customer visit
and is measured by the total car miles logged in monthly activity
reports. The target is to get below 95 car miles per customer
visit for 1998;
— To optimise electricity usage by
working towards the DETR standard of good performance. It is measured
by electricity used per head, by the number of personal computers
per head and by space charged;
— To provide, in respect of indirect
effects, relevant and meaningful information to customers about
the goods and services on offer from TBA contracted suppliers;
— To encourage environmental awareness
among suppliers and customers.
TBA raises awareness of its environmental strategy
through its management system, which places explicit responsibilities
and actions on individuals to promulgate the policy objectives
and targets internally. In addition, the portfolio of contracts
ensures that information about the environmental impact of contracted
goods and services (our indirect effects on the environment) are
clearly and explicitly stated so that customers are as well informed
as possible. Continuous improvement in the quality and accuracy
of this information is one of our key environmental objectives.
Stakeholders' views have been sought to a limited
extent; one of the actions required by the management system is
to elicit feedback from stakeholders. TBA has a system in place
which is aimed at meeting the ISO 14001 standard. TBA is not clear
at present whether there is any business advantage in seeking
formal certification for this system, although consideration has
been given to the possibility. The system requires formal regular
review, which is an internal procedure at present.
Several staff in specialised areas attend formal
training identified as relevant to their particular areas (e.g.,
use of CFCs, disposal issues). In-house training is part of the
on-going awareness programme for the environmental system.
One policy which has a significant environmental
impact is the placing of call-off contracts for goods for use
by buyers throughout the public sector. The existence of these
contracts, and the product choices made by TBA have a significant
impact on the buying patterns of the public sector. The extent
to which a product chosen by TBA has a greater or lesser environmental
impact will therefore be multiplied many times through the use
of these contracts.
The main achievements in greening TBA operations
are:
— establishment of the environmental
management system;
— provision of environmental information
relating to all contracts; and
— installing of energy saving lighting
systems.
TBA also reflects its environmental strategy
in its specification for goods and services.
TBA has supported the Energy Savings Trust scheme
by arranging for effective use of grants through value-for-money
contracts for installation work (in progress) and budget heating.
February 1998
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