Supplementary Memorandum submitted by
the Department for Environment, Food and Rural Affairs
A number of follow-up notes were requested following
the Secretary of State's and Brian Bender's evidence session on
the Establishment of DEFRA on 14 November. I attach notes on:
— progress of the "Going for Green"
and "Are you doing your bit?" programmes;
— organic milk: aid for conversion
to organic farming;
— Rural Payments Agency; and
— congress of European Agriculture,
Belfast.
The note on the implementation of the Rural
White Paper will follow as soon as possible.
17 December 2001
PROGRESS OF
THE "GOING
FOR GREEN"
AND "ARE
YOU DOING
YOUR BIT"
PROGRAMME AND
OTHER INITIATIVES
The Government's Sustainable Development Strategy
views increased awareness of sustainable development as a powerful
tool for change. The Committee requested information on DEFRA's
involvement in education and awareness raising, including the
"are you doing your bit?" Campaign and those of Going
for Green.
The "are you doing your bit?" campaign
The Deputy Prime Minister launched the "are
you doing your bit?" campaign in the spring of 1998. It informs
the general public of small changes that individuals can make
in their everyday lives that cumulatively could make a significant
impact on sustainable development issues including global climate
change, local air quality, and other environmental concerns such
as waste and water. It was designed as a cohesive "umbrella"
campaign which would bring together the twin themes of environment
and transport, re-enforce the work already carried out by local
authorities and campaigning groups (eg EnCams, the Energy Saving
Trust), and provide a focus for raising public awareness. The
campaign budget for 1998-2000 totalled £18 million. In 2001
£5 million of campaign funds were redirected to the Rural
Task Force and as a result campaign activity for 2001 has been
at a low level and focussed primarily on the interactive campaign
roadshow which toured 22 locations around England. Research carried
out at the end of 2000 (the height of the campaign) showed:
— campaign achieved a high degree of
recognition—90 per cent identified it and its approach;
— 70 per cent said campaign adverts
were convincing;
— marked effect on acceptance of small
environmental actions as the norm—70 per cent confirmed
intention start/increase frequency of their actions;
— 218 local authorities endorsed and
used campaign/brand, and over 300 businesses;
— campaign has been supported by major
commercial partners including Barclays, Dixons/Currys, Safeway,
Jet, Powergen, Yellow Pages etc; and
— over 106,000 visited to roadshow.
We are currently reviewing the scope of the
campaign following the formation of DEFRA and in light of the
new Department's aims and objectives, and DEFRA's lead role across
Government in promoting sustainable development. More information
on the campaign is at http://www.doingyourbit.org.uk/.
Going for Green
In 1995 the previous government launched the
Going for Green public awareness campaign. Environmental Campaigns
(EnCams) Limited was created in January 1998 to establish a "parent"
organisation encompassing all the activities hitherto undertaken
by Going for Green and the Tidy Britain Group. It has now absorbed
both these bodies and assumed responsibility for their programmes.
DEFRA is paying a core grant of £3.542 million to EnCams
for its work in 2001-02. Following a Financial Management and
Policy Review of support for EnCams, grant now assists two ministerial
priorities: regional support for "are you doing your bit?"
and work on litter and other local environment quality initiatives.
EnCams run a number of campaigns in schools, including the UK
component of the Europe-wide Eco Schools Programme, Active Citizenship
for Schools, and the ICT-based Green Code for Schools.
More information on DEFRA support for EnCams
can be found at:
http://www.defra.gov.uk/environment/encams/index.htm.
and on EnCams own school programmes at:
http://www.encams.org/pages/programmes/programmes
- education.asp.
Other Initiatives
DEFRA is involved in a number of other education
initiatives. We are sponsoring a WWF schools educational programme
and competition as part of the preparations for the World Summit
on Sustainable Development in Johannesburg, as well as many educational
initiatives assisted through the £4 million of our Environmental
Action Fund (£4 million). In our recent call for applications
to the Fund, education was one of only two key priority areas.
DEFRA's range of paper and internet resources provides a wide
range of free tools for education and awareness raising by schools
and others. It includes website materials and a guide to resources
for teachers. We are advised by the expert Sustainable Development
Education Panel, which has produced four annual reports making
a wide range of recommendations covering schools, further and
higher education, youth, the work place, the professions and the
general public. Further information on the Panel can be found
at:
http://www.defra.gov.uk/environment/sustainable/educpanel/index.htm.
GREEN MINISTERS
Between November 1999 and June 2001, the Green
Ministers Committee met five times. Following the General Election
in June 2001, the previously informal Committee was upgraded to
a Cabinet Sub-Committee of ENV, ENV(G), in recognition of its
important role in promoting sustainable development. This new
status of Green Ministers is an important step forward and ENV(G)
has a clear remit to tackle key cross Government sustainable development
issues from both a policy and operations perspective and deliver
greater progress. However, as a formal Cabinet Sub-Committee,
Cabinet Office rules dictate that information relating to the
proceedings of Cabinet Committees should not be disclosed.
Further information and future priorities for
the Greening Government Initiative, recently renamed "Sustainable
Development in Government", can be found in the Third Annual
Greening Government Report, published on 27 November 2001 and
available on the Government's sustainable development website
at:
www.sustainable-development.gov.uk.
ORGANIC MILK:
AID FOR
CONVERSION TO
ORGANIC FARMING
There is clearly a problem with the supply of
organic milk, though we hope it is a temporary one. From a position
last year of shortage requiring imports of organic milk, particularly
for processing, we now have oversupply. As a result of production
from producers who entered conversion in 1999 now coming on stream,
UK organic milk production is running at something like twice
the level a year ago. But there is reason to think that this can
be substantially dealt with as increased processing capacity needed
to meet continuing consumer demand is put in place and by import
substitution as contracts with overseas suppliers come to an end.
We have not seen an equivalent problem with other organic commodities.
As to using the OFS to put a brake on conversion,
there are a number of factors to take into account. First there
is a legal constraint. Because, as noted earlier, the OFS is part
of the ERDP any substantial change to it, such as altering eligibility
for aid, has to be agreed with the European Commission. There
is of course a mechanism for this but it is cumbersome and does
not facilitate the sort of prompt tap turning Mr Curry had in
mind. As things stand there is only one opportunity each year
for changes to be agreed and this year's opportunity has already
been taken for other necessary changes to the programme. That
said, it would be possible in future reviews to look at operational
changes which might cater better for quick adjustments being made.
We would also need to think carefully about
the effect of withholding conversion aid in one area on uptake
of conversion aid generally. Although clearly more extreme, the
closure of the OFS during 2000 has had a significant effect on
farmers' confidence in conversion and consequently the uptake
of conversion aid. There would need to be very careful presentation
of even a more limited restriction if we were to avoid a further
slump in uptake and failure to meet the objectives for the OFS
which are set in the ERDP.
Finally, before withdrawing conversion aid from
dairy farmers we would need to be sure that the current difficulty
was genuinely a long term structural problem and as noted above
there are grounds for believing that it may not be.
It should also be noted that after the Policy
Commission on the Future of Food and Farming has reported the
Government intends to draw up an Action Plan for Organic Farming
in conjunction with the organic food and farming sectors. The
Plan will set out the future direction for the sector and it will
need to consider the crucial issue of balancing supply and demand
for organic produce.
RURAL PAYMENTS
AGENCY
RPA was launched as an executive agency of DEFRA
on 16 October 2001. The Agency was accredited as an EU paying
agency on the first day of the 2001-02 EAGGF year. From the date
of accreditation until the date the Intervention Board for Agricultural
Produce (Abolition) Regulations 2001 came into force, the Agency
operated as a joint enterprise between the Intervention Board
for Agricultural Produce and the DEFRA under a single management
structure headed by the Chief Executive.
RPA International Audit completed a pre-accreditation
audit. The UK Co-ordinating Body submitted details to the Competent
Authority on 1 October with a recommendation for full paying agency
accreditation with effect from 16 October 2001. The Commission
have indicated that they are content, in principle, with this
recommendation.
The RPA senior management team is complete and
brings together significant government and private sector experience.
Business Governance
RPA's Ownership Board met for the first time
on 24 September and endorsed its Framework Document, Corporate
Plan (2001-02 to 2006-07) and Business Plan (for the first six
months of operation). The Corporate Plan includes a "strategic
staircase" that provides a forward-looking insight into the
projected development of the agency throughout the next six years.
It demonstrates the key stages in the change programme to realise
the benefits stated in the Business Case for creating a single
agency.
FMD
The work of the Operations Directorate and the
change programme has been severely impacted by the effects of
FMD. Over 500 RPA staff, including most of the Technical Inspectorate,
have been loaned to the various FMD control centres. The Livestock
Welfare (Disposal) Scheme (LW(D)S) has generated significant demand
on resources. In Reading, which is a downsizing site, action had
to be taken to counter the effects of additional work shortages
by accelerating the transfer of work to other sites. For example,
the Over Thirty Month element of the Slaughter Premium Scheme
(SPS) has been transferred to other RPA processing sites and it
is planned to transfer Milk Quotas to Exeter in the spring.
Communication
The unification of staff in the new agency is
an essential element to support the launch of RPA. The roll out
of the RPA brand, monthly issue of an in-house magazine ("Compass")
and a tour of all offices by the Chief Executive, HR Director
and Change Programme Director have helped the merger. In addition,
a culture change work plan will support the development of the
new agency.
The impact of FMD delayed the planned publicity
campaign aimed at farmers, traders and other stakeholders about
all aspects of the restructuring programme. A letter issued in
September 2001 from Lord Whitty formally announced the forthcoming
creation of RPA in the context of restructuring DEFRA in the regions.
RPA issued a more detailed introductory leaflet during the week
beginning 8 October to the same recipients. The RPA web site was
launched on 16 October. A successful inaugural RPA Industry Forum
took place in July to start the process by which representatives
from key customer groups will meet on a quarterly basis and input
into the on-going management and change programme of RPA.
Long term development of RPA—16 October
onwards
The development of the new agency as defined
in the Business Case will be undertaken within RPA for completion
by end of 2004. Progress towards the longer term organisational
design is being monitored against detailed programme plans.
The vision and structure of RPA envisaged in
the original "CAPPA" business case still hold good and
are being implemented. These are now encapsulated into RPA's Corporate,
Business and e-Business Strategies. The continuing impact of FMD,
and the extension to the LW(D)S to include the slaughter of light
lambs, has diverted RPA senior managers and staff onto business
critical work. However, progress has been maintained on the long
term development of RPA with no further slippage.
Programme Governance
ROB (formerly Restructuring Assurance Board)
meets quarterly to provide oversight for the overall restructuring
programme with RPA Leadership Group (LG) operating as the programme
board for the change programme. The programme governance structure
reflects the DEFRA-wide implications of the programme. Mark Addison
(Director General—Operations and Service Delivery) has been
appointed as overarching Senior Responsible Officer (SRO) for
the restructuring programme as a whole. Johnston McNeill is SRO
for the RPA Change Programme and Jane Brown is SRO for the ERDP
IT Programme (see paragraph 4.3.1).
OGC Gateway Reviews
The Change Programme successfully passed through
the OGC Gate 2 review (25-28 September, delayed from June 2001
by impact of FMD). OGC confirmed the sound basis of the revised
business case and that RPA could proceed with the launch of its
main systems procurement. OGC commended RPA on the quality of
work completed to achieve this milestone. The review also focused
on funding programme management and stakeholder support and involvement.
In passing Gate 2 the change programme team fully addressed the
following main issues arising from the first review:
— updating of business case to reflect
developments in the 14 months since the original business case
was completed;
— benefits management ie identifying,
optimising and tracking the expected benefits from the change
programme to ensure that they are realised; and
— de-risking the programme—the
programme remains high risk but this has been reduced by reviewing
the phasing and splitting the procurement into smaller work packages
with a number of projects launched outside of the main procurement.
Programme Management
The Change Programme is adopting best practice
in all areas of programme activity. In particular, it follows
OGC guidance on Managing Successful Programmes and applies PRINCE
2 methodology to all projects as they are initiated. Relevant
training is being provided for senior management and project leaders.
The Change Programme maintains a current record of the lessons
from major government IT projects and how RPA is addressing the
learning points.
RPA continues to address programme and business
risk, and a top-down strategic risk review team led by the Permanent
Secretary supports regular reviews of risk by the Programme team,
LG and ROB. One area of current concern is industrial action within
DEFRA which poses a risk to the Change Programme and to the achievement
of ongoing performance targets.
Procurement
The Procurement Strategy has been agreed allowing
RPA to launch the OJEC notice for its main systems procurement.
Ministers have been advised of progress. RPA has tested market
opinion, through supplier meetings, to test the appropriateness
of the emerging procurement strategy and to take account of alternative
viewpoint. The objective being to ensure a robust deliverable
procurement which maximises market interest. RPA has launched
a single project to produce a full set of Interim SSRs to enable
potential suppliers to have a clear understanding of the scope,
scale and nature of the business processes and new systems. In
addition, a draft final SSR for IACS land based schemes has been
produced as an example of the required format.
Benchmarking
RPA have made visits to other Government Departments
to learn from their experiences of outsourcing IT systems, to
other EU paying agencies, and to call centres. The call centres
visited included "Call First" which is the National
Farmer's Union centre that services a similar client base to RPA.
RPA attended the Conference of EU paying agencies and made a well
received presentation at the last EU Panta Rhei meeting. Further
benchmarking visits with EC paying agencies will be scheduled
before the New Year to assist with the development of the final
SSRs.
Electronic forms
The IACS e-forms project for 2001 was completed
at the end of July. Work to finalise the Post Implementation Review
and analysis of more than 3,300 returned feedback questionnaires
is near completion. Questionnaires were sent to those who 836
who submitted electronic forms and those who registered an interest
but did not submit an electronic form. The major obstacles to
take up in 2001 were the impact of FMD on off-farm travel and
the process of obtaining digital certificates. Lessons will be
learnt from this exercise to achieve higher levels of take up.
Despite the low levels of take up, a solid foundation has been
laid on which to base the delivery of electronic forms. RPA is
currently reviewing the best way to take forward the use of e-forms
for 2002.
It is recognised that incentives may be required
to encourage customers and their representative groups to submit
their claims electronically. Funding of £2.25 million is
set aside in the Ring Fence Fund for this purpose and wide variety
of options will be considered eg training, joining up with existing
initiatives such as UK Online or business links.
Business Continuity
Risk management and the maintenance of business
continuity was always recognised as a major component of the restructuring
programme. A dedicated Business Continuity Directorate was established
at a very early stage and, despite the risks imposed by FMD and
more latterly by industrial action, Phase 1 of the restructuring
process is on course for completion by end March 2002. This phase
has included the transfer of work between RDS sites to ensure
co-terminosity with Government Office boundaries, the downsizing
of RPA operations at Bristol, Worcester and Reading (ex RSC site)
and the bringing into play of Newcastle Lancaster House as a multi-processing
site capable of handling both ex-MAFF and IB schemes. Further
work and contingency planning is now underway (Phase 2) to complete
the downsizing programme by 2003-04 and the establishment of the
new RPA sites. All farmers and traders have recently been written
to advise them of the transfers of work between sites and a series
of local rate (0845) numbers has been established to ensure that
customers whose work has moved considerable distances from downsizing
sites are not disadvantaged.
CONGRESS OF
EUROPEAN AGRICULTURE:
BELFAST
During her evidence session, the Secretary of
State referred to a Farming Conference in Belfast and in particular
to a speech given by a delegate from New Zealand. The Conference
was the Congress of European Agriculture, held in Belfast on 24-26
September 2001 and the speech about New Zealand farmers was given
by Tom Lambie, former President of the Federated Farmers of New
Zealand. The event was organised by the NFU. A copy of Mr Lambie's
paper is attached [not printed].
The following delegates also addressed the conference:
24 September 2001—Welcome addresses
Douglas Rowe—President, Ulster Farmers
Union
Tom Parlon—President Irish Farmers
Association
Ben Gill—President of the CEA
Brid Rogers—Minister of Agriculture
and Rural Affairs, NAWAD
Europe from a global perspective
Anne Veneman—US Secretary of Agriculture
Keeping a balance in the food industry
Franz Josef Radermacher—Ulm University
Elisabeth Gauffin—Arla Foods
Chris Pomfret—Frozen Foods, Birds Eye
Walls, Unilever (UK)
Jan Krzystof Ardanowski—KRIR National
Council of Agricultural Chambers
Linda Fulponi—Food, Agriculture and
Fisheries Division OECD
Mario Campli—President of COGECA
25 September 2001—The European approach
David Bryne—EU Commissioner for Health
and Consumer Affairs
Mats Lederhausen—Macdonald's International
Jeanne Brugere Picoux—National Veterinary
Institute
Manfred Botsch—Director Federal Office
of Agriculture
Kaul Nurm—Estonian Farmers Federation
Fiona Reynolds—National Trust
Private forest ownership for sustainable management
in a global perspective
Martin Lillandt—Finnish Farmers Union
Karl Giesen—Arbeitsgemeinschaft Deutscher
Waldbesitzerverbande
Farmers and consumers working for mutual benefit
Marie Jose Niocoli—Que choisir?
Stefan Mikinovic—Agrarmakt
Dario Olivero—Confederazione Italiana
Agricoltori
Laszlo Zadori—VHT Livestock and Meat
Council
Eckhardt Wilkins—CEA European Insurance
Committee
Nick Way—CLA Country Landowners and
Businesses Association
John Witchell—Royal Institute of Chartered
Surveyors
26 September 2001—So what are the answers?
Franz Fischler—EU Commissioner for
Agriculture and Fisheries
Jerzy Plewa—Under Secretary of State
for Agriculture
Gerard Viatte—OCED Food Agriculture
and Fisheries Directorate
Gretchen Stanton—WTO Agriculture and
Commodities Division
Jean Paul Bastian—Vice President of
COPA
Mario Campli—President of COGECA
Tom Lambie—New Zealand Farmers Union
Miroslav Jirovsky—President of the
Czech Association of Agricultural Co-operatives and Enterprises
Ben Gill—President of the CEA.
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