Memorandum by the Department for Culture,
Media and Sport (DCMS) (CAB 33)
EXECUTIVE SUMMARY
The purpose of this memorandum is to provide
the Committee with information to assist its inquiry into CABE.
The memorandum consists of:
— Introduction; giving background information
on the origins of CABE and a general outline of its activities
and the composition of its Board, including:
— CABE's advice
— Design Review
— Enabling
— Policy
— Research
— Regions
— Skills
— Education
— Space
— CABE's overall priorities for investment
and development, including CABE's funding
— The future role for CABE
Our conclusion is that CABE is a successful
body with a good future before it, and our confidence in its abilities
is demonstrated by current proposals to put CABE on a statutory
basis through the Clean Neighbourhoods Bill.
INTRODUCTION
1. The Commission for Architecture and the
Built Environment (CABE) is an executive Non-Departmental Public
Body set up by DCMS in September 1999 as the national champion
for high quality buildings, places and spaces. CABE succeeded
the Royal Fine Art Commission (RFAC), and has a wider remit than
the RFAC as a champion for architecture.
2. CABE was established in response to the
Government's 1998 Comprehensive Spending Review that concluded
that efficiency and effectiveness benefits would be gained from
a series of structural changes to the way the Government provides
funding and support to culture, media and sport. One of these
structural changes included the "creation of a new national
body with additional funding to champion architecture, taking
on the Royal Fine Art Commission's current design review role,
and the Arts Council's granted programme for architecture, but
having a wider role than either existing body" (The Department's
Spending Review and Response—A New Cultural Framework, December
1998).
3. DCMS acts as the principal sponsor department
for CABE, which was set up as a company limited by guarantee.
It may have up to 16 Board members or Commissioners, including
a Chairman, who are appointed in accordance with the rules of
the Commissioner for Public Appointments by the Secretary of State
for Culture, Media and Sport. Since ODPM became a joint funder
of CABE in 2003, appointments are made in consultation with the
Deputy Prime Minister.
4. The current complement of CABE's Board
is 14 Commissioners. DCMS is currently recruiting two new Commissioners,
including a Chairman following the departure in July of the first
Chairman, Sir Stuart Lipton. The new Commissioners will be announced
in due course when they have been appointed.
5. CABE's purpose is to provide an independent
voice to stimulate debate and promote the very best of architecture
and urban design. Its function is to promote high standards in
the design of buildings and the spaces between them, and to help
and offer advice to all of those who create, manage and use the
built environment. CABE seeks to achieve its aims through a range
of programmes and activities. These are described below.
CABE'S
ADVICE
6. It is not mandatory for CABE's opinions
to be acted upon. In its Design Review work, it provides advice
to planning authorities in the capacity of a "non-statutory
consultee" within the planning process. A letter from DETR
to local planning authorities of 15 May 2001 (published on ODPM's
website http://www.odpm.gov.uk/stellent/groups/odpm-planning/documents/page/odpm-plan-026682.hcsp)
sets out the circumstances in which CABE should be consulted about
planning applications. CABE's opinions remain advisory; decisions
are left to the planning authorities, who can choose not to follow
CABE's advice.
DESIGN REVIEW
7. Design Review forms a key role in achieving
CABE's objectives. During 2003-04 over 600 schemes were referred
to CABE in its capacity as a non-statutory consultee within the
planning process in England. CABE offered advice on 480 of these
schemes, a 25% increase on the previous year. The aim of the of
the Design Review programme's work is to help create buildings
and places which, regardless of their style, work better, feel
better, and look better.
7.1 Design Review reviews proposals that
are referred in accordance with the criteria described in the
DETR letter of 15 May 2001, which are generally ones that will
have a significant impact on their environment. The Design Review
Committee (DRC), a sub-committee of CABE, offers free advice to
planning authorities and others on the design of selected development
projects in England. It is interested not only in big and strategic
projects, but also those which will have a significant impact
at a more local level, or for, example, set standards for future
development. At any given meeting projects are reviewed by six
to eight committee members (from a panel of 24), together with
members of the Commission itself. CABE Commissioner Les Sparks
currently chairs the Committee. The intention is that Committee
members should be distinguished practitioners in a range of disciplines:
architects, landscape architects, artists, engineers, urban designers,
property developers and others. CABE has just advertised for new
members of the DRC.
7.2 There are three tiers to the work of
Design Review. Significant projects are considered by the DRC.
The DRC normally meets monthly and this is the only aspect of
Design Review that involves people attending from outside CABE.
Schemes in the next tier are reviewed in what is known as a "pin-up
meeting". This meeting is held fortnightly and is under the
direction of the Chair of Design Review with other Design Review
panel members and CABE officers in attendance. The third tier
of reviews is undertaken at a weekly meeting with the Chair of
Design Review and CABE officers. The criteria that are applied
to determine whether a scheme should be seen by the DRC, pin-up,
or weekly meetings follows general principles such as size, location
and type of scheme and whether the scheme could be perceived as
novel or contentious.
7.3 CABE may be made aware of projects through
a formal consultation by a planning authority after a planning
application has been submitted. However, CABE strongly encourage
pre-application discussion, and most projects seen by DRC are
reviewed before an application is submitted. CABE are equally
happy to be approached by the local authority, or directly by
the developer or client or their consultants. Increasingly, CABE
is approached directly by applicants at the early stages of a
project and asks planning authorities to encourage this. Since
CABE's advice usually concerns broad issues of design strategy
it is likely to be of most value at an early stage while design
issues are still fluid. The fact that pre-planning consultation
is confidential allows any reservations to be aired privately
and overcome before a project goes public.
7.4 CABE's Design Review programme has a
finite capacity and it is not able to offer advice on all of the
projects about which it is consulted. CABE does prioritise cases
where there is a direct and explicit approach from an applicant
or planning authority which makes clear that its advice is actively
being sought. The DRC also undertakes thematic design audits of
particular types of development, for example high-density housing
projects.
ENABLING
8. Through its Enabling programme, CABE
provides support to a wide range of public and private organisations.
The Enabling programme offers advice to clients who aspire to
quality but would welcome technical assistance on matters such
as brief development, or choice of procurement route. The programme
aims particularly to enable schemes where good design can help
counter social exclusion, for example by enhancing service delivery
or providing uplifting architecture in a deprived area. The programme's
work is diverse and has included involvement in the design and
development of early years learning facilities, local authority-led
regeneration projects and some private sector-led developments.
CABE is also involved in a number of central government programmes
which relate to capital spend on new facilities.
POLICY
9. CABE aims to help public bodies towards
improved performance as a commissioner of major building projects,
so that public buildings become beacons of design quality. CABE
has had extensive and constructive discussions with a range of
Government departments and agencies, particularly in the health
and education sectors. In this regard CABE has established excellent
links with the Office of Government Commerce (OGC). In October
2002 CABE and the OGC published the joint report Improving Standards
of Design in the Procurement of Public Buildings, which sets out
a list of recommendations to ensure further improvement in the
design quality of building and infrastructure projects procured
by the public sector.
9.1 This report is linked to the Better
Public Buildings Initiative, managed by CABE and DCMS. The Better
Public Buildings Initiative aims to encourage the adoption of
quality design principles in all new buildings, regardless of
size and cost. Significant progress has been made over the last
four years. Each Department now has a minister and senior official
charged with championing design on projects delivered centrally
and by agencies. Design Champions have been appointed in
local authorities, Local Educational Authorities, healthcare trusts,
housing associations and Regional Development Agencies. A wide
range of practical guidance has been published to support
the initiative, including Better Public Libraries.
9.2 Established in 2001, the Prime Minister's
Better Public Building Award celebrates schemes that build a better
life for the public. The PM's Award is a special category within
the British Construction Industry Awards (BCIA). It is jointly
sponsored by CABE and the OGC, and it is administered by CABE.
The Award has gone from strength to strength, with the numbers
of applicants almost doubling in 2004 (from 70 to 137). The winners,
including The Learning Centre in Bristol and Bournemouth Library,
clearly demonstrate how public buildings can contribute directly
to the social, economic and physical regeneration of our towns,
cities and neighbourhoods.
RESEARCH
10. CABE is developing a research capability
to underpin its policy work and provide evidence of the wider
socio-economic benefits of good architecture and urban design.
REGIONS
11. This programme works to ensure that
CABE's activity is responsive and relevant to local issues in
different parts of the country. In 2003-04 CABE's Regional Development
Fund has awarded £2 million to 17 architecture and built
environment centres across England.
SKILLS
12. This is a new CABE unit within the Learning
and Development Directorate which exists to build capacity and
competence across the full range of professions and agencies that
change and manage the public realm. CABE Skills has been created
to tackle the acknowledged skills deficit in the built environment
sector. CABE Skills priorities for 2004-05 include, working with
ODPM and other strategic and local partners to establish a long-term
national skills development programme in urban design and development;
encouraging greater representation of women, black and minority
ethnic groups and disabled people in the built environment professions;
enhancing skills and knowledge concerned with improving green
spaces.
EDUCATION
13. Launched in October 2003, CABE Education
aims to make sure that young people are aware of the value of
well designed buildings and spaces. CABE Education has started
to make a significant impact to young people's education, building
an education network with almost 900 individual members and producing
educational resources for every age group from Key Stage 2 to
A' Level. CABE has also supported and extended a network of 17
architecture and built environment centres around the country,
engaged in community participation, young people's education,
project advice and skills development.
SPACE
14. CABE Space aims to bring excellence
to the design and management of public spaces in our towns and
cities. Through CABE Space, CABE is centrally involved in supporting
the delivery of the Government's "Cleaner Safer Greener"
campaign and the promotion of the Liveability agenda. This is
done by helping local authorities improve the quality of parks
and public spaces and their management and maintenance, and by
encouraging the involvement of local communities.
Cabe's Overall Priorities for Investment and Development
15. Over the past five years CABE has grown
in size. It has succeeded in raising the profile of high quality
design in the built environment and has placed high quality architecture
and urban design on the agenda right across central government.
The formalisation of ODPM's joint funding after the 2002 Spending
Review has led to the creation of CABE Space, and is an indication
of how CABE's achievements have been widely recognised in Government.
16. The Sustainable Communities Plan published
in February 2003 by ODPM, set out a role for CABE in raising the
quality of communities through earlier and better attention to
design and urban design. Therefore in support of the delivery
of the Sustainable Communities Plan ODPM jointly funds CABE with
DCMS by way of grant under Section 126 of the 1996 Housing Grants,
Construction and Regeneration Act, and under Section 153 of the
Environmental Protection Act 1990.
CABE'S
FUNDING
17. The table below gives details of CABE's
DCMS and ODPM grant funding from 2000-01 to 2005-06:
| 2000-01 | 2001-02
| 2002-03 | 2003-04
| 2004-05 | 2005-06*
|
| DCMS | £1.3 million |
£1.53 million | £3.53 million
| £3.53 million | £4.03 million
| £4.53 million |
| ODPM | | |
£0.71 million | £7.35 million
| £6 million | £6 million
|
| | |
| | | |
*Provisional figures
18. CABE has a three year funding agreement with DCMS
for 2003-04 to 2005-06. CABE also has a separate funding agreement
with ODPM for 2004-05. CABE's funding agreement with DCMS was
drafted to reflect its departmental strategic priorities of Children
and Young People, Community, Economy and Delivery. It contains
key strategic outcomes reflected in a series of targets and milestones,
and supported by risk management analysis and an agreed process
of review and evaluation. The targets are challenging and linked
to DCMS and ODPM objectives. CABE's strategic outcomes, linked
to DCMS's strategic priorities are:
(i) Children and young people—Enhancing access
to a fuller cultural and sporting life for children and young
people and giving them the opportunity to develop their talents
in full;
CABE Strategic Outcome: To ensure that all schools and further
education colleges have access to built environment teaching materials
that can be readily used within the national curriculum.
(ii) The wider community—Opening up our institutions
to the wider community to promote lifelong learning and social
cohesion
This priority is shared with ODPM.
CABE Strategic Outcome: To give people the opportunity to
become more involved in the design and management of public green
space, including parks and play areas, and to drive up management
standards.
(iii) The economy—maximizing the contribution
which tourism and the creative industries can make to the economy;
This priority is shared with ODPM
CABE Strategic Outcome: To develop a clear structure for professionals
responsible for the built environment to develop their skills
to respond to the public's desire for higher quality buildings
and spaces.
(iv) Delivery—modernising delivery by ensuring
our sponsored bodies set, and meet targets which put the customer
first.
CABE Strategic Outcome: To be confident that all new schools
and new health-care buildings are being purchased on a true best
value basis, that prioritises quality as well as price.
(Further information on CABE's strategic outcomes, targets
and milestones are contained in the 2003-04 to 2005-06 DCMS/CABE
Funding Agreeement. Details of CABE's performance against its
targets is given in its Annual Report and Accounts 2004.)
THE FUTURE
ROLE FOR
CABE
19. In August CABE published "Transforming Neighbourhoods",
its new Corporate Strategy for 2004-07. This sets out its vision
of what it will have achieved by 2010, its priorities, and how
it will evaluate its performance. When its 2004 Spending Review
grant in aid allocations are known for 2005-08 later this year,
DCMS will prepare a new funding agreement with CABE. This will
cover the financial years 2005-08, and will set out revised key
outcomes and a new series of targets and milestones against which
CABE's progress will be assessed.
20. In March 2004 DCMS, recognising that there were perceptions
of conflict of interest attached to the work of CABE and wishing
to preserve public confidence in CABE, asked AHL Ltd to undertake
an independent audit. AHL examined CABE's compliance with the
Nolan Principles, the commercial interests of the Chairman, the
commercial relationship between him and the Commissoners, and
the way in which conflicts of interest are disclosed and managed.
In June the AHL report into conflict of interest issues at CABE
was published (available under "Publications" at www.culture.gov.uk).
The report noted that CABE had taken reasonable steps to ensure
that it complies with Nolan Principles, but pointed to areas where
procedures could be enhanced to protect the public perception
of CABE's impartiality. It made 28 recommendations relating to
the application of the Nolan principles and to the improvement
of procedures for managing conflicts of interest (including perceived
and potential conflicts). All the recommendations of the AHL report
were accepted by DCMS Ministers, and most of them have now been
or will shortly be implemented by DCMS and CABE.
CONCLUSION
21. As regards CABE's status, it was always the intention
to put CABE on a statutory footing and this would have been achieved
by the Culture and Recreation Bill had it finished its Parliamentary
passage before the 2001 general election. However, another opportunity
has arisen because of the proposed Clean Neighbourhoods Bill,
about which DEFRA has recently consulted the public ("Clean
Neighbourhoods", July 2004). If the Clean Neighbourhoods
Bill goes ahead, it is expected to complete its Parliamentary
passage in early 2005. This acknowledges DCMS's confidence in
CABE's future.
22. CABE has established a reputation for being a dynamic,
confident and authoritative organisation. This reputation is due
to the considerable range of expertise and talent CABE has at
its disposal. CABE's Commissioners and staff comprise highly experienced
professionals and specialists with wide ranging interests in the
built environment. CABE's stakeholder review in 2004 identified
that CABE is recognised as a positive, innovative and motivated
organisation, with Design Review and Enabling being particularly
well received by respondents.
— 86% of clients who had submitted a scheme to Design
Review Committee said they found the process useful and 77% had
altered their design in the light of comments made by CABE.
— 75% of clients who had worked with a CABE Enabler
believe that this assistance will mean they have a higher quality
building or project at the end of the process.
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