Ninth Report - Reducing Regional Disparities
in Prosperity (HC 492-I) (Cm 5958)
Recommendation:
5. Gross Value Added per head is not an adequate
indicator for this Public Service Agreement target. We recommend
that regional prosperity should instead be measured by a basket
of indicators. This would explicitly take account of the range
of factors that determine regional prosperity, using different
indicators for each - productivity, disposable income, employment
and unemployment. Quality of life should also be taken into account.
The Secretary of State for Trade and Industry's proposal of a
balanced scorecard approach should be taken forward. Using a basket
of indicators, each derived from a different source, also reduces
the risk of relying on a single source of poor quality data. We
recommend that ODPM, DTI and the Treasury consider the regional
performance indicators to measure quality of life set out in Regional
Quality of Life Counts as a potential basis for improving
the measurement of performance against this target. (Paragraph
36).
Government Response:
GVA is an internationally accepted method of measuring
economic output. It encapsulates a very diverse range of outputs
including the activity of employees and the self-employed, and
the profits of companies, in addition to the activity of central
and local government and households. Due to the time lag in obtaining
GVA data, a basket of more timely supporting indicators, namely
business surveys, employment statistics, unemployment rates, earnings
growth and VAT registrations (plus any other relevant indicators
which become available at the regional level) will be used to
provide interim assessments of performance at six-monthly intervals.
The Government has a range of PSA targets which aim to improve
the quality of life for people in England. For example ODPM's
target to bring all social housing into decent condition by 2010;
Defra's target to promote sustainable management and prudent use
of natural resources domestically and internationally; and the
Home Office target to reduce crime and the fear of crime, tackle
youth crime and violent, sexual and drug-related crime, anti-social
behaviour and disorder, increasing safety in the home and public
spaces. These will have their own monitoring arrangements.
Question:
The Government is intending to publish data on
regional prices and inflation to provide cost-effective estimates
of real GVA. When will the first data be published and how frequently
will it be updated?
Answer
The ONS published (on its website) a study showing
relative regional price levels on 13 November. A News release
was also published referring to the article.
These comparisons are based on a one-off exercise
in 2000 which produced approximate comparisons of price levels
for the nine English regions, Wales, Scotland and Northern Ireland
which has been partially updated in 2003 to provide more up-to-date
results. The 2000 exercise involved a special analysis of RPI
data: this has been repeated. It also involved a special price
collection survey for goods and services where RPI data were not
suitable for price level comparisons:
the results on regional price level differentials from this survey
have been carried forward to the 2003 analysis.
Prices have also being collected for those categories
of expenditure where price level comparisons were not produced
in 2000 (in particular, insurance, mortgage interest payments,
house depreciation and council tax).
It needs to be noted that the figures should not
be used:
- for the calculation of regional inflation
rates since 2000. The figures reflect changes in the basket between
2000 and 2003 and also have a broader coverage including the inclusion
of owner-occupier housing costs
- as estimates of differences in the cost-of-living.
For example, no attempt has been made to price different items
in different regions to reflect differences in the individual
items purchased within each category of expenditure.
The ONS plan to update the survey during 2004,
providing estimates in relative regional price levels on a consistent
basis. These will be published in Autumn of 2004.
Longer term plans for the calculation of price
level comparisons will be formulated after the publication of
the Allsopp review into the needs for regional economic data.
Regional Inflation rates
The ONS plans for regional inflation rates will
take into account the outcome of the first report from the Allsopp
Review which was published on 10 December. There are a number
of reasons why the Government do not currently produce regional
inflation figures:
Data limitations:
- RPI data are not suitable for the compilation
of reliable regional inflation indices: sample sizes for locally
collected prices would need to increase substantially; source
data for the weights may have to be significantly enhanced to
ensure that detailed regional expenditure categories are weighted
appropriately
- many of the centrally compiled indices (e.g.
housing, cars, personal computers) are designed as national indices.
It could be difficult to decompose such data into appropriate
regions.
- the majority of product descriptions used
for the items priced in the RPI are not
sufficiently well-defined for price level comparisons where
very detailed descriptions are required to ensure like for like
comparisons.
Computing issues
- The ONS computer systems are not
sufficiently flexible to produce regional indices. ONS plan
to develop a new computer system but this is at the very early
stage and speed of progress will depend on further funding.
The Government would need to ensure the need justified
the cost before embarking on the compilation of regional inflation
rates.
Recommendation:
Census 2001
8. There is an urgent need to improve the alignment
between different sources of population data. We recommend that
in the small number of authorities where there remains a problem
between the Council and ONS about the size of the population,
following the 2001 Census, a data matching exercise should be
undertaken by an independent third party. This should be completed
in time to feed in to next year's Local Government Finance settlement
and ONS should be bound by the result. (Paragraph 44).
Government Response:
ONS are currently carrying out matching exercises
to compare Census results with administrative datasets in Westminster
and Manchester. These are key research projects which will inform
future developments. ONS aim to publish a first report of the
preliminary results of these exercises in late 2003. ONS are also
concluding other studies to increase the understanding of the
gap between the final 2001 census based population estimates,
and the earlier estimates based on the census of 1991. If the
evidence suggests that significant inaccuracies have occurred
in the 2001 Census, this would contribute to the ONS reassessment
of the population estimates that have already been published.
One key finding from the quality assurance studies carried out
to validate the 2001 population census was the great variability
in the association between administrative counts and census estimates
at local authority level. The experiences of the past two years
led to the conclusion that the design of statistical sources (including
the 2001 census), has placed insufficient emphasis on enabling
differences between sources to be understood. The National Statistician's
report on demographic statistics A demographic statistics
service for the 21st century) announced a series of measures
to improve the quality, timeliness and relevance of population
statistics to meet the needs of local, regional and national users.
Question:
The ONS is carrying out matching exercises to
compare Census results with datasets in Westminster and Manchester.
The first results were expected to be published in 'late 2003'
. When are they to be published?
Answer:
Provisional results of the Census Matching Project
for Manchester were released on 4th November and are available
on the National Statistics website:-
http://www.statistics.gov.uk/downloads/theme_population/InterimReport_CensusMatching.pdf
These results necessitated a revision to the mid-year
population estimate for Manchester for 2001, and this revised
estimate was also released at this time. There is a requirement
for further investigation of some issues surrounding the Manchester
results before the exercise is completed. This additional work
will include an element of fieldwork, and will be completed by
Spring 2004.
The Westminster exercise has also identified a
number of issues which require further analysis. ONS are establishing
a programme of work to resolve these issues, which will also include
an element of fieldwork, and the results of the exercise will
be published once this work has been completed.
Recommendation:
16. Disappointingly, the Government could not provide
a regional breakdown of expenditure on programmes targeted at
regions. (Paragraph 57).
Government Response:
The policies mentioned in A Modern Regional Policy
for the United Kingdom are not a definitive or comprehensive
list of policies that support regional economic development. As
the Government said (ODPM, RRD07 (c)), detailed regional breakdowns
of public expenditure are not currently available for 2002-03.
Regional analysis of the England Rural Development Programme (ERDP)
1 will be available in 2005 when a new programme management system,
currently under development, is planned to be introduced. The
budgets listed are managed or otherwise influenced on behalf of
Government by the Government Offices for the Regions (except ERDP
and RSA), together with other Government programmes which total
about £7 billion.
As part of the next spending review, Treasury will
be asking Departments to produce a regional breakdown of their
spending plans The work by Professor McLean (see recommendation
21) provides a thorough analysis of methodologies for producing
regional breakdowns of outturn expenditure information. The lessons
of that work can be used to inform the way that Departments produce
regional analysis of their spending plans.
Recommendation:
22. The Government should publish Professor McLean's
study on the flow of public expenditure to the regions by the
end of July 2003. (Paragraph 69).
Government Response:
The study was published on 5 September.
Question:
How is the work of Professor McLean on the flow
of public expenditure to the regions being reflected in producing
regional breakdowns of spending and revising the proportion of
funds distributed to each region?
Answer:
Professor McLean's study was focused on improving
the quality of regional spending data. It will help to inform
estimates of regional spending published in future Public Expenditure
Statistical Analyses (PESA).
Recommendation:
27. We welcome the Government's announcement of reviews
of the links between universities, industry and the RDAs and look
forward to practical measures being implemented as a result, targeted
at the less prosperous regions. (Paragraph 85).
Government Response:
The Lambert Review has been asked to consider a range
of issues around university business collaboration. They published
a Summary of Consultation responses and Emerging Issues
paper on 14 July 2003. In it they identified several issues
relating to the regional agenda and the potential for RDAs to
promote business-university collaboration. The Lambert Review
will be considering these issues further and making recommendations
in its final report in October.
Question:
The Lambert Review on university-business collaboration
was supposed to be published in October- when will it be published?
Answer:
The outcome of the review was published on 4 December.
Recommendation:
31. We recommend that the UK Government should adopt
the approach used by the German Federal Government where a proportion
of the transport budget is allocated on regional development grounds,
rather than by the usual criteria (Paragraph 97).
Government Response:
The Government takes into account a wide range of
factors in reaching decisions on transport investment. Decisions
on the allocation of transport resources necessarily reflect the
Government's key transport priorities set out in the Ten Year
Plan for Transport - to improve public transport, tackle road
congestion, reduce road casualties and reduce the impact of transport
on the environment. They also reflect transport's contribution
to other Government priorities, including economic growth. The
process for making transport decisions - the New Approach to Transport
Appraisal - is designed to ensure that economic and regeneration
benefits are taken into account alongside other criteria such
as safety, environmental impact, accessibility and integration.
This ensures full consideration is given to addressing regional
economic growth in taking decisions on transport issues, and the
economic benefits to regions of major transport schemes has been
one of the key factors when making decisions to invest in particular
schemes.
Question:
The DfT's "New Approach to Transport Appraisal"
is designed to ensure that economic and regeneration benefits
are taken into alongside other criteria such as safety and environmental
impact. Does the ODPM have any evidence that the regional balance
of funding now reflects this new approach?
Answer:
The Economic Impact Report was published in September
2003. It provides improved advice as to how employment effects
should be taken into account in regeneration areas, which will
be used by central government and local authorities on a scheme
by scheme basis. The report does not aim to influence funding
allocations at a higher level. It is too early to take a view
on the effect the report has had.
Recommendation:
34. We welcome the Government's commitment to review
the number of civil servants based in London. This will however
only contribute to a reduction in the gap between regions if they
move to the least prosperous parts of the country. The Government
may find it very hard to persuade relatively low paid public sector
workers to move out of London if it abolishes national pay scales
at the same time. (Paragraph 103).
Government Response:
As the Committee has noted, part of the remit of
the Independent Review of Public Sector Relocation ("the
Lyons Review") is to consider the relocation of civil service
and other public sector workers in the light of the need to improve
the regional balance of economic activity. The Committee suggests
that the review will only contribute to the reduction in the gap
between regions if they move to the least prosperous parts of
the country. The economic impact of relocation on specific regions
is not easy to quantify, and the Relocation Team has commissioned
consultants to consider this. The choice of location is for Departments,
depending on their business needs, and individual business cases,
but the Review Team will be looking for evidence of benefits to
regions or specific locations when assessing the proposals Departments
make. As many of the country's severely deprived areas (i.e. in
receipt of Neighbourhood Renewal Funding) are urban conurbations
where there is already a significant government presence, it is
not anticipated that this will represent a particular difficulty.
The Committee also suggests that regional pay policies may make
it more difficult to persuade post-holders to move. Pay arrangements
will however be only one part of relocation packages which will
be for discussion once this review has concluded.
Questions:
a) The Lyons Review has produced initial ideas.
When do you expect the final report to be published? How many
civil servants do you expected to be relocated out of London as
a result of Sir Michael Lyons' recommendations?
Answer:
Sir Michael is planning to publish his final report
in March 2004. We will move 20,000 civil service jobs out of
London and the South East for the benefit of the regions and
nations of the UK.
b) What progress has the DTI made in its business
support review? When does it expect to publish the results?
Answer:
The Secretary of State for Trade and Industry,
Patricia Hewitt, announced to the House of Commons on 17 July
2003 (column 504W) the progress of Business Services information
which the DTI is implementing following the
the outcome of the Review. The progress made on
business support is as follows:
- The DTI is close to completing its business
support transformation
- Four new DTI Business Support Products are
up and running. The four products (launched in 2003) are:
- Grant for investigating an innovative
idea
- Grant for Research and Development
- Knowledge Transfer Partnerships
- Small Firms Loan Guarantee
- DTI have also launched the new Business Support
directory, covering
DTI, RDA and OGD business support
- Since November 2002, we have closed 39 old
schemes to new business
- A new Investment Committee is up and running,
and has made
recommendations to the SOS on the new set of products
- DTI have transformed the way the department
works to make the process
of running the new
products much more efficient
- DTI have implemented a new tool to analyse
data on the efficacy of
the new products
Further work to be done:
- DTI are planning to launch the six remaining
DTI products next April.
- Two of the innovation products will be used
to launch the
nanotechnology initiative slightly earlier, in
February, with other
technology initiatives coming on line between
October 2004 and April 2005.
- Between now and April 2004, are working on
the marketing; monitoring
and evaluation; delivery; and training of delivery
and access channels.
- The products that will be launched in 2004
are as follows (names are
indicative only):
- Support for Investment in Assisted Areas
- Support for Knowledge Transfer Networks
- Support for collaborative research and development
- Support to disseminate new and existing best
practice to businesses
- Support for business to implement best practice
activities
- DTI are also currently consulting on a possible
sixth product i.e. Small Business Investment Companies (SBICs).
These will help to plug the funding gap between business angel
and venture capital investment for high growth business proposals.
c) How has the Government strengthened the links
between Government Offices and other institutions to ensure better
links between regional strategies and funding and local neighbourhood
initiatives?
Answer
The Neighbourhood Renewal Unit (NRU), Regional
Co-ordination Unit (RCU) and Government Offices (GOs) are currently
developing a new GO performance management system for neighbourhood
renewal. This new system will help clarify the roles and responsibilities
of the NRU and GOs in delivering neighbourhood renewal and ensure
that performance is monitored and reviewed in a more systematic
and evidence based way. If successful, this approach will be rolled
out to local neighbourhood renewal partnerships (LSPs, NDCs and
CENs) to take account of their own performance management arrangements
In fulfilling the Area Based Initiative (ABI)
Gateway role, the RCU works with Departments and NDPBs to ensure
that initiatives are carefully designed to achieve their goals.
By drawing on the expertise of the GOs, the RCU offers advice
on effective funding arrangements, appropriate targeting, ways
to minimise bureaucracy, mainstreaming opportunities, links to
other initiatives, and many other issues.
As a result of the ABI review, the Regional Co-ordination
Unit and Government Offices have encouraged the setting up of
Single Local Management Centres (SLMCs) in each of the GO regions.
The SLMCs aim to harmonize systems, simplify processes, join
up funds and, where relevant explore creating a single application,
monitoring, appraisal and evaluation system using a 'bottom-up'
approach. Whilst the reduction of burdensome bureaucracy has clearly
been the main objective, partnership working is also improving
in some locations.
There are a number of other ongoing and future
interdepartmental pieces of work which are key to the RCU and
GO network's strategy of cohering a place based approach to the
range of government programmes such as the Skills Strategy and
the Children's Green Paper, where regional roles and responsibilities
are being worked up.
Eleventh Report - Living Places: Cleaner, Safer,
Greener (HC 673-I) (Cm 5989)
Recommendation:
(d) Councils need a clear responsibility
to ensure that the public spaces are maintained to a high standard.
The Committee accepts that much can be achieved without legislation
to improve the management of public spaces. At the very least
a simplified framework highlighting the different responsibilities,
roles and powers is required. To simplify the framework, it will
be necessary to revise some of the existing contradictory legislation.
A simple guide is required setting out what local authorities
can and should do in managing public spaces and what they can
require others to do and listing the sanctions if they are not
done. (Paragraph 26)
Government Response:
Guidance setting out the different powers, roles
and responsibilities relevant to the quality of public spaces,
is currently being developed by the Government, in partnership
with the Improvement and Development Agency (I&DeA). Defra
are leading this process, working with the I&DeA, and intend
to launch a "strategic web site" providing the simplified
framework that is needed by the end of this year. This will take
forward option 'C1' in Defra's Living
Places -Powers, Rights, Responsibilities[24]
consultation document, which suggested that a single, 'strategic'
document (web based resource) should be prepared that would provide
an audit of the relevant legislation, codes, guidance and good
practice examples for local authorities and other public bodies.
The Home Office is also planning a strategic web site to provide
information and advice on what works when tackling anti-social
behaviour. Over time, these strategic web sites may be widened
to include further information and guidance, building on areas
of new legislation and further experience of what works in practice.
CABE Space will provide direct support to local authorities to
help them develop green space strategies and work towards much
higher standards of management and maintenance. ODPM's new £89
million 'liveability fund' (see recommendation cc below), will
also provide valuable information on how authorities can improve
and monitor their liveability services through an action learning
process.
Question:
New guidance setting out powers, roles and responsibilities
relevant to the quality public spaces is supposed to be published
by the end of the year. What progress has been made in preparing
the guidance?
Answer:
Defra has worked with the Improvement and Development
Agency (IDeA) to prepare the strategic website as proposed under
option C1 in Living Places: Powers, Rights, Responsibilities.
The website was tested by a small group of practitioners and experts
on 5 December 2003, to provide feedback on its content and structure.
Comments from the group are now being addressed and the website
should be ready for public use from 16 December 2003. Further
work will continue throughout 2004 in order to continually improve
and update the site.
The website will form part of the IDeA Knowledge
site. This site's mission is "to be the first port of call
for local government in terms of information on performance, practice
and innovation" and it currently has around 40,000 registered
users. The new strategic website resource will be widely promoted
to its users by IDeA Knowledge in early January, and through other
organisations and agencies (including Defra, ODPM, Home Office,
LGA and ENCAMS) both on launch in December and again in the new
year.
Initial feedback indicates that this will become
a much-valued resource by local authorities and other organisations
with an interest in local environmental quality issues. Links
will be made to the site under development by the Home Office,
which provides similar guidance on Anti-Social Behaviour issues.
Recommendation:
(e) The Government must publish an action
programme setting out proposed implementation as soon as possible.
The Committee was disappointed that the Government was not able
to give a target date for the publication of its evaluation of
the responses to its consultation document Living Places: Powers,
Rights, Responsibilities, which closed in February 2003. (Paragraph
27)
Government Response:
A summary of responses to the Living
Places: Powers, Rights, Responsibilities consultation paper
was published in July.[25]
This provides an evaluation and synopsis of the 254 responses
received. The Government is considering the responses in more
detail and intends to consult further on specific options which
might be brought forward in the future, should suitable legislative
opportunities arise. The Government hopes to set out a plan for
taking forward the options set out in Powers, Rights, Responsibilities
before the end of this year.
Good progress has already been made on implementation.
We have taken opportunities presented by the Anti-Social Behaviour
(ASB) Bill, led by the Home Office, to take forward a number of
the recommendations into new legislation. The ASB Bill includes
a number of measures to restrict the sale of spray paints and
extend local authority powers to deal with environmental problems,
including fly tipping, graffiti and fly posting.
In addition, the Government also supported the
Private Members Bill, tabled by Bill Tynan MP, that led to the
Fireworks Act 2003. This will take forward options in our consultation
paper to restrict the use of fireworks.
Question:
Government expects to set out a plan for taking
forward the options set out in Powers, Rights and Responsibilities
before the end of the year - what progress?
Answer:
We have evaluated the responses from the Powers,
Rights, Responsibilities workshop. A number of proposals were
recommended following the publication of responses in July 2003.
Defra Ministers are now considering the course of action to take
these proposals further.
The Home Office published its Action Plan to tackle
anti-social behaviour on 14 October 2003 and launched the 'together'
campaign. The Action Plan sets out the priority areas for action
for reducing anti-social behaviour over the next 2 to 3 years.
Key areas for intervention include: Nuisance neighbours, environmental
crime and begging. 10 areas of the country have been chosen as
Trailblazers to develop best practice in these areas.
The Anti-Social Behaviour Unit (ASBU) will also
fund and support every Crime and Disorder Reduction Partnership
(CDRP) across the country, to improve performance nationally,
in addition to free training for practitioners and the 'together'
Action Line, offering free instant advice on all anti-social behaviour
related matters will also be launched.
Recommendation:
Utility Companies
(l) We support the Transport
Committee's recommendation to give local authorities additional
powers to reclaim the costs of long term damage to streets caused
by utility companies. We also recommend that new incentives are
introduced to ensure that the utility companies reinstate pavements.
This could involve requiring the companies to pay local authorities
to carry out the reinstatement work on their behalf or lodging
a bond with the council, which would be retained if the work was
not carried out satisfactorily. (Paragraph 56)
Government Response:
DfT will be responding to the report of the Transport
Committee later this autumn and will set out its formal response
to the Committee's recommendations at that time. Under section
71 of the New Roads and Street Works Act utilities must comply
with prescribed requirements for the reinstatement of streets,
pavements and footways. However, we share the Committee's concern
that there are several areas where the existing legislative framework
can be improved in order to reduce the disruption and other problems
caused by utility street works and other activities in the street.
In particular, we are looking at possible changes to legislation,
which would, amongst other things, improve the quality of reinstatement
work and the enforcement regime where utilities fail to reinstate
properly. We are currently finalising a package of proposals,
which could be introduced via a future Bill should a suitable
opportunity arise.
Recommendation:
(m) The Committee welcomes the Government's
plans to increase local authority powers over the utility companies
through new legislation. The proposed Bill should be given priority
in the Government's legislative programme. (Paragraph 57)
Government Response:
As yet, no final decisions have been taken either
on the exact contents or the likely timing of any Bill. However,
we aim to have draft legislation ready as soon as possible in
order to take advantage of any legislative slot that becomes available.
Question:
Government is supposed to be considering a new
bill to reduce the disruption and other problems caused by utility
street works and other activities in the street, particularly
to improve the quality of reinstatement. What progress?
Answer:
The Traffic Management Bill was announced in the
Queen's Speech in November 2003. It contains elements to improve
the operation of utility street works.
Recommendation:
(n) Local councils should encourage the
individual members of friends groups, many of whom are retired
people but are still fit, to carry out some of the maintenance
in the parks so that they become part of the local community.
(Paragraph 61)
Government Response:
We recognise the important contribution made to
enhancing and sustaining parks and public spaces by voluntary
and community groups, especially friends groups. It is important,
however, for such arrangements to be voluntary and not compulsory
in any way and that local agencies work in partnership and support
the engagement of local people. We support Groundwork to work
with local communities in transforming local places and the lives
of local people. Each Groundwork Trust works in partnership between
public, private and voluntary sectors to build sustainable communities
through joint environmental action. They do this through getting
residents, businesses and local organisations involved in delivering
thousands of practical projects each year. We have increased our
support to Groundwork to enable them to reach more communities
than ever before. We have also have asked CABE Space to undertake
a campaign in 2004 to encourage local voluntary action and community
involvement in local parks and green spaces. In addition, they
will carry out research into the role of friends and other community
groups in the management and maintenance of parks and green spaces
(as announced in Living Places) in
response to the recommendation made by the Urban Green Space Taskforce.
Question:
CABE Space is supposed to be carrying out research
into the role of friends and other community groups in the management
and maintenance of parks and green spaces. When will it be published?
Answer:
CABE Space will be commissioning work in 2004
on alternative management models, including friends and other
community groups and open space trusts. The work will explore
the range of mechanisms available to give communities a greater
sense of ownership and responsibility for the upkeep and quality
of local green spaces.
Recommendation:
(t) Streets and public spaces should be
designed to attract pedestrians and are enjoyable. A coherent
design and management framework is required for both roads and
formal public spaces which should be part of the new Local Development
Documents. (Paragraph 81)
Government Response:
The Government agrees that public spaces need
to serve the needs of whole range of users, including pedestrians,
and be enjoyable places to be - not just places to pass through.
Existing Government policy on Planning for Housing (PPG3) already
affirms our commitment to high quality housing through encouraging
local planning authorities to adopt polices which "create
places and spaces with the needs of people in mind, which are
attractive, have their own distinctive identity but respect and
enhance local character".
On 30 June DfT issued, On
the move: by foot,[26]
a discussion paper on new guidance to encourage more walking journeys
and improve conditions for pedestrians. It seeks views on how
to overcome the current physical, psychological and institutional
barriers that work against people walking more. The consultation
period ended on 26 September.
Responses will help to inform a strategic action
plan of measures and initiatives to encourage more journeys on
foot and identify any related guidance required.
In July, ODPM and DfT published a joint research
report entitled Better Streets, Better
Places,[27] which
set out recommendations on tackling barriers to sustainable residential
environments caused by local highways considerations. Both Departments
are carefully considering the recommendations, and are working
up a programme of action for tackling the issues raised. The report's
main recommendation was for revised technical guidance, i.e. a
new Manual for Streets covering all aspects of street design
for new residential roads.
The Government will also re-examine how authorities
can improve people's experience of public spaces through their
Local Transport Plans. Guidance for the first round of plans asked
authorities to produce a local walking strategy to identify gaps
in the local infrastructure and improvements needed in footway
networks. We intend to consult local authorities and stakeholders
in due course on how to build on this approach in the second round.
We plan to issue draft, revised Local Transport Planning guidance
in the Spring of 2004 and publish the final guidance in July 2004.
Local Development Frameworks will provide a flexible
approach for planning streets and spaces. Appropriate policies
can be put in Local Development Documents. These documents will
be spatial, rather than limited to land use, and will therefore
be able to integrate development and infrastructure issues more
effectively than in the past.
Question:
The Government says that it is preparing a strategic
action plan of measures and initiatives to encourage journeys
on foot and identify related guidance required. When will it be
published?
Answer:
DfT is working with ODPM, DEFRA, DH, DCMS, HO
and the Countryside Agency to produce an action plan aimed at
increasing levels of walking and cycling. We intend to publish
this in spring 2004.
Recommendation:
Skills
(y) Pedestrian areas need careful design.
They should not be the areas left over after the roads have been
built and sight lines determined. Councils should not rely solely
on highways engineers to design and manage streetscapes. We recommend
that they should be encouraged to set up multidisciplinary teams
which can consider how the needs of different users, and particularly
pedestrians can be incorporated into the design and management
of streets. (Paragraph 98)
Government Response:
The Government does not intend to impose statutory
structures on local authorities, with respect to how they organise
their services, as solutions have to be tailored to local circumstances.
Government work already outlined above will aim to reinforce to
authorities the need to adopt joined-up and multi-disciplinary
approaches. For example, the joint ODPM/DfT Better
Streets, Better Places research report (see recommendation
t above) states that many local authorities have adopted
the Design Manual for Roads and Bridges or Design Bulletin
32 verbatim as their local highway standards, without due consideration
of local needs. The problem of the inappropriate use of existing
design manuals is an issue that the ODPM and DfT are determined
to address and will examine this issue further as part of their
action plan to take forward the recommendations. CABE and CABE
Space will be undertaking a skills programme to improve the standards
within the relevant professions responsible for the provision,
design and maintenance of public space. Specifically, CABE are
undertaking a targeted training programme for highways engineers
to develop wider skills necessary to provide and maintain good
quality public space.
The Deputy Prime Minister has asked Sir John Egan
to conduct a review of the skills and training that built - environment
professionals require to deliver sustainable communities. In particular,
the Review will focus on the skills and training required by professionals,
planning authorities and developers so that they can co-operate
in achieving measurable improvements to the communities they serve.
Sir John has established a Task Group of 15 key individuals to
assist him with this work and is consulting widely to seek views
before making a formal report to the Deputy Prime Minister at
the end of the year. The issue of design of pedestrian areas for
disabled people has also been addressed through DfT's recent publication
Inclusive Mobility[28]
which provides a guide to best practice on access to pedestrian
and transport infrastructure. In outlining the needs of disabled
people and providing advice on design, it also offers advice that
would be helpful to other different users, such as older people.
The document has a dedicated chapter on consultation and emphasises
the need for consultation with, and involvement of, local groups
and all appropriate users at an early stage of design and development.
Question:
The Government says that it is determined to address
the problem of inappropriate use of existing design manuals "and
will examine this issue further as part of their action plan to
take forward the recommendations (in Better Streets, Better Places)."
When will the action plan be published?
Answer:
We aim to publish the action plan early in the
New Year.
Recommendation:
Local Authority Funds
(dd) The increase in funds to local authorities
is welcome. However, it will make a very limited impact on the
long term backlog in funding for parks and public spaces. A long
term funding programme is required which reflects the poor state
of public spaces and the importance which the public puts on them.
The £500 million estimated by the Urban Green Spaces Taskforce
is a starting point but is an arbitrary figure and a more extensive
assessment is required of the funding needed. (Paragraph 116)
Government Response:
We welcome and acknowledge the Committee's recognition
that better evidence and information is needed on funding requirements.
The Government is working with a variety of key partners to improve
national data across the range of green spaces, building on the
work of the Public Parks Assessment. ODPM are supporting the Urban
Parks Forum (now 'GreenSpace'[29]
) on updating the Public Parks Assessment, advising Sport England
in collecting data on playing fields and sponsoring surveys of
allotments, community gardens and city farms. The Home Office
is also leading on the collection of data on cemeteries and burial
grounds. We will also be revisiting the Trees in Towns survey
of 1993 to provide up-to-date information on the composition and
condition of urban trees and woodlands. This will be expanded
to provide insight into the resources and processes that local
authorities use in managing urban trees. Work is well underway
to ensure that all of the data collected is compatible to allow
it to be assimilated, mapped and disseminated to give a nationwide
picture of the quantity and quality of our urban green spaces.
ODPM is currently exploring the use of OS Master Map and other
web-based tools to support in this process.
At the local level the revised Planning Policy
Guidance on Open Space, Sport and Recreation (PPG17) will help
to improve the evidence base for activity and spend by local authorities.
It requires them to make an assessment of the quantity and quality
of their open spaces and encourages a strategic approach in their
provision and management. Additionally, we have asked CABE Space
to research the funding needs of local authorities, alternative
management arrangements for green spaces, and their economic,
social and environmental value. In undertaking this work they
will need to take account of the outcomes that will be achieved
and value for money from investment. All this information will
be taken into consideration when assessing the case for resources
in future, based on a better understanding of requirements and
evidence of need.
Question:
CABE Space is supposed to be researching the funding
needs of local authorities, alternative management arrangements
for green spaces and their economic, social and environmental
value. When will it be published?
Answer:
The first CABE Space research report will be published
in March 2004, drawing together existing research to highlight
the value of high quality green space across a range of key liveability
themes from crime prevention to healthier communities. It will
provide a useful resource for all those considering the value
of urban green space.
CABE Space have also commissioned original research
to address these issues.
- The first investigates the tangible and measurable
economic effects, both positive and negative, of urban green space
on the surrounding area. The aim is to consider the investment
potential of green space and the outcome providing an asset of
higher amenity value. The report is anticipated for publication
around Easter 2004.
- The second piece will identify
and compare international good practice in the management and
maintenance of parks and urban green spaces. It aims to assess
the transferability of these lessons to English practice and will
be published in early summer 2004.
- A further study aims to define and understand
the relationship between local authority spending decisions and
priorities and the consequent physical condition i.e. quality
and perceived value to users of parks and urban green spaces.
It will identify the potential ways of optimising existing resources
to deliver high quality green spaces. The study will be commissioned
shortly and is due to be published in autumn 2004.
Twelfth Report - The Evening Economy
and the Urban Renaissance - (HC 396-I) (Cm 5971)
Recommendation 3 (Paragraph 30):
The findings of the Office of the Deputy Prime Minister's
Special Grant Programme funded Civic Trust pilot studies into
the evening and late-night economies to identify best practice
be taken account of in the Office of the Deputy Prime Minister's
forthcoming review of Planning Policy Guidance 6.
Government Response:
The Civic Trust have been awarded funding over a
3-year period (2003-2006) under the Office of the Deputy Prime
Minister's Special Grant Programme to develop good practice in
this field through a set of national case studies. The Office
of the Deputy Prime Minister will wish to consider the research
results and recommendations, as they become available so that
lessons can be disseminated to a wide audience. The research will
contribute to the proposed good practice guidance on managing
the evening economy.
Question:
Have you disseminated any information based on
the Civic Trust's research yet?
Answer:
The conclusions of the national survey of the
evening and night time economies, which is underway will form
the first of a series of good practice bulletins, and will be
published as follows:-
- Bulletin No.1 March 2004
- Bulletin No.2 March 2005
- Bulletin No.3 December 2005
These bulletins which will provide an overall
conclusion to date, will be published on the Civic Trust Website
and will also be made available in paper version. The bulletins
will build up towards a 'Good Practice Manual', which will be
issued by the Civic Trust in March 2006
Recommendation 4 (Paragraph 36):
In its forthcoming review of Planning Policy Guidance
6, the Office of the Deputy Prime Minister promote the spreading
of evening and late-night economy activity throughout town and
city centres thereby encouraging genuine mixed-use areas, rather
than its concentration in one or more zones.
Government Response:
In producing the new Planning Policy Statement 6
on town centres, the Government will stress the need to plan positively
for the future growth of town centres. In extending them it will
encourage the development of mixed-use areas. It will, however,
be for each local planning authority to develop an appropriate
strategy for the development of its town centres in consultation
with businesses, the local community and other stakeholders, including
how best to plan the development of the evening economy. In some
town and city centres the concept of leisure quarters may be appropriate,
whereas in many places a more even spacing of attractions will
be more appropriate to reduce the impact of the evening economy
of town or city centre residents. The Government agrees that stronger
guidance is needed on creating and managing leisure quarters or
zones designated for entertainment and leisure. Zoning can have
the effect of disadvantaging residents who live in these areas,
whilst spreading the evening and late night economy geographically
may help to ease the pressures on town and city centres.
Question:
What stronger guidance has been provided?
Answer:
The Government will be publishing draft PPS6 for
consultation shortly. There is little to add to the Government
Response. We propose to commission good practice guidance on managing
the evening economy and expect that, based on the experience of
case study authorities, including those in the Civic Trust study.
This guidance will provide lessons for the more effective use
of planning powers to manage the extent and impact of leisure
uses on the town centre, the amenity of residents and the management
of the environment.
Recommendation 6 (Paragraph 42):
That the Office of the Deputy Prime Minister place
'super-pubs' and night-clubs in a new, separate division of the
'D' use class category; and consider using capacity as well as
surface area to determine categorisation as a 'super-pub'.
Government Response:
As indicated in response to Recommendation 5 above,
the Government has already announced its intention to change the
Use Classes Order to place pubs and bars in a separate Use Class,
so that any proposal to establish a new pub of whatever size would
be subject to planning consent. As part of the review of the Use
Classes Order that the Government has been undertaking it also
consulted on a number of alternative proposals concerning the
placement of night-clubs within the Use Classes Order. One of
these proposed putting night-clubs over a specified square footage
in the same use class as pubs and bars; another proposed putting
them into a Use Class of their own. We hope to announce the full
conclusions of the review of the Use Classes Order shortly.
Question:
What progress has been made on this?
Answer:
The outcome of the Use Classes Order review was
announced by a Ministerial Written Statement on 27 November.
The current A3 Use Class includes cafes, restaurants,
pubs, bars, and takeaways. The consultation revealed that there
is widespread concern that such a broad classification, which
allows change of use from restaurants to pubs without the need
for planning permission, contributes to the increase in the number
of licensed premises. On 4 March this year, the Hon. Member for
Harrow East, Tony McNulty made a statement to the House announcing
the Government had considered these representations carefully
and proposed to put pubs and bars into a separate Use Class. Pubs
and bars will be classified under a new Use Class A4. A4 Use Classes
will be permitted a change of use to A1(shops), A2 (financial
and professional services) or A3 (restaurant and cafes) classification.
Any other proposed changes of use will require planning permission.
We also propose to make a change to the current
D Use Class, an additional Use Class D3: Late Night Leisure. Most
existing late night uses are already covered by existing classes,
however nightclubs do not have a clear classification within the
current Use Classes Order, and the impact on amenity of nightclubs
is distinct and different from other uses. We will, therefore
introduce a new Use Class D3 will be the classification for nightclubs.
Planning permission will be required for any change of use from
or to a D3 classification.
A statutory instrument giving effect to these
changes will be made in due course. The order will be made under
section 55(2)(f) of the Town & Country Planning Act 1990 and
it is therefore not subject to the Parliamentary procedures set
out in section 333 of the Act.
Recommendation 9 (Paragraph 45):
That the Office of the Deputy Prime Minister introduce
a requirement for areas immediately surrounding late-night premises
to be cleansed and maintained by operators.
Government Response:
Local authorities already have the power to deal
with the problem identified by the Committee under Section 93
of the Environmental Protection Act (1990).The Act states that
"a Principal Litter Authority may, with a view to the prevention
of accumulations of litter or refuse in and around any street
or open land adjacent to any street, issue notices ('Street Litter
Control Notices') imposing requirements on occupiers of premises
in relation to such litter or refuse, in accordance with this
section of the Act and Section 94." Such a notice shall identify
the premise and state the grounds on which it is being issued.
It will specify an area of open land, which adjoins or is in the
vicinity of the frontage of the premises on the street. The notice
will require the owner/occupier of the premises to take steps
to clear their area of litter and keep it clear. But, whether
a local authority uses this power or not is a matter of choice.
However, all local authorities have a statutory duty to deal with
litter and refuse in line with the requirements of the Code of
Practice on Litter and Refuse which sets standards of cleanliness
and times when cleansing should take place. This code is currently
under review. The Department for the Environment, Food and Rural
Affairs, as part of the night-time economy assessment, are looking
to assess whether the 24/7 economy will have a knock on effect
in terms of local authorities' statutory duties in respect of
litter and refuse. Within the Office of the Deputy Prime Minister,
Business Improvement Districts (BIDs) pilots are also being monitored
to assess whether businesses that stand to benefit most from an
expanded evening economy would be prepared to help pay, through
a BID scheme, to alleviate the negative side effects. BIDs are
intended to provide services over and above those provided by
the local authorities and they could potentially offer a way of
tackling this problem.
Question:
What has been revealed through the monitoring
of BID pilots? And what has DEFRA's research revealed?
Answer:
The BID pilots are currently consulting on their
work programmes. It is too early to say what aspects of the evening
economy, if any, the pilots will actually address.
The Department for the Environment, Food and Rural
Affairs review of the code of practice on litter and refuse is
in its very early stages. The night time economy may lead to an
impact on local authority cleansing services, which may need to
be reflected in a revised code of practice, but this is one of
the things that will be considered during the review.
Recommendation 11 (Paragraph 49):
That the Office of the Deputy Prime Minister promote
the pilot use of Business Improvement Districts in the management
of the evening and late-night economies.
Government Response:
The Government is keen to promote Business Improvement
Districts (BIDs) as one way to manage the effects of an expanding
evening economy, and is taking a close interest in the various
BID-style schemes which have already been set up. The Office of
the Deputy Prime Minister is part-funding a BID pilots scheme
run by the Association of Town Centre Management (ATCM). Twenty-three
locations of different sizes and types are being guided through
the process of setting up BIDs. Although the Office of the Deputy
Prime Minister cannot influence what schemes the pilots choose
(this is for local businesses, in consultation with their local
authorities, to decide) ATCM is monitoring their progress closely
and keeping the Department informed of issues which arise. The
Department has asked ATCM, through the pilots project, to look
at the role BIDs might play in managing the evening economy, in
particular the increase in demand for local services to tackle
noise, litter, and low-level crime, and what BIDs might provide
over and above what the local council provides. We are keen to
know whether those businesses that benefit most from the evening
economy and the Licensing Bill would be prepared to help fund
solutions to potential problems. The Department has also asked
ATCM to consider whether BIDs could have a role in helping to
diversify the evening economy, including helping to prevent the
development of 'no-go' areas in town and city centres.
Question:
How many pilot BIDs have been focussed on issues
arising from the evening and night time economies? What have they
addressed and what have been the outcomes?
Answer:
The BID pilots are currently consulting on their
work programmes. At this stage the Bedford, Birmingham, Blackpool
and Coventry BIDs propose to focus some of their effort on evening
economy issues, subject to their consultees' views. It is too
early to say what aspects, if any, of the evening economy the
pilot BIDs will actually address.
Recommendation 12 (Paragraph 51):
The Department for Transport should ensure police
forces, local authorities, transport providers and evening and
late-night economy operators work together to provide safe and
secure late-night transport.
Government Response:
Department of Transport guidance for the first round
of Local Transport Plans emphasised the need for local authorities
to work in partnership with all appropriate bodies to deliver
effective local transport strategies. Effective strategies will
of course include provision of night-time and evening services,
where this is appropriate to the local situation. It is for local
authorities to identify where and how to take action. The Department
is aware that many people are concerned about waiting for and
using public transport, especially at night. Ministers are very
concerned about the protection of passengers and bus and coach
staff against assaults. Criminal and anti-social behaviour against
them is quite unacceptable; it also acts as a barrier to the public's
desire to travel on public transport.
The Government is determined to reduce crime and
the fear of crime wherever it occurs on the public transport system,
particularly at bus stops and in bus and coach stations. Last
year the Department for Transport issued guidance to local authorities
and bus operators on improving personal security for passengers
and staff. This covers all parts of the journey, including stations,
stops and shelters, as well as on vehicles. We have also formed
an official-level group called Safer Travel on Buses and Coaches
Panel (STOP) to look at ways to combat assaults, anti-social behaviour
and vandalism at stops and stations and on vehicles and property.
The panel will work to bring together those involved in dealing
with the issue of safety and security. It is charged with the
important task of facilitating the exchange of ideas and spreading
best practice. A booklet about the protection of bus and coach
crews is being updated and will be re-issued shortly. The panel
will also commission regular data collection. It has held discussions
and will issue relevant advice to operators.
Question:
What evidence have you received that local authorities
are making provision for the late night economy in their local
transport planes?
Answer:
The Government encourages local authorities to
use their Local Transport Plan allocations for capital projects
to address the transport issues they have identified as local
priorities. We require authorities to provide evidence of projects
in their annual progress reports, which we use to assess their
performance in meeting local objectives. For example, Manchester
report that in 2002/3 they used Government funding to provide
a range of schemes related to the night-time economy including
safer subways, improved street lighting, an extension of their
nightbus network, more wardens and more cameras in taxis.
Recommendation 15 (Paragraph 54):
That the Department for Transport work with enforcement
authorities and take a much more proactive policy to reduce the
number of unlicensed minicabs operating. We recommend a review
of penalties for operating an unlicensed minicab to ensure they
are a sufficient deterrent. We are concerned that there is insufficient
publicity highlighting the dangers of illegal minicabs. We therefore
recommend that the Department of Transport launch a high-profile
media campaign equating the use of an unlicensed minicab with
accepting a lift from a drunk driver.
Government Response:
The role of the Secretary of State for Transport
is to provide a regulatory framework for taxis and PHVs throughout
England and Wales. With the current exception of London where
PHVs should be licensed by the licensing authority, TfL, during
2004, the law does require that all PHVs should be licensed and
includes offences for operating or driving PHVs without the appropriate
licences. Enforcement of the licensing laws is a matter for local
licensing authorities and the police; it is for them to decide
what priority to give this. We agree that the level of penalty
for operating an unlicensed minicab (currently a maximum fine
of £1,000) should be reviewed but since any change would
require primary legislation we consider that this should be when
Parliamentary time is available. Enforcement of the touting offence
(maximum fine £2,500), and priority for it, is also a matter
for the police. That said, at TfL's request, we have given our
support to making the touting offence recordable and this is being
taken forward by Home Office colleagues. The effect of this would
be to allow the police to take DNA samples, fingerprints and photographs,
thereby helping to track persistent offenders, identifying those
unlawfully at large, improving opportunities to detect perpetrators
of sexual offences, and building up offender history to inform
licence decision-making. We will consider how best to publicise
nationally the dangers of illegal minicabs, taking into account
the considerable amount of publicity already undertaken for London
by TfL.
Question:
What progress has been made on these issues?
Answer:
The Government response referred to an initiative
to make taxi touting a recordable offence. The regulations to
effect this change have now been made by the Home Office; they
came into force on 1 December.
Recommendation 17 (Paragraph 71):
We are pleased that the Government is providing tools
for police authorities to clamp down on anti-social behaviour.
We welcome measures such as fixed penalty fines, however the payment
of fines must be enforced.
The Government Response:
The Government welcomes the Committee's positive
response to the introduction of fixed penalties for offences of
disorder. Piloting of these penalty notices has recently been
completed and the Home Secretary announced in May that the scheme
would be rolled out nationally. Work is now in hand to achieve
this. In order to be able to operate the system, police forces
and the magistrates' courts need adaptations to their computer
systems to allow the tickets issued to be processed. When a penalty
notice is issued the recipient may choose either to pay the penalty
or to have his case heard by a court. Very few people are choosing
the latter option. If neither option is chosen and the recipient
effectively ignores the notice, a fine of one and a half times
the amount of the penalty is registered against him. This is enforced
by the magistrates' courts in the same way as any other fine.
The Government recognises that more recipients of notices should
be encouraged to respond in either of the available ways, and
that fines need to be more effectively enforced.
The Government is tackling the response rates to
penalty notices in two ways. Firstly, two of the pilot police
forces are trialling the use of reminder letters sent part way
through the time allowed for payment. Secondly, the courts are
being encouraged to broaden the available methods of paying the
penalty, such as the provision of dedicated phone lines, so that
those wishing to pay are not deterred from doing so by practical
difficulties. The success of these innovations will be evaluated
and the need for any further action assessed in the light of the
outcome. Improvements to fine enforcement are being pursued through
provisions in the Courts Bill, which is currently before Parliament.
The Courts Bill contains a number of provisions to improve the
system for enforcing financial penalties. Among them are a 'suspended'
attachment of earnings/deductions from benefit order as a first
step in enforcing a fine; automatic imposition of such orders
where the offender has a track record of non-payment, and a new
offence of failing to provide means information and/or the financial
details necessary to allow an attachment order to be made. In
addition, the Bill will give an individual court officer the overall
responsibility and management of the enforcement of any fine,
therefore saving court time. For those offenders from whom a fine
cannot be collected by any of the normal means, there are provisions
allowing for the discharge of fines by unpaid work. The new provisions
are to be piloted and the most successful in achieving the discharge
of fines will be implemented. The Government is confident that
encouraging recipients of penalty notices to respond to their
notices, and ensuring that the fines registered against those
who still fail to do so are enforced will promote confidence in
the scheme as a whole and lead to its extension to new offences.
Question:
What progress has been made on these issues?
Answer:
The Courts Bill is now the Courts Act 2003. Pilots
of the enforcement provisions are due to begin in early 2004.
The Anti-social Behaviour Act 2003 provides for penalty notices
for disorder (PNDs) to be extended to juveniles. PNDs for 16 and
17 year olds are to be piloted early in 2004. Home Office Research
Findings summarising the interim evaluation report of the adult
PND pilots are to be published in the New Year.
24 Available on the Defra web site, see www.defra.gov.uk/environment/consult/pubspace/pdf/living-places.pdf Back
25
Available on the Defra web site, see www.defra.gov.uk/environment/consult/pubspace/index.htm Back
26
See www.dft.gov.uk/stellent/groups/dft-control/documents/contentservertemplate/dft-index.hcst?n=8294&l=2 Back
27
See www.odpm.gov.uk/stellent/groups/odpm-planning/documents/page/odpm-plan-023006.hcsp Back
28
See www.dft.gov.uk/stellent/groups/dft-mobility/documents/page/dft-mobility-503282-16.hcsp Back
29
See www.green-space.org.uk Back
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