Select Committee on Office of the Deputy Prime Minister: Housing, Planning, Local Government and the Regions Second Report


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
    • Programme
  • 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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