Regional development agencies and the Local Democracy, Economic Development and Construction Bill - Business and Enterprise Committee Contents


Memorandum submitted by the East of England Development Agency (EEDA)

  The East of England Development Agency (EEDA) welcomes the opportunity to submit evidence to the Committee's Inquiry into the role and effectiveness of the RDAs.

  EEDA's role in improving the economy of the East of England is crucial to the continued success of the UK's innovation region—one of only three regions which are net economic contributors to UK plc.

  EEDA works with a broad and representative range of private, public and third sector partners to provide strategic economic direction for the East of England, through strong leadership of the regional economic strategy.

  EEDA takes the lead in addressing key economic issues—such as innovation, business competitiveness, transport and growth.

  EEDA works closely with business, championing the business perspective in public sector decision-making in the region and ensuring that the climate for business success continues to flourish in the East of England.

  EEDA develops and delivers specific, targeted programmes that address market failures and make a real difference to people, places and businesses in the East of England.

  EEDA has played a key role in the region's response to economic shocks, working with regional and national partners to minimise the impact on the economy.

  EEDA brings strong expertise in economic development to a region which has been historically under-resourced in this area.

  EEDA's business-led approach enables it to be responsive, nimble and fleet of foot, adapting to new roles, responsibilities and situations flexibly and effectively

  EEDA has pioneered innovative programmes and delivery approaches, leading the way in issues ranging from cross-boundary working to programme delivery through local authorities.

  EEDA has consistently met or exceeded its targets. Since 1999, EEDA has:

    —  created or safeguarded some 32,000 jobs;

    —  helped almost 10,000 businesses start up and grow, and another 61,000 improve their performance;

    —  helped over 143,000 people improve their skills;

    —  played a leading role in the creation of two new universities; and

    —  regenerated 303 hectares of brownfield land.

  EEDA is proud of its impact on the economy of the East of England.

  The East of England (comprising the six counties of Bedfordshire, Cambridgeshire, Hertfordshire, Norfolk, Suffolk and Essex) is the UK's leading innovation region and home to world-beating companies, universities and research institutes. It plays a crucial role as the UK's gateway for international trade and has a strong relationship with London. It has been one of the fastest-growing regional economies in the UK over the last 20 years.

  But the East of England faces major challenges if its economy is to continue to thrive and grow. This includes addressing the recent slowdown in economic performance; the impact of the credit crunch on financial and housing markets; rising food, energy, fuel and commodity prices; skills and infrastructure deficits and the need to develop a more sustainable economy.

  EEDA provides the strong economic development leadership required to enable the region to address these challenges and take advantage of the many opportunities identified for the future. At the heart of EEDA's economic leadership is the regional economic strategy—the blueprint for the region's economic development. It sets out a vision, bold targets and priorities, led by EEDA and agreed by public, private and third sector partners, and is delivered through the collective work of political, business and community leaders and organisations.

1.  THE NEED FOR A LEVEL OF ECONOMIC DEVELOPMENT AND REGENERATION POLICY DELIVERY BETWEEN CENTRAL AND LOCAL GOVERNMENT

1.1  Economic development at the most appropriate level

  The East of England is a £100 billion economy, home to over 5.5 million people and 430,000 businesses. With a regional economy of this scale, there are many economic development activities which are best delivered regionally. These include such policy areas as innovation, transport and strategic planning, which need to be progressed on the basis of real economic geographies, rather than to administrative boundaries, and therefore must be pursued on a cross-boundary basis.

  There is strong evidence and academic consensus that:

    —  regions (and city-regions)—rather than nation states—are the key arenas in the new global economy;

    —  despite globalisation and technology, economic activity, technology, and innovation are all becoming increasingly localised; and

    —  many supply-side barriers to (national) competitiveness, productivity, and innovation originate, and are best tackled, at the regional and/or local level.

  This means that a bridge between national economic policy and local areas is essential. RDAs provide that bridge—with strong understanding of and sensitivity to local needs, issues and agendas whilst also having a focus on the comparative performance of regions and localities in global markets.

  EEDA's role in improving the economy of the East of England often means it has to make tough, medium and long-term strategic choices that are right for the region; not constrained by administrative boundaries; business led; locally informed; and with a strong focus on critical economic issues.

1.2  Critical mass and cross boundary working

  With major housing growth planned for the East of England over the next 15 years, coupled with the challenge of climate change, sustainable economic growth is a key issue for EEDA and its partners. The population of the East of England is forecast to increase by around 500,000 people by 2021, and projections to 2028 make the region, proportionately, the fastest growing in the UK. Compared to other English regions, there are fewer large cities and no obvious regional capital, but a number of medium-sized towns and cities with ambitions to grow.

  EEDA recognised that these challenges could only be addressed by bringing together partners and encouraging greater cross-boundary working. EEDA initiated a dialogue with six medium-sized towns and cities in the region, (Peterborough, Luton, Ipswich, Norwich, Colchester and Southend-on-Sea) to discuss common issues and develop thinking on how a collaborative approach could better address the challenges of growth.

  Out of this approach came Regional Cities East, based on the collective belief that by sharing best practice, collaborating in joint ventures and setting clear priorities, the leaders of these towns and cities can create more jobs and affordable homes than they could by working alone. The Regional Cities East partnership has set ambitious targets—by 2021, building at least 160,000 new homes, with at least 80% of these on brownfield land; expanding the region's economy by £10 billion a year; creating at least 150,000 new jobs; and helping the region reduce carbon emissions. EEDA remains a key member of the partnership.

  To deliver growth of this scale, a consistent but flexible approach to development was required. EEDA has worked with Regional Cities East to develop an innovative and holistic approach to investment planning in towns and cities in the East of England—Integrated Development Programmes. Four have been completed—Greater Norwich, Haven Gateway, Luton/South Bedfordshire and Peterborough—and this new approach is now being rolled out across the region. Based on sound evidence and analysis of the local economy and housing market, Integrated Development Programmes set out how growth will be delivered, to 2021 and beyond, in local areas, including phased and prioritised public sector interventions for key infrastructure. A key strength is that the resulting plans can be used by all partners and investors in the development process therefore fostering collaborative working across the public and private sectors.

1.3  Tailored and flexible approach

  The East of England is an EU-leading region for research and development (R&D) activity, with the major R&D facilities of many global top 50 R&D companies; over 30 of the world's leading research centres; major "knowledge-generating" clusters in health and life sciences, ICT and high-growth areas such as environmental technologies and renewable energy. But this strong reputation for R&D is not consistently translated into business success through the commercialisation of ideas.

  EEDA tackles this through a series of regionally-led but locally flexible, strategic initiatives to boost business competitiveness and provide a strong stimulus for business innovation:

    —  Ensuring all knowledge-based businesses in the region can access advice about the development of new and improved products, services and business processes, with a new regional Business Link service at the heart of this advice network.

    —  Supporting innovative businesses by helping them access finance to accelerate their growth and development. EEDA's Finance for Innovation programme has helped companies gain millions of pounds of investment in innovative new products—from 3D projector technology to smart energy meters.

    —  Encouraging and stimulating the development of business networking groups, which help small businesses share technology and market information; gain access to finance and business support; and take advantage of training opportunities.

    —  Supporting the development of business incubators, enterprise hubs, innovation centres and new "open innovation" science parks. These link new and growing knowledge-based businesses with universities, research and development centres and big industry players.

1.4  Economies of scale and specialist resources

  Transport is an important issue that can most effectively be influenced by work at regional level. Transport congestion has a significant impact on business competitiveness. EEDA has worked closely with business and other partners to lobby for transport interventions that will contribute to increased economic growth, increased employment, and reduction of carbon emissions in the East of England.

  Although there is much anecdotal evidence of the business impact of transport congestion on the East of England, there was little hard evidence to prove the impact. EEDA commissioned a Transport Economic Evidence Study (TEES) to quantify the costs to the regional economy of congestion and overcrowding on the region's transport networks; identify where transport constraints were having a particular impact on the economy and regional productivity; and quantify the wider economic benefits that would arise from introducing transport interventions in these "hot spots".

  EEDA's ground-breaking TEES study found:

    —  the cost of congestion in the East of England is set to double to over £2 billion per annum by 2021, including direct costs to business productivity of £1.3 billion per annum by 2021;

    —  particular hotspots where congestion is causing most damage to the regional and national economy—85% of the costs of congestion are in the seven areas of the region which will drive future economic growth;

    —  there will be significant economic benefits from targeted road capacity improvements in some parts of the region, however the economic returns from this approach diminish once the key constraints on economic productivity have been relieved; and

    —  new road infrastructure alone will not solve the congestion problem. Measures to manage demand for travel by road and investment in additional rail capacity will increasingly do more to reduce the cost of congestion in the long term—for example through exploring various forms of demand management, traffic management measures like motorway hard shoulder running, and longer trains.

  EEDA is now working with business and public sector partners to use the study to boost the business case for increased investment in the region's transport network; target investment where it will have the greatest economic impact; and support work to secure new sources of funding to bring forward transport investments.

2.  THE EFFECTIVENESS OF RDAS AND THEIR ROLE IN ADDING VALUE

  As well as providing strategic leadership for the region, EEDA invests in and delivers high-impact programmes and projects, which address market failures and make a real difference to businesses, people and places in the East of England

2.1  Effective and efficient support to businesses

  The East of England has over 430,000 businesses—but only a relatively small number seek the advice and support that could help them grow. EEDA's general and specialist business support services, including Business Link, Women's Enterprise and the Manufacturing Advisory Service, are designed to help businesses start-up, grow and succeed.

  EEDA led the transformation of the region's Business Link service—moving from six county-based Business Link operators to one single organisation covering the region. On 1 April 2007, the new Business Link East service was launched giving small and medium sized businesses in the region access to 90 Business Link advisers at 13 different locations.

  Through restructuring the service, EEDA cut back-office costs by some £1.5 million. These savings were used to increase the number of front-line business support posts by 50%—from 61 advisors to 90. In the year to 31 March 2008, Business Link East advised over 98,000 businesses (up from 91,000 under the previous six operators): including a 77% increase in new business start ups. Service satisfaction levels also increased markedly, as Business Link enjoyed a strong start as an EEDA-funded programme.

  Businesses are often confused about the array of support services available. EEDA's innovative interactive map offers East of England businesses a simple view of publicly-funded business support to help them on their journey to success. The map has been welcomed by businesses, is now being rolled out across the region by business representative organisations and other partners, and supports the national drive to simplify business support.

2.2  Addressing market failures|

  Some events are not planned for, but require a swift and co-ordinated response—and EEDA is proud of the contribution it has made in responding to economic shocks impacting on the region. When the Buncefield Oil Depot in Hertfordshire exploded in December 2005, EEDA pledged immediate support and was on-site the next day, working with local partners as part of the emergency response team looking at the wider economic implications of the explosion.

  EEDA supported the creation of the Maylands partnership, working with Dacorum Borough Council, other partners and business representatives from the Maylands business park adjoining the Buncefield site—the biggest business park in the East of England. EEDA funds were made available for emergency intensive business support, together with funding towards the provision of a business centre, master planning and improvements to the area to rebuild investor confidence, through a funding package of some £7 million.

  In response to Vauxhall's decision to end car production in Luton, EEDA took the lead in forming the Luton Vauxhall Partnership, which co-ordinated the provision of training for the workers affected. Around 2,000 people were retrained and 1500 re-employed as a result. The work also led to the establishment of 85 supported incubator workspaces, a new Innovation Centre and Technology Park and a venture loan fund to support the establishment of new companies.

  EEDA has also played a key role is responding to economic shocks affecting rural communities, such as foot and mouth outbreaks, avian flu and the Blue Tongue outbreak in Suffolk in 2007. In all these cases, EEDA has rapidly convened local partners to address the short and long term economic issues and provided additional support for solutions that meet local needs.

2.3  ... and opportunities

  The East of England is the UK region at the highest risk from climate change. This presents both challenges and major economic opportunities for the region. Through the regional economic strategy, EEDA and its partners have agreed challenging but achievable targets of reducing regional CO2 emissions by 60% by 2031 (and an expected 80% by 2050). The region is the leading region for renewables generation and is the only one in line to achieve its 2010 target.

  Predictions of a 45% growth in the global environmental technologies sector by 2015 coupled with a large proportion of the UK's environmental goods and services sector in the region, means that the East of England has the potential to meet future demand for low carbon technologies. The East of England already has a mature industry servicing the needs of the offshore oil and gas industry worth £1.7 billion, and many of these skills are transferable to the renewables industry, offering significant opportunities for businesses.

  EEDA is tackling this issue and related opportunities through a number of different interventions. EEDA established a specialist support organisation—Renewables East—to inspire, fund and develop low-carbon energy solutions with a range of organisations in the East of England. It champions offshore renewable energy, supporting business of all sizes working in the sector, and actively supports research and development into offshore technologies, helping companies to commercialise new innovations and take them to market more quickly.

  EEDA is helping provide physical facilities for small and medium sized businesses in the renewable energy sector to grow by supporting the development of OrbisEnergy, a landmark business centre at Ness Point in Lowestoft, one of the region's regeneration priorities. OrbisEnergy will become a worldwide centre of innovation and excellence for offshore renewable energy, a centre for academic expertise and a base for more than 30 small and medium sized companies working in the sector.

  For the region's prosperity to be sustainable, business growth must be balanced against the impact on the environment. EEDA recently ran a pilot programme providing advice on resource efficiency to SMEs, targeted at helping them to achieve a reduction in greenhouse gases, save raw materials, make cost savings and increase new business sales. Over 1000 businesses were given advice through Business Link providing streamlined information around resource efficiency, making it more digestible, easily accessible and instantly relevant to the region's different businesses.

  EEDA's innovative Cut your Carbon campaign aims to help communities in the East of England tackle climate change by working together to reduce community carbon footprints, and, through a competition, tackle climate change by awarding grants for community projects applying fresh thinking to cutting carbon emissions. The campaign has gained the support of local authorities, government and the Sustainable Development Commission.

2.4  Developing people through skills and employment opportunities

  EEDA plays a crucial role in promoting employment and enhancing the development and application of skills relevant to employment. Whilst other partners have more significant budgets for skills and employment-related activities, EEDA invests in a range of skills-related interventions, and works to influence the priorities and spending of others in line with regional economic development priorities. Businesses in the region cite skills gaps as one of their top issues.

  To address this, EEDA led a region-wide analysis of higher education capacity and demand, working with all the region's universities. This highlighted that the region lacked sufficient higher education places, with five specific areas with particularly low levels of graduates in the local labour market and very little higher education provision.

  Discussions with partners, including universities and the Higher Education Funding Council for England (HEFCE), led to an ambitious plan for five new higher education centres to be developed—in Southend, Ipswich, Peterborough, Harlow and Thurrock, together increasing higher education places in the region by 8%. Two new universities—in Southend and Ipswich—are now open.

  EEDA's regional approach and leadership allowed difficult decisions to be taken which individual (and competing) universities would have found challenging. It also raised the profile of universities' role as drivers of their local economies. EEDA's approach has influenced national policy, notably HEFCE's New University Challenge, through which HEFCE is seeking to roll out the East of England model of university centres nationally, in recognition of the local economic and social impact of a higher education presence within local communities.

2.5  Prosperous places

  Every major town and city across the East of England has seen significant improvements in its economic asset base, thanks to EEDA investments. Many of these investments are catalysts—in terms of financial leverage, profile and reinvention—for the areas concerned.

  Ipswich is one of the region's key centres where significant growth is planned for the next 15 years and where significant investment in infrastructure was required. EEDA and Ipswich Borough Council developed a joint programme of investment, the Ipswich Prospectus, focusing resources on a limited number of transformational investments that would achieve the greatest impact and leverage of other funding. They include:

    —  The University Campus Suffolk project, to deliver the first higher education institution in Suffolk, with £18.75 million of EEDA investment contributing to a £137 million project.

    —  Cranfields Mill, a waterfront renaissance development—kick-started by £3.5 million EEDA investment in securing land and disused buildings—which is being transformed into an attractive residential area, with 330 new homes, leisure and cultural facilities.

    —  The IP-City Centre—a complex of well-equipped office suites and conference facilities that offers growing businesses space to expand in a thriving location near central Ipswich which lacked business grow-on space.

    —  Working with BT to develop a major new open innovation science park at Adastral Park, already home to BT's world research laboratories and a base for major ICT companies and academia. The proposed 12-hectare science park will create some 4,000 new jobs.

  EEDA is proud that its partnership working and funding support has transformed Ipswich. In total, EEDA has invested £31.87 million in targeted interventions to transform the town, with this funding acting as a catalyst for up to a further £1 billion investment from public and private sector partners.

  More than 80% of the East of England's land is classified as rural and 40% of the region's population live within these areas. Rural areas and their communities make a vital contribution to the prosperity of the East of England. EEDA put activities in rural parts of the region at the heart of its work, with the rural dimension integrated into each of EEDA's main areas of activity. This approach recognises the inter-dependence of rural and urban areas.

3.  RDA EXPERTISE

3.1  Strong expertise at the most appropriate level

  RDAs' focus is on sustainable economic development at regional level, and this is particularly important in the East of England. The region has a primarily two-tier system of local government with, currently 54 local authorities at county, unitary and district level. This leads to a fragmented and relatively sparse economic development capacity and capability within the region, in comparison to others.

  EEDA provides both a critical mass of general economic development expertise at programme and project management level but also specialist expertise aligned to our regional strengths, (for example in relation to specific sectors, clusters and technologies) and across key regional productivity drivers (especially in relation to innovation, enterprise and skills policy and delivery). EEDA believes that these strong economic development skills and expertise are most efficiently retained and resourced at the regional level, and that this benefits all sectors and sub-regions in the East of England.

3.2  Innovative and business-led

  EEDA is flexible, responsive and innovative in the way it allocates resources and delivers its programmes, which is particularly important for a small RDA. EEDA has established effective external partnerships with the public, private and third sectors to ensure it is equipped with the right mix of skills and knowledge to deliver its primary objective of improving the economy of the East of England.

  EEDA's business-led Board brings knowledge, expertise and insight in key regional industries and technologies with extensive experience of networks for business engagement. This brings a strong business focus to the organisation. The Board's focus on economic priorities and delivery is business-led, not subject to changes in political administrations and therefore brings consistency and continued leadership to the economic agenda. This approach drives EEDA to be responsive, nimble, adaptable and fleet of foot.

4.  THE EXTENT OF, AND NEED FOR, RDA OVERSEAS ACTIVITIES

4.1  Effective, well co-ordinated activities that meet global challenges

  Overseas companies attracted to the East of England bring new jobs, significant investment in local and regional supply chains, and through knowledge transfer, new ideas and processes to indigenous companies. There is clear evidence of the link between high-performing businesses and openness to international trade and investment.

  EEDA does not operate any overseas offices or deliver inward investment in-house, in contrast to other regions. Working together with UK Trade and Investment (UKTI), EEDA has commissioned East of England International to provide a combined inward investment and international trade offer—a first in England. This approach has generated many inward investment successes, including securing a £100 million investment into the region from Japanese pharmaceutical giant Eisai.

  EEDA believes that effective engagement in the international economy is critical to regional prosperity and growth. EEDA does this by focusing on a strong international strategy, based on key interventions that can harness effectively the opportunities of global trade and investment, but in the most cost-effective, efficient and focused way.

5.  THE CONSEQUENCES OF EXPANDING RDA REMIT TO INCLUDE NEW FUNCTIONS, AS PROPOSED BY SNR, INCLUDING THE DELIVERY OF EU FUNDING

5.1  Doing economic development better

  EEDA believes that SNR should be about "doing economic development better". Therefore we welcome expanding our remit to include new functions that can add value to our strategic role. EEDA can support strong local authorities to realise and maximise their ambitions as they are complementary and play different roles. Government's real challenge is to continue to devolve from the centre outwards. EEDA has already been successful at taking on new responsibilities and is working with regional partners to ensure that we are equipped to deliver new requirements in the years ahead.

  Closely linking the spatial planning and economic development agendas is a positive step—working to the same timetables, the same evidence basis, the same time horizon and led from a sustainable economic development viewpoint.

  As a member of the Regional Partnership Group for the East of England, EEDA aims to address the implementation of SNR in a constructive and pragmatic way. Effectively a regional strategic partnership, the group is chaired by the regional minister and brings all the regional public agencies together with local government, business and community voices to maximise regional cohesion and opportunities.

  EEDA welcomes its role in the delivery of further EU funding programmes and has worked with partners to develop the only ERDF regional low-carbon programme, focusing on those areas where the greatest impact for the region can be obtained and on actions most likely to achieve sustainable economic growth. This approach has been recognised by the EU as one of the most innovative in Europe.

5.2  Taking forward SNR

  One of the key messages of SNR is the need for an improved dialogue between RDAs and local authorities. EEDA has been addressing this by actively participating in debates about the economy of local places through its engagement in the development of the region's Local Area Agreements (LAAs). EEDA provided input to the development of Government Office negotiating briefs, helping the region securing proportionately more economic indicators in the LAAs than the other English regions and providing director-level engagement with Local Strategic Partnerships in the LAA negotiating phase. EEDA has strengthened its representation within Local Strategic Partnerships and LAAs, bringing its expertise on the region's economy to these local decision making forums.

  EEDA's economic participation programme, which invests in skills, enterprise and employment projects that support people to overcome barriers to economic activity, demonstrates EEDA's progress on the SNR agenda. With strong local authority support, EEDA is already delivering this £23 million per year programme against the economic outcomes in the region's LAAs.

  EEDA's focus is on strengthening its role as strategic regional lead on issues of economic participation, by identifying good practice, gathering regional intelligence, coordinating regional bodies, capacity building where necessary and developing programme level investment packages. Local project prioritisation, decision making, reporting and audit are via the local authority's partnership mechanisms, which are used locally to deliver the agreements and outcomes within the LAAs. This approach has been warmly received by local authorities and other partners.

  EEDA is also ensuring that effective sub-regional capacity exists to take forward SNR principles and is leading a discussion with local authorities and other key partners on streamlining and rationalising sub-regional partnership and delivery arrangements. Underpinning this is the need to recognise that sub-regional economic development capacity (both leadership and delivery) in the East of England is not of a comparable level to many other regions and that potential local authority resource levers such as LABGI and Supplementary Business Rates need to be utilised fully if we are to improve capacity in the region.

6.  THE ACCOUNTABILITY OF RDAS

6.1  EEDA's accountability already operates on several levels

  In addition to being accountable to ministers and parliament via government reporting requirements, and to its Board, stakeholder accountability is enforced through:

    —  regular liaison panel meetings with the East of England Regional Assembly (EERA)

    —  high-level meetings between senior EEDA executives, the Government Office for the East of England (GO East) and EERA

    —  annual public accountability meetings within the sub-regions where EEDA is held to account for its performance, attended by hundreds of people annually

    —  extensive consultation with stakeholders on key strategies and EEDA's own Corporate Plan.

  These arrangements have led to progressive working practices in the East of England, culminating in unqualified support both for the new regional economic strategy to 2031 and EEDA's Corporate Plan for the next three years.

  EEDA welcomes any further arrangements that strengthen its accountability to stakeholders if they also strengthen its mandate. However, EEDA would wish to ensure that any proposed arrangements are not providing additional cost burdens to the taxpayer and that the focus is on the accountability of all relevant organisations and authorities involved in delivering improved regional economic performance, not just the RDA.

7.  HOW RDA PERFORMANCE HAS BEEN MEASURED IN THE PAST AND WILL BE MEASURED IN FUTURE

7.1  A track record of delivery

  RDA performance measurement has evolved considerably since inception. Since 1999 EEDA has consistently delivered (and in many cases exceeded) against targets year on year:

    —  31,994 jobs created or safeguarded

    —  143,513 people with improved skills

    —  9,711 businesses helped to start and grow

    —  61,092 businesses helped to improve their performance

    —  303 hectares of brownfield land regenerated

    —  £679 million leveraged in public and private regeneration investment

    —  two new universities created

  EEDA supports the move to report on its contribution to the regional growth objective (GVA) and regional outcome targets as opposed to outputs. However given that EEDA's budget is less than 0.5% of total public spending in the region, it is essential that the regional outcome targets are consistent with the tasking of other Government agencies and Local Area Agreements in order that they are truly measurable.

SUMMARY

  EEDA provides strategic economic leadership to the East of England, the UK's innovation region. EEDA's role in improving the East of England's economy is crucial for this region to continue to punch above its weight in the global marketplace.

  EEDA takes the lead in addressing key economic issues; puts business at the forefront of the economic agenda; and works in partnership with the public, private and third sectors to make a real difference to people, places and businesses in the East of England.

  EEDA has pioneered innovative programmes and delivery approaches; has consistently met its targets and goals; is flexible, nimble, fleet of foot and adaptable; and delivers efficient and effective services.

  EEDA is proud of its impact on the economy of the East of England.







 
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Prepared 13 March 2009