Report - London Borough of Hillingdon

Cabinet 

Meeting date: THURSDAY 10 TH NOVEMBER 2005 

Time: 

Venue: 

7.00PM 

COMMITTEE ROOM 6, CIVIC CENTRE 

HIGH STREET, UXBRIDGE 

Councillors in the Cabinet 

Councillor Ray Puddifoot 

Councillor David Simmonds 

Councillor Sandra Jenkins 

Councillor Philip Corthorne 

Councillor Solveig Stone 

Councillor Jonathan Bianco 

Councillor Douglas Mills 

Councillor Keith Burrows 

Councillor Mike Heywood 

Portfolio / designated area of responsibility 

Leader of the Council (Cabinet Chairman), 

Older People’s Champion 

Deputy Leader of the Council, Social Services and 

Health, future development of Children’s Services 

Environment 

Housing 

Education, Youth and Leisure 

Finance, Regeneration and Corporate Services 

Performance, Partnerships and Community Safety 

Planning and Transportation 

Service Co-ordination 

Further information 

This agenda was published on 2 November and contains reports which detail the business 

of and decisions to be made by the Cabinet at its meeting on the 10 November. If you 

would like further information, please call Hillingdon’s Cabinet Office on 01895 250 472, 

email cabinet@hillingdon.gov.uk or visit the Council’s website www.hillingdon.gov.uk 

Mark Braddock – Cabinet Secretary 

Involving the Public in the way we do business… 

Members of the Public and Press are very welcome to attend this 

meeting. Free parking is available via the entrance to the Civic 

Centre in the High Street. Bus routes 427, U1, U3, U4 and U7 all 

stop at the Civic Centre. Uxbridge underground station, with the 

Piccadilly and Metropolitan lines, is a short walk away. Please 

enter from the Council’s main reception where you will be 

directed to the Committee Room. 

Please switch off your mobile phone when entering the room and 

note that the Council operates a no-smoking policy in its offices. 

This agenda 

is available in 

large print

Agenda & Business 

1. Apologies for Absence 

2. Declarations of Interest in matters coming before this meeting 

3. To receive the minutes of the Cabinet meeting held on 12 October 2005 (pages 1 – 

12) 

4. To confirm that the items of business marked Part I will be considered in Public and 

that the items marked Part 2 will be considered in private 

5. Consideration of Cabinet reports (listed below) 

6. Any Business transferred from Part 1 of the agenda. 

Cabinet Reports – Part 1 – Members, Public and the Press 

Items are marked in the order that they will be considered. A reference number is shown to 

indicate that this item has previously appeared on the Council’s Forward Plan. The 

Forward Plan is a publicly available document updated each month which outlines, as far 

as possible, the Cabinet’s work programme over the next four months. 

Page No. Ref No. 

1 Hillingdon Council’s Strategy for Older People 13 - 

2 Development of Children’s Services 42 427 

3 Consultation and Engagement – A Future Strategy 52 361 

for Hillingdon 

4 Hillingdon’s Domestic Violence Strategy 64 512 

5 Council Workforce Plan 2005-2015 112 516 

6 Equality Standard for Local Government – an 

140 441 

update 

7 West London Tram – Consultation Response 151 - 

8 Performance Management Audit – Action Plan 185 514 

9 Draft Joint Municipal Waste Management Strategy 206 335 

10 Acorn Youth Club development, Columbia Avenue, 220 508 

Eastcote 

11 Refurbishment and reopening of Public 

226 515 

Conveniences in Shopping Centres 

12 Proposed Charging for Pre-Application Advice on 229 504 

Major Development Schemes 

13 Budget Month 6 2005/06 Revenue and Capital 240 465 

Monitoring 

14 The Great Barn, Manor Court, Harmondsworth 271 - 

Cabinet Reports - Part 2 – Private, Members Only 

The reports listed below in Part 2 are not made public because they contain confidential or 

exempt information as defined by law in the Local Government (Access to Information Act 

1985). This is because: 

• Part of Item 14 and the whole of Item 15 contain information relating to the financial 

or business affairs of any particular person (other than the Authority). (paragraph 7 

of the Schedule to the Act).

• Items 16 - 24 contain information relating to any terms proposed or to be proposed 

by or to the authority in the course of negotiations for a contract for the acquisition 

or disposal of property or the supply of goods or services. (paragraph 9 of the 

Schedule to the Act). 

Page No. Ref No. 

14 The Great Barn, Manor Court, Harmondsworth 285 - 

– Part 2 Appendix 

15 Uxbridge Lido and Sports Centre Procurement 298 388 

– Leisure Management Operator 

16 Frank Welch Court, Eastcote – Progress on 

339 477 

Redevelopment 

17 Bedwell Gardens Community Centre, Hayes 344 370 

18 Sites E, H and L at Hillingdon House Farm, 

360 - 

Uxbridge 

19 King Edwards Road, Ruislip – Former Hostel 364 473 

20 Tender for new 4 bed Respite Care Home at 371 458 

Burns Close, Hayes 

21 Tender for Provision of Insurance Cover 377 513 

22 Tender for Home Improvement Agency and 

387 493 

Home Handyperson Scheme 

23 Pole Hill Open Space, off Gainsborough Road, 392 482 

Hayes – Grant of Licence 

24 Herlwyn Avenue Playing Fields, West End 

Road, Ruislip – Grant of Licence 

396 483 

7. Any Items transferred from Part 1 

8. Any Other Business in Part 2

Cabinet Decisions – 12 th October 2005 

DECISION LIST 

The left hand column indicates the decision number, which relates to the report number on 

the main agenda. The middle column details the actual decision made, the reason for that 

decision and also any alternatives considered or rejected. The right hand column indicates 

the name of the officer(s) responsible for implementing/following up the decision in each case. 

Cabinet Members Present – Councillors: 

• Ray Puddifoot (Leader of the Council and Cabinet Chairman) 

• David Simmonds (Deputy Leader and Cabinet Member for 

Social Services & Health) 

• Philip Corthorne (Cabinet Member for Housing) 

• Mike Heywood (Cabinet Member for Planning & Transportation) 

• Sandra Jenkins (Cabinet Member for Environment) 

• Douglas Mills (Cabinet Member for Performance, Partnerships 

& Community Safety) 

• Solveig Stone (Cabinet Member for Education, Youth & 

Leisure) 

Officer contact 

CABINET 

OFFICE 

01895 250472 

Other Party Leaders Present – Councillors: 

• Rod Dubrow-Marshall (Leader of the Labour Group) 

• Mike Cox (Deputy Leader of the Liberal Democrat Group) 

Apologies for absence received from :- 

• Jonathan Bianco (Cabinet Member for Finance, Regeneration 

and Corporate Services) 

DECLARATIONS OF INTEREST 

Councillor Rod Dubrow-Marshall declared a general personal and nonprejudicial 

interest as Dean of Faculty at Buckinghamshire Chilterns 

University College, which was a provider of courses to the Council’s 

Social Services Group and as a member of the Board of Hillingdon 

Homes. He also declared a personal and non-prejudicial interest as a 

Governor of Uxbridge High School (Item 4). 

MINUTES OF MEETING HELD ON 8 TH SEPTEMBER 2005 

The minutes of the meeting held on 8 th September 2005 were agreed 

as a correct record. 

CABINET 

OFFICE 

01895 250472 

CABINET 

OFFICE 

01895 250472 

Cabinet Decisions 12.10.2005 Page 1

DISTRIBUTION OF REPORTS IN PUBLIC AND PRIVATE 

Reports on item 8, items 10 to 16 and part of item 9 were considered to 

contain exempt information as defined in the paragraphs to the 

Schedule to the Local Government (Access to Information) Act 1985. 

These reports and part report were considered in the private section of 

the meeting with the exception of item 16 which the Cabinet agreed to 

consider in the public part of the meeting in view of the public interest in 

the issue. 

1 COUNCIL PLAN AND COMMUNITY STRATEGY : 

PROGRESS REPORT ON WORK PROGRAMME 

DECISION 

That the Cabinet notes the progress made to date and indicates 

that it wishes all targets to be met. 

REASON FOR DECISION 

Cabinet agreed that both the Community Strategy and Council Plan 

should be monitored regularly. 

CABINET 

OFFICE 

01895 250472 

TRACY 

WATERS 

01895 277694 

PAUL 

WILLIAMS 

01895 250986 

ALTERNATIVES CONSIDERED AND REJECTED 

Cabinet could have instructed officers to take further action on the work 

programmes. 

2 HEATHROW AIRPORT MASTER PLAN – 

CONSULTATION RESPONSE 

DECISION 

TIM JURDON 

01895 250610 

1. That Cabinet agrees the Council’s response to BAA’s Heathrow 

Airport Interim Master Plan consultation as set out in the report 

together with the responses to the questions set out in Appendix 1 

and the following additional response to Question 8 :- 

‘Reference is made in the Interim Master Plan to the need for 

demand management on roads in respect of any schemes for 

additional public transport infrastructure (para 9.35 refers). The 

Council expects any such potential road pricing proposals to take 

full account of the needs of existing local residents and 

communities. They should not be financially disadvantaged 

simply to facilitate the commercial expansion of Heathrow 

Airport.’ 

and the following additional response to question 7 :- 

‘The Council notes that BAA is not willing to cooperate in setting 

up community liaison with stakeholders to cover and evaluate 


complaints about airport noise.’ 

2. That the wording of the final response to be made is delegated 

to officers, in consultation with the Cabinet Member for Planning 

and Transportation, including the following additional wording in 

the response :- ‘BAA has a regulatory responsibility to develop a 

strategic environmental impact assessment with regard to 

Heathrow Airport.’ 


The response will make BAA aware of the Council’s views in order to 

seek to improve the content and subsequent outcomes from the Master 

Plan in accordance with the Council’s priorities. 


To make no comment. 

3 VOID TRANSFER POLICY 

DECISION 

That the Council continues to jointly deliver the Void Transfer 

Agreement with Chiltern Hundreds Charitable Housing 

Association (CHCHA) to transfer another 100 Council homes to 

the Association. 

MELISSA 

SPARKS 

01895 556689 


The scheme enables the Council to maximise the use of a limited 

number of its dwellings in order to secure additional affordable homes 

for rent on a permanent basis to meet local housing need. 

The scheme also impacts beneficially on the Council’s Comprehensive 

Performance Assessment as it contributes to the Government targets of 

reducing numbers of households in temporary accommodation and the 

length of time in B & Bs. 


To terminate the Agreement. 

4 SCHOOL ASSET MANAGEMENT STRATEGY 

DECISION 

1. That Cabinet approves a draft forward plan for consultation 

with schools. 

VENETIA 

ROGERS 

01895 250494 

2. That Cabinet agrees that projects at the schools identified in 

paragraph 14 of the report should be programmed as soon as 


capital resources permit. 

3. That a further report be made to Cabinet following consultation 

with schools. 

4. That Cabinet approves the draft LEA Assessibility Strategy as a 

basis for consultation with schools and relevant community 

groups and other partners. 


The development of a forward plan for capital investment in the 

schools’ estate is essential in order to support school improvement, 

ensure that buildings are safe and fit for purpose, discharge the 

Council’s statutory responsibilities for health & safety, ensure that the 

best use is made of scarce capital resources, ensure that propertyrelated 

risks are managed, and for the Council’s decision-making 

processes to have credibility with schools. 

The LEA is required to have in place an Accessibility Strategy for 

schools. 


To not proceed with the development of a forward plan. Cabinet could 

have proposed amendments to the consultation document or to the 

draft Accessibility Strategy. 

5 PLANNING OBLIGATIONS – QUARTERLY FINANCIAL 

MONITORING REPORT 

DECISION 

That the Cabinet notes the updated financial information as set 

out in Appendix 1 to the report. 


The District Audit “Management of Planning Obligations” Action Plan 

1999 contained a number of recommendations. Recommendation R13 

specifically requires the Council to produce regular financial 

statements. The regular reporting of such information is necessary to 

aid transparency and assure probity in the area of planning obligations. 

JALES 

TIPPELL 

01895 250402 

PAUL 

NEEDHAM 

01895 277084 


It is a requirement of the District Audit report and an obvious example 

of good practice to monitor income and expenditure against specific 

planning agreements and ensure that expenditure takes place in 

accordance within the parameters of those agreements. 


6 CORPORATE EQUALITIES AND DIVERSITY PLAN 

Cabinet recorded its thanks to officers for producing the Plan. 

DECISION 

That the Plan be agreed and approved for publication on the 

external and internal websites and officers be instructed / 

requested to utilise its contents in developing service plans. 

SONIA 

GANDHI 

01895 277019 


This plan will ensure that the Council reach its target of level 2 for the 

Equality Standard for Local Government by March 2006, and levels 3 / 

4 by March 2008. No target has yet been set for level 5, but it is 

anticipated that the Council will achieve this target by March 2010. 

Ensuring that the actions stated in the plan will result in meeting all of 

the equality and diversity best value performance indiactors as 

indicated in the Council Plan. 

Many of the actions listed will help the council meet short, medium and 

long term targets as stated in the Community Strategy. 


Cabinet could have modified the plan. 

7 BUDGET – MONTH 5 2005/06 REVENUE MONITORING 

DECISION 

1. That Directors provide Cabinet Members with options to ensure 

any forecast overspend on revenue budgets for the current year is 

reduced to bring it back in line with the approved budget. 

PAUL 

WHAYMAND 

01895 556074 

2. That the Leader of the Council assisted by other Cabinet 

Members, be instructed to review the Adult Education and Special 

Education Needs budgets and report back to Cabinet at a later 

date. 


To ensure the Council achieves its budgetary objectives. 


None. 

The report relating to this item had been dispatched less than 5 working 

days before the Cabinet meeting and the Chairman therefore agreed 

that it may be discussed as urgent so that decisions on the budget may 


e taken based on the most up to date information available. 

8 BOTWELL GREEN SPORTS AND LEISURE CENTRE – 

APPOINTMENT OF QUANTITY SURVEYORS / COST 

CONSULTANTS AND DESIGN TEAM TO DEVELOP THE 

DESIGN 

BILL KING 

01895 250566 

DECISION 

1. To agree to progress the development of the Botwell Green 

Sports & Leisure Centre. 

2. To authorise the expenditure of £750K as outlined in the 

body of the report to develop the project up to pre-construction 

stage. 

3. To agree to the appointment of Atkins Consultants to act as 

the Council’s Quantity Surveyor/Cost Consultants for the project. 

4. To agree to the appointment of an architect led design team 

at the conclusion of the best value review undertaken by the 

appointed quantity surveyor and officers based on the submitted 

tenders that will provide the most suitable design solution. 

5. To authorise the Asset Management Review Project Director 

to commission surveys as necessary to develop designs to preconstruction. 

6. To agree to the submission of detailed planning 

application(s) at RIBA Stage D to secure consent for the 

development of the Project. 

7. To agree to the submission of Outline Planning application 

for the disposal of Hayes Pool. 


To enable progress of a key project, which is part of the Education, 

Youth & Leisure Asset Management Review strategy of developing new 

leisure facilities to meet the needs of the community. 


To not approve the appointments and cancel the project. 

This report was considered in part 2 because it contained exempt 

information as defined in paragraph 8 of the schedule to the Local 

Government (Access to Information) Act 1985. (The amount of any 

expenditure proposed to be incurred by the authority under any 

particular contract for the acquisition of property of the supply of goods 

or services). 


9 REFURBISHMENT AND REOPENING OF PUBLIC 

CONVENIENCES IN SHOPPING CENTRES 

DECISION 

GERRY 

EDWARDS 

01895 250903 

1. To request officers to progress the reopening of the public 

conveniences at Botwell Lane, Hayes and Manor Farm, Ruislip 

(Option b) and to report the proposed programme to the 

November meeting of the Cabinet. 

2. To agree to the funding of CCTV provision from the CCTV 

budget. 


To respond to the requests of older people and disabled people in the 

borough for the Council to reopen some of the public toilets previously 

closed using funding from the fund for disabled and older people’s 

priorities. 


To reopen alternative or additional public conveniences. 



that it may be discussed as urgent because of the need to progress 

works speedily. 

Appendix A to this report was considered in part 2 because it contained 

exempt information as defined in paragraph 8 of the schedule to the 

Local Government (Access to Information) Act 1985. (The amount of 

any expenditure proposed to be incurred by the authority under any 


or services). 

10 RUISLIP MANOR SPORTS AND SOCIAL CLUB 

DECISION 

1. That in view of its wish to see the preservation of a valuable 

sports and recreational facility in the Ruislip area, the Cabinet 

supports the existence of Ruislip Manor Sports and Social Club 

(RMSSC) and the need for it to continue to provide such a facility 

for the benefit of the community. 

DORIAN 

LEATHAM 

01895 250569 

2. That Cabinet authorises the Corporate Director of Education 

Youth and Leisure to explore whether, as part of the voluntary and 

community sector initiative, it is possible for RMSSC to assist in 

the area of youth development and thereby attract grant funding 

from the Council. 


3. That Cabinet authorises the Head of Corporate Property 

Services and the Borough Solicitor to explore whether the 

Landlord is prepared to permit the location of the London 

Ambulance Services’ vehicles on part of the playing fields which it 

has demised to RMSSC. 

4. That in the event that a satisfactory solution cannot be 

found by pursuing the courses of action set out in Decisions 2 and 

3 above, Cabinet authorises offices to explore generally whether 

any assistance, including the possibility of providing financial 

assistance, can be given to RMSSC. 

5. That once officers have explored the possibilities set out in 

the above recommendations and the outcome of the arbitration 

process is known, to report back to the Leader and the Chief 

Executive who will have the delegated authority to decide the form 

and extent of any assistance which the Council may decide to 

provide to RMSSC. 


Cabinet wishes to explore the steps which it can legitimately take to 

support and assist RMSSC. 


To not provide assistance to the RMSSC. 



Government (Access to Information) Act 1985. (information relating to 

any particular applicant for, or recipient or former recipient of, any 

financial assistance provided by the authority ). 

11 ACCEPTANCE OF TENDER FOR TERM CONTRACT – 

SCHEDULE 33 – ERECTION AND RENEWAL OF STREET 

FURNITURE 

DECISION 

E BALA 

01895 250443 

That the Term Contract Schedule 33 – Erection and Renewal of 

Street Furniture be awarded to Cyril Smith (Fencing) ltd. 


The analysis of tenders received shows that the one recommended 

offers best value to the Council. 


To accept an alternative tender. 




Government (Access to Information) Act 1985. (Any terms proposed by 

or to the authority in the course of negotiations for a Contract for the 

acquisition or disposal of property of the supply of goods or services). 

12 REPLACEMENT OF THE LIBRARY COMPUTER 

MANAGEMENT SYSTEM 

DECISION 

1. That Cabinet approves that SirsiDynix be awarded preferred 

supplier status for the contract subject to satisfactory terms and 

conditions being negotiated. 

DERRICK 

FERNANDES 

01895 250701 

2. That Cabinet approves the re-phasing of the costs of the capital 

project, as set out in Table D in Section 9.0 of the report. 


SirsiDynix offered the best value. 


To accept another of the tenders. 






or services). 

13 SELECTION OF SUPPLIER OF NETWORK HARDWARE 

DECISION 

1. That Company A is awarded preferred supplier status for this 

contract subject to satisfactory terms and conditions being 

negotiated. 

STEVE 

PALMER 

01895 556009 

2. That Company B is awarded secondary supplier status should 

satisfactory terms and conditions fail to be negotiated with 

Company A. 


Company A has clearly demonstrated their ability to officers to deliver 

the items in the current capital programme. Company B has also 

demonstrated that they have the ability to deliver but at a higher cost 

than Company A. 



To award the contract to another company. 






or services). 

14 UXBRIDGE RUGBY FOOTBALL CLUB – HILLINGDON 

HOUSE FARM 

DECISION 

1. To approve the terms set out in Appendix A and B for the grant 

of an Agreement for a Lease and Lease for a term of fifteen years 

in respect of the land shown edged black on plan UXB444 dated 

7 th September 2005 to permit construction of the rugby pitch. 

MAYUR 

PATEL 

01895 277279 

2. That paragraph 5 in Appendix B be amended to add the 

following wording to the end:- ‘, as attached to the lease.’ 


To allow the construction of a new rugby pitch. 


To not grant an agreement. 






15 APPOINTMENT OF CONSULTANT TO PREPARE 

OUTLINE PLANNING APPLICATION AND ANY 

NECESSARY ACCOMPANYING REPORTS FOR THE 

DISPOSAL OF HARLINGTON ROAD DEPOT 

DECISION 

SETISH 

VEKARIA 

01895 277245 

To appoint Bickerdike Allen Partners to prepare the outline 

planning application and any necessary accompanying reports 

and assessments for the disposal of Harlington Road Depot. 



To progress the project. 


To identify an alternative resource to manage the planning application. 






16 PROGRESS REPORT ON THE POTENTIAL ACQUISITION 

OF HARMONDSWORTH BARN 

DECISION 

1. That Cabinet expresses its wish to purchase the freehold of 

Harmondsworth Barn but notes that the condition survey and 

estimated annual maintenance revenue costs are still to be 

confirmed. 

2. That Cabinet notes that the appropriate delegated officer will 

take any necessary decision with respect to Harmondsworth Barn 

in consultation with the Leader of the Council and the Cabinet 

Members for Finance, Regeneration and Corporate Services and 

Planning and Transportation. 

JANET 

RANGELEY 

01895 250553 

SARAH 

DRYSDALE 

01895 277078 


To ensure that the barn is secured for the community. 


None. 



that it may be discussed as urgent in order that a formal statement 

indicating the Council’s interest in securing the long term future of the 

Barn is made before the Official Receivers close the accounts on 31 st 

October 2005. 

This report was identified as containing exempt information as defined 

in paragraph 8 of the schedule to the Local Government (Access to 

Information) Act 1985. (The amount of any expenditure proposed to be 

incurred by the authority under any particular contract for the 

acquisition of property of the supply of goods or services). 

The Cabinet decided to consider the item in the public part of the 


meeting in view of the public interest in the issue. 

The meeting closed at 8.33 p.m. 

THIS DECISIONS SHEET WAS PUBLISHED ON 13 TH OCTOBER 2005. NO DECISIONS 

WERE CALLED IN FOR SCRUTINY AND ALL DECISIONS THEREFORE CAME INTO 

FORCE ON 20 TH OCTOBER 2005. 


HILLINGDON COUNCIL’S STRATEGY FOR 

OLDER PEOPLE 

ITEM 1 

Contact Officer Phillip Sharpe 01895 277274 

Papers with this report 

Appendix 1 - attached 

SUMMARY 

This report outlines the development of a multi-agency, Council strategy for older 

people which links to Hillingdon’s Community Plan. Members are asked to adopt the 

strategy attached as appendix one and agree to the monitoring procedures outlined. 

RECOMMENDATIONS 

That the Cabinet agrees: 

1. To adopt the strategy as outlined in Appendix 1. 

2. That an action plan be developed following publication of the strategy 

which will be monitored by an inter-agency strategy group, older people and 

the Older People’s Champion. 

3. That a copy of the action plan be brought to Cabinet in January 2006 for 

information. 

REASONS FOR OFFICER RECOMMENDATION 

The adoption of this strategy and development and implementation of an action plan 

will enable the Council to work with partners and the community to continue to 

improve services for older people and take appropriate action on those areas for 

further development identified by older people during the consultation Adoption of 

the strategy assists the Council and its partners in meeting the requirements of the 

Comprehensive Performance Assessment (CPA) Key Lines of Enquiry (KLOE’s), 

delivering the Community Strategy and in further improving services to older people 

in our Community. 

OPTIONS AVAILABLE 

Cabinet could amend the Plan. 

INFORMATION 

1. The development of a Health & Social Care Strategy for Older People in 

September 2004 identified a range of issues important to older people which were 

PART 1 – MEMBERS, PUBLIC AND PRESS 

Cabinet report 10 th November 2005 Page 13

outside of the strategy’s health and social care remit. At the same time the Council 

carried out a self-assessment against the CPA KLOE’s for older people which 

highlighted the need to develop a Council wide and interagency strategy 

encompassing the wider spectrum of older peoples’ well-being. This strategy has 

now been developed in partnership with a wide range of partners including the PCT, 

Hillingdon Hospital, the voluntary sector, Police, Ambulance Service and Fire 

Brigade. 

Financial Implications 

2. The draft capital programme provides for £250k for each of the next 3 years 

to support this initiative. In the medium term this strategy will mitigate future revenue 

budget pressures as it will enable more people to live in their own homes which is a 

more cost efficient option than utilising residential care. 

CORPORATE CONSULTATIONS CARRIED OUT 

3. This strategy was agreed at management board on the 27.9.05 and has been 

produced by an interdepartmental and interagency group involving all of the 

Council’s departments. 

Corporate Finance Comments 

4. Corporate Finance has reviewed this report and the financial implications 

within it. The view of Corporate Finance is that this report and its financial 

implications properly reflect both the direct resource implications on the service 

concerned and any wider implications on Council resources as a whole. 

Legal Implications 

5. The Local Government Act 2000 is relevant to the Council's Strategy for Older 

People in two respects which can be briefly summarised as follows: 

6. Section 2 provides that every local authority has the power to do anything 

which it considers is likely to achieve the promotion or improvement of the economic, 

social or environmental wellbeing of an area. These three heads of wellbeing have a 

very wide scope and therefore give considerable discretion to a local authority. 

7. It is important to note that the above power may be exercised in relation to or 

for the benefit of the whole or any part of a local authority's area or all or any persons 

resident or present in such an area. The power can therefore clearly be used to 

underpin the Council's Strategy for Older People in Hillingdon. 

8. As is stated in the strategy document, it is important to recognise that the 

themes for the Plan for Older People are linked to Hillingdon's Community Plan 2005 

which outlines the Council's vision for the future of Hillingdon's communities. 



9. Section 4 of the Act makes it a requirement for every local authority to 

prepare a Community Strategy for promoting or improving the well-being of their 

area and contributing to the achievement of sustainable development in the United 

Kingdom. 

EXTERNAL CONSULTATIONS CARRIED OUT 

10. The document was endorsed by the PCT management board on the 8.9.05 

On 3 October 2005 at the Assembly for Older People, The Leader of the Council, 

Cllr Ray Puddifoot launched Hillingdon Council’s Strategy for Older People and also 

announced his appointment as Champion for Older People. This was also widely 

reported in the local media and comments invited by them. 

11. 1000 copies of the strategy went out to older people and community groups 

for comment by 21 October. It has also been through a reader’s panel and 

confirmed as “understandable and promising”. 

Below are some of the comments received: 

• Older people welcomed the Leader as their Champion and felt that this 

would have the positive effect of raising their value and profile in the 

community. 

• The Gazette and The Leader articles about both the launch of the 

strategy, and the Leader as Champion, were very positive and viewed it as 

an excellent opportunity to improve the lives of older people in the 

community. 

• There were 2 subsequent letters in the Gazette, both with a useful 

contribution to service planning. 

• Many older people do not feel safe in their homes or in the community and 

welcomed the ‘overall’ approach of the plan which includes community 

safety. 

• “The appearance of local areas with suitable lighting and safe pavements 

is important to older people”. 

• “A clean and attractive borough where the environment is protected, 

transport links improved and our heritage preserved – is what we want”. 

• “Promoting active ageing – this would be beneficial to ALL residents… not 

merely the elderly…” 

• “If telephone surveys are to be carried out, please send a written notice…I 

would like to congratulate the Council on its efforts at consultation.” 



• It is useful that this strategy will also influence any health processes and 

inefficiencies. Older people want more information on the healthcare that 

is available and the cost where applicable. 

12. Older people also welcomed The Leader’s intention to make £250,000 available 

to improve access/facilities in the community. 

Other partners and stakeholders have been consulted and have contributed to the 

strategy. 

The strategy will be amended, as and when necessary, to reflect any further views 

that are expressed by older people or stakeholders. 

BACKGROUND DOCUMENTS 

Consultation responses 



APPENDIX 1 

September 

2005 

For 

Consultation 

Hillingdon 

Council’s 

Plan for Older 

People 

Improving the 

quality of life 

for our older 

residents 



Forward – By the Older 

People’s Champion 

Hillingdon’s older 

residents are one of our 

greatest resources. They 

are part of our living 

history for younger 

generations to learn from. 

Some were children at the 

time when London was 

being bombed day after 

day. Others came to 

escape oppression. 

Others to find a better life 

for their children. They 

have served Hillingdon 

well as good neighbours, 

as parents, as councillors, 

as volunteers, as public 

servants and as business 

people. 

I want to work with older 

residents to find out what 

a better Hillingdon will 

mean for them and this 

plan aims to set out how 

the council will champion 

their ideas. I also want to 

work with people who are 

50+ so that we start to 

plan for their future. 

In any community, and 

certainly in one as diverse 

as Hillingdon, there will be 

no single view about what 

older people want from 

their council. Mostly they 

will want the same as 

everyone else – to live in a 

safe clean environment, to 

be able to easily access 

services and to receive 

prompt help with any 

problems or difficulties. 

Older people are more 

likely to be physically frail 

and some socially 

isolated. 

In putting this plan 

together we will consult 

widely with older people – 

individually and with 

organisations that work 

with them. We cannot do 

everything that they would 

like. Sometimes we do 

not have the power and 

for some things we do not 

have the money. I 

believe this plan 

champions and celebrates 

older people. I will 

continue to work with my 

fellow councillors and 

officers to ensure we do 

what we say we are going 

to do in this plan. 



Introduction 

This plan identifies what 

the council can do directly 

and through its influence 

that will improve life for 

older people. 

There are many examples 

of good practice and 

excellence in Hillingdon. 

Co-operation between the 

council and the health 

service, and voluntary 

sector for example, is 

already bringing better 

services and helping more 

older people to live 

independently. We want 

to build on our successes 

and improve how we work 

for older people across the 

council. We want a better 

quality of life for all older 

people. 

While many older people 

in Hillingdon will carry on 

enjoying the same quality 

of life as they grow older, 

some will become isolated 

and physically or mentally 

frail. This plan sets out 

what we propose to do to 

improve their lives and 

when we can, preventing 

some of the problems 

associated with growing 

older. The plan talks 

about our longer-term 

aspirations and the 

actions we will take in the 

next three years to 

achieve our goals. 

It is important to 

understand that the 

themes for this Plan for 

Older People, are linked to 

Hillingdon’s Community 

Plan 2005, which outlines 

the council’s‘vision’ for the 

future of Hillingdon’s 

communities. The seven 

key areas of this vision 

are: 

• A borough of 

learning and 

culture – where 

residents can 

develop their skills, 

broaden their 

knowledge and 

embrace new 

leisure pursuits. 

• A safe borough – 

where crime and 

the fear of crime is 

falling, policing is 



visible and our 

community is 

safer. 

• A clean and 

attractive 

borough – where 

the environment is 

protected, 

transport links 

improved and our 

heritage 

preserved. 

• A borough with 

improving health, 

housing and 

social care – 

where first class 

health and social 

care and decent, 

affordable housing 

are available to all. 

• A prosperous 

borough – where 

enterprise is 

encouraged, 

businesses 

supported and 

new jobs created 

for local people. 

• A borough where 

children and 

young people are 

healthy, safe and 

supported – 

where our young 

people are valued, 

properly educated 

and given the 

opportunity to 

thrive. 

Under these themes this 

Plan for Older People 

proposes eight areas for 

action: 

• Safe and secure 

• Involved and 

participating 

• Living 

independently 

• Staying healthy 

• Meeting housing 

needs 

• Out and about 

• Reducing 

discrimination 

• Consulting and 

informing 

While none of these are 

distinct, they provide a 

convenient way of 

organising what we need 

to do. Feeling secure and 

staying healthy have close 

links in promoting the 

participation of older 

people, and there are 

similar close links between 

other areas. Many things 

determine our health and 

quality of life. This plan 



focuses on what the 

council can do either 

directly or by influencing 

what others do to achieve 

its aims. 

Each of these eight 

sections is organised into: 

• Issues for older 

people 

• What the council 

wants to achieve 

• What the council 

is doing now 

• Actions the 

council will take 

in the next 3 

years. 

_____________________ 

Promoting Active 

Ageing 

Our society has changed 

radically over the past 20 

years. People are living 

longer, demanding better 

healthcare, high 

standards, and they will no 

longer put up with the one 

size fits all services of the 

past. People of 50+ are 

now doing things which 20 

years ago people of 30 

would have done. For 

many, old age has 

become a state of mind 

rather than a fixed 

chronological point. 

The foundations for a 

good, healthy old age are 

laid in early life and 

depend on physical 

activity, good diet, mental 

stimulus, good quality 

housing, health care and 

employment opportunities. 

In Hillingdon we want to 

ensure that our services 

are developed in 

consultation with people 

aged 50+ to ensure that 

services reach the 

standards they will expect. 

We want people to remain 

as healthy as possible and 

to enjoy the many 

opportunities of life. We 

will therefore extend our 

health promotion activities 

to those people who are 

50+. 

Some facts and figures 

Although the total number 

of people over 60 in 

Hillingdon is decreasing, 

the proportion of those 



over 75 is increasing. 

The older population is 

also becoming more 

diverse. 

There will, over time, be 

an increasing number of 

older people from the 

diverse communities who 

live in Hillingdon. We 

face the challenge of 

making Hillingdon a good 

place for all older people. 

Information from the 2001 

census has important 

implications for how we 

meet the needs of older 

people. 

• 79.1% of 

Hillingdon’s 

population is white 

• 20.9% from black 

minority ethnic 

communities 

• 36,000 have a 

(limited) long-term 

illness 

• 18,000 have poor 

health 

• 13,000 are 

pensioners living 

alone 

It is likely that the 2001 

census under represents 

the numbers of people in 

these groups. We are 

likely to have to respond 

to a much greater 

proportion of people with 

both high and low level 

needs. 

This Plan is based on the 

following Principles: 

A whole life perspective 

We need to challenge the 

idea that there is a group 

of “old people” – “ageing” 

is simply a process – and 

it is disability or frailty, not 

age, that leads to the 

need for assistance. 

A positive view of 

ageing 

Older people are a 

valuable resource for our 

community. We need to 

use their abilities and 

experience and not think 

of them on as only users 

of services. 

Combating 


There are still inequalities 

and discrimination within 



society despite legislation 

and codes of practice. 

Age discrimination needs 

to be tackled alongside 

other discrimination. Age 

can add to other forms of 

discrimination. 

Citizenship and rights 

Older people need to be 

encouraged to be active 

participants in planning 

and commenting on the 

services they receive. 

Communication and 

Consultation 

Good communication and 

consultation are important 

in quality services. We 

will ensure equality and 

fair access based on 

accurate and up-to-date 

information. 

A Council wide 

approach 

We are one council and 

believe that working 

across departments and in 

partnership with other 

organisations is the best 

way for us to improve the 

well-being of Hillingdon’s 

older people. 

Now we come to the 8 

areas for actions: 

1. Safe and Secure 

Issues for older people 

Many older people worry 

about their safety when 

they leave their homes 

and even sometimes 

whilst in their own homes. 

They read in the papers 

and hear on TV about high 

levels of crime and 

violence and this often 

increases their anxiety. 

Although older people are 

less likely than others to 

be the victims of street 

robbery, they are the 

group of people most 

fearful of such crime. 

This fear can increase 

social isolation, cause 

anxiety and stop older 

people leaving their 

homes. 

It is recognised however 

that older people are at 

risk from those using 

deception to enter their 

homes and steal from 

them, or trick them into 

making payments. 



What the council wants 

to do 

We want to increase older 

people’s confidence by 

reducing both their fear of 

crime and the chances of 

them becoming victims. 

We will work with older 

people, the police, 

housing providers and the 

voluntary sector, to 

improve the safety of older 

people. 

We will, in consultation 

with older people, review 

our progress annually and 

develop action plans for 

the future. 

What we are doing now 

Safeguarding adults 

Some older people are 

abused and exploited by 

relatives, neighbours and 

even carers and 

professionals, and they 

are often reluctant to take 

any action. The council 

has re-launched its policy 

and procedures for 

responding to vulnerable 

people who may be at risk 

from harm or exploitation. 

Alarm Service 

Hillingdon has a well 

established alarm service, 

CareLine, enabling older 

people to quickly get help 

in an emergency. The 

Age Concern 

Handyperson Service and 

Frays Care and Repair 

Service can help with 

upgrading home security. 

Community Safety Team 

The Council’s Community 

Safety Team are working 

with Health colleagues, 

the Police, Fire Services 

and others, on Community 

Safety Plans for 2005- 

2008. The priorities 

which emerged from the 

2003/04 audit are: 

• Violent crime 

(including hate 

crime) 

• Tackling antisocial 

behaviour 

• Residential 

burglary 

• Motor vehicle 

crime (theft of and 

from motor 

vehicles) 



and other issues for the 

Community Safety Team 

include: 

• Publicity 

campaigns to 

show people what 

the reality is. 

• Closer links with 

the police to 

combat 

abandoned 

vehicles, graffiti 

etc. 

• Closer liaison with 

the community. 

What we will do in 2005- 

08 

• Continue to work 

with the police to 

encourage a 

stronger 

community police 

presence. 

• Seek, with others, 

to tackle antisocial 

behaviour 

that makes older 

people nervous 

about leaving their 

homes. 

• Tackle fear of 

crime. 

• Develop neat, tidy 

and well lit 

maintained streets 

which discourage 

low level crime. 

2. Involved and 

participating 

Issues for older 

people 

Older people face a 

number of barriers to 

participating in the life 

of the community. 

Some are difficulties in 

getting out and about, 

some arise from an 

‘attitude’ that does not 

value older people and 

some from lack of 

confidence. 

Lack of involvement can 

lead to greater isolation 

and the needs of those 

older people being 

overlooked. They are 

more likely to have 

friends and relatives 

who have died and to 

have lost spouses and 

partners. They are 

less likely to be working 

and may be restricted in 

travelling because of 

ailing hearing and sight. 



What the council 

wants to do 

We want older people 

to participate in 

community activities 

that they enjoy. We 

want them to continue 

making a valued 

contribution to 

community life in 

Hillingdon. 

Social activities prevent 

isolation and promote 

good mental health. 

We need to see older 

people as a resource 

for our community, and 

to use their skills and 

experience to benefit us 

all. We want to reduce 

barriers to their 

involvement, whether 

physical or stemming 

from the attitude of 

others. We will 

therefore promote their 

participation in social, 

political and cultural 

activities. 

What we are doing 

now 

These are just some 

examples. 

Befriending Schemes 

Age Concern offers 

opportunities for older 

people to be linked to a 

volunteer Befriender, to 

join the Phone Pals 

Scheme, or to 

participate in its Active 

Age projects. There 

are also Friendship 

Clubs for those older 

people who suffer from 

mental illness. 

Lunch Clubs 

There are a range of 

lunch clubs across the 

borough including a 

Multicultural Food and 

Fitness Club in Hayes. 

Many clubs offer 

transport, as well as a 

freshly cooked lunch. 

Further information is 

available from the 

Hillingdon Handbook 

published by Age 

Concern. 

Lifelong learning 

We are encouraging 

older people to learn to 

use computers and 

websites, through Adult 

Education and College 

courses. There is also 



free computer training 

for them in libraries. 

Libraries 

The library services 

offer a wide range of 

free access to books, 

films, music, computers 

and a talking book 

service for the visually 

impaired. They will 

also deliver to people 

who are housebound, 

and there is a mobile 

library service where it 

may be difficult to 

access a branch library. 

What we will do in 

2005-08 

• Increase 

opportunities for 

older people to 

attend lunch clubs 

(and similar 

groups) through 

partnerships with 

the voluntary 

sector and local 

businesses. 

• Develop more 

opportunities for 

older people to 

become involved 

in volunteering 

which uses there 

skills and 

experience. 

• Continue a 

programme of 

library 

refurbishments to 

improve access to 

their services, and 

provide public 

toilets. 

• Recruit volunteers 

to give ‘added 

value’ to the Home 

and Mobile Library 

Service. 

• Work with Healthy 

Hillingdon to 

support their 

health promotions, 

for example, 

healthy walks. 

3. Keeping 

Independent 


people 

Keeping independent is 

sometimes hard for 

older people. Poor 

health and frailty make 

it harder for some older 

people to cook, clean 

and shop. Loss of 



work and friends, and 

distance from families, 

can limit social contact. 

Confidence can be lost, 

sometimes with 

depression and anxiety 

as added difficulties. 

There is still an 

assumption that 

residential care is the 

only safe place for 

people as they get 

older. Some older 

people worry that they 

are becoming a burden. 


wants to do 

We want to assist older 

people to live as 

independently as 

possible in the 

community. We want 

to tackle the difficulties 

that arise through frailty 

and poor physical and 

mental health, and 

through poverty and 

social isolation. 

We want fewer older 

people to go into 

residential care, and 

recognise that this 

depends on moving 

more resources into 

intensive home and 

community support. 

We know that there will 

always be some older 

people who need and 

want to live in 

residential or nursing 

homes, and we will help 

them to find places that 

are best for them. 


now 

Personal Care 

We provide personal 

care to over 3000 older 

people, so that despite 

their frailty they are able 

to live in their own 

homes. 

Meals Service 

We deliver meals to 600 

older people who are 

unable to prepare a 

meal for themselves. 

Equipment Service 

We provide 92% of 

equipment within 7 

days to help people 

manage basic tasks 

around their homes. 



Minor and Major 

Adaptations 

We assess the needs of 

older people for minor 

and major adaptations 

to their homes to 

enable them to continue 

living at home. 

Day centres 

We manage four day 

centres providing social 

and leisure activities. 

Help leaving hospital 

We have increased the 

number of rehabilitation 

places for people who 

no longer need to be in 

a hospital bed but still 

require some extra time 

and support to decide 

what is best for them. 

Breaks for carers 

Older people looking 

after older people, is a 

big issue. Older carers 

can experience double 

isolation. Hillingdon 

Carers run drop-in 

sessions, arts courses 

and a monthly support 

group. The sessions 

are for all carers but 

about 50% are older 

people. 

We can offer carers a 

break from caring. 

Improving 

assessment and how 

we manage care 

We have improved this 

service with the 

introduction of a ‘single’ 

assessment process. 

We will continue to 

improve the quality of 

community care 

assessments so that we 

are looking at the 

‘whole’ needs of a 

person and not just 

their social and health 

care. 

Supporting voluntary 

organisations 

We currently support 49 

Voluntary organisations 

in Hillingdon to provide 

a wide range of 

services. 

Hillingdon Joint 

Visiting Team 

This is a partnership 

between Hillingdon 

Council and the 



Pension Service to help 

people to maximise 

their income. 

Dignity for Older 

People 

The opportunity to die 

with dignity is 

recognised by health 

professionals the world 

over as one of the most 

fundamental of all 

human rights. While 

death as a subject is 

often taboo, many older 

people are happy to talk 

about and plan for their 

death and funeral. In 

Hillingdon we ensure 

that death is dignified 

whether at home, in 

hospital, in residential 

or nursing home care. 


2005-08 

Improve access to 

services 

We will make it easier 

for older people and 

their relatives to contact 

us, and improve our 

ability to respond 

quickly. 

Better care for people 

leaving hospital 

We want to ensure that 

when older people 

leave hospital they 

have the best chance of 

returning to live at home 

or that they are helped 

to move to a suitable 

alternative. 

Easier access to 

health and social care 


develop more joined up 

services between the 

council and primary 

health care staff. 

We will work with 

partners to develop a 

wider range of services 

for all older people from 

our diverse community. 

Preventative services 

We will seek 

opportunities to develop 

preventative services, 

including help with 

housework, gardening 

and shopping for the 

frailest older residents. 

We will develop links 

with partners, for 



example, housing 

associations, pubs, 

clubs and general 

entertainment providers 

etc to see how 

resources can be used 

to benefit older people 

in their vicinity. 

4. Staying healthy 


people 

Action to improve the 

health of older people 

needs to start well 

before they become 

older. The prevention 

of cancers, heart 

disease, strokes, 

diabetes and serious 

respiratory illness all 

depend on taking action 

as early as possible. 

But, it is never too late 

for prevention to be of 

benefit. Exercise, 

healthy eating and 

stopping smoking all 

have major benefits for 

older people. 

Older people need to 

have their health needs 

taken seriously and 

have their mental and 

physical health closely 

monitored. They need 

people to take into 

account the difficulties 

that arise from lack of 

mobility, changes in 

mental capacity, and 

deterioration of sight 

and hearing. Falling is 

one of the most 

common causes of 

hospital treatment for 

older people and the 

risk needs to be 

reduced. 


wants to do 

• Improve well-being 

• Health 

• Access to sports, 

exercise and 

leisure activities 

• Encourage 

participation in 

sport and physical 

activity 

• Encourage greater 

use of green and 

other open spaces 

• Support 

campaigns aimed 

at improving the 

health of the 50+ 


now 



Partnerships with 

health 

Modernising the way we 

provide health and 

social care services to 

provide a more 

integrated approach. 

Older people are 

registered with local 

doctors who will support 

and manage periods of 

ill health. This will also 

include access to other 

support services like 

District Nurses, 

Therapists, palliative 

care and bed-based 

care etc. 

The Ambulance Service 

is taking part in a 

scheme to attend 

people at home who 

have fallen but do not 

require hospital 

admission. 

Sports and Leisure 

Over the past year we 

have been working with 

various older peoples’ 

groups on exercise 

sessions, training 

leaders and introducing 

new activities. We 

have produced a 

booklet on Activities for 

50+ in Hillingdon in 

consultation with older 

people, and produced a 

Sports Strategy. 

It is a fact that currently 

15.6% of Hillingdon’s 

population are 60+ and 

74% of over 65s do not 

do any exercise at all. 


2005-08 

• Action this ‘whole’ 

approach plan for 

the well-being of 

older people. 

• Work to increase 

the integration of 

health and social 

care staff 

delivering support 

to older people 

living at home. 

• Encourage and 

support the need 

to get health 

promotion and 

information to all 

older people. 

• Reduce street and 

transport hazards 

that can contribute 



to older people 

falling. 

5. Housing needs 


people 

Older people face some 

specific problems in 

relation to housing. 

These include: 

• Owner occupiers 

or tenants living in 

poor housing 

where they do not 

have enough 

income to invest in 

improvements or 

where landlords 

are reluctant to 

carry them out. 

• Housing which is 

too large for their 

needs and is 

difficult to 

maintain. 

• Being more 

susceptible to cold 

and damp. 

• Difficulties with 

accommodation 

where there are 

stairs. 

• Lack of any 

housing which is 

adapted to meet 

the needs of older 

people with mental 

health problems, 

especially 

dementia. 


wants to do 


there is sufficient 

accommodation 

suitable to meet the 

needs of all older 

people living in 



to: 

• Feel secure and 

comfortable in the 

home in which 

they live. 

• Be given as wide a 

choice as possible 

about where they 

live. 

• Have access to 

improvements and 

adaptations so 

they are able to 

continue living in 

their home. 

• Contribute to 

housing 



developments and 

neighbourhoods. 


now 

Supported Housing 

We provide supported 

housing with extra care 

so that people with 

additional needs can 

remain living in the 

community, if that is 

what they want. 

Improving the quality 

of homes 

We have continued to 

improve the security 

and warmth of council 

homes and are working 

towards meeting the 

standards in the 

Government paper - 

“Decent Homes”. 

We will, when 

necessary, enforce 

private landlords to 

make the homes they 

rent out safe and 

secure. 


2005-08 

We will consult with 

older people about the 

types of housing they 

want, for example, 

blocks of housing 

designated only for 

older peoples’ use or 

mixed tenancies of both 

older and younger 

people. 

We will develop more 

housing for use in 

rehabilitating people 

needing to be 

discharged from 

hospital. 

Improving mobility at 

home 

We will continue to use 

the Disabled Facilities 

Grant to help older 

people live 

independently, and 

publicise the grant more 

widely. 

We will provide a 

Handyperson Service to 

help older people 

maintain their homes as 

a safe, warm and well lit 

environment. 

Supporting People 



Older people are one of 

three key priorities for 

the Supporting People 

Programme and we will 

continue to fund 

housing related support 

services in sheltered 

housing schemes. We 

will also fund other 

housing related support 

like the Home 

Improvement Agency. 

Meeting the needs of 

all older people 

We will continue to work 

with older people from 

our diverse community 

to ensure their differing 

housing needs are met. 

Anti-social behaviour 

We will work with the 

police and other 

partners to reduce 

racial and other 

harassment 

experienced by older 

people. 

The council has 

developed action plans 

to ensure equitable 

services for all older 

people. 

Helping people 

housed in the private 

sector 

We will, through the 

Home Improvement 

Agency, develop our 

work with vulnerable 

older people in private 

accommodation. 

6. Getting out and 

about 


people 

Older people often face 

problems that limit how 

far they can walk 

without needing a rest. 

They find it harder to 

deal with some of the 

common obstacles on 

pavements, or which 

make it harder to cross 

busy roads. Buses 

and stations often 

require high levels of 

mobility to board and 

travel securely. 

Travelling around 

Hillingdon by public 

transport can challenge 

the able bodied. For 

frail older people it is a 

serious problem. 



Some problems in 

getting out and about 

have already been 

referred to such as the 

fear of crime and anti 

social behaviour. 

Older people also worry 

about finding 

somewhere to sit for a 

rest or go to the toilet. 


wants to do 

We want to make it 

easier for older people 

to get out and about. 

We want to reduce the 

difficulties they 

experience, whether as 

pedestrians, or using 

public and private 

transport. We want 

them to be able to have 

a say on plans to 

develop transport in 

and out of Hillingdon. 


now 

The council supports 

the following accessible 

transport schemes: 

• Freedom Passes 

• Blue badges 

• Taxicard scheme 

• Capital Call 

• Dial-a-Ride 

• Hillingdon 

Community 

Transport 

We use our influence 

with Transport for 

London to make public 

transport easier to use 

for older people. This 

includes more easy 

access buses, more 

routes, more bus 

shelters with seats and 

safer driving. 

The Leader of the 

Council has made 

£250,000 available for 

works in the community 

which will benefit older 

and disabled people, 

and they have been 

asked to identify 

priorities. 

Working with Healthy 

Hillingdon on projects 

which encourage and 

assist people to get out 

and about. 

Supporting the Arts 

Services, for example, a 

50s dance class at the 



Compass Theatre and 

educational 

performances and 

workshops. 


2005-08 

• Improve the 

conditions of 

pavements, 

carrying out more 

repairs and 

working harder to 

prevent 

obstructions by 

traders and others. 

• Improving street 

lighting. 

• Provide more 

street seats so that 

older people can 

rest while out or 

while waiting for a 

bus. 

• Looking at how 

parking can be 

made easier for 

frail drivers and 

passengers, and 

for people visiting 

older people. 

• Improving 

pedestrian 

crossings ensuring 

more of them work 

properly. 

• Exploring the use 

of other council 

facilities to 

improve socialising 

and activities for 

older people. 

• Increasing the 

number of public 

toilets that older 

people can access 

from 10 to 14. 

• Working with the 

voluntary sector 

and with 

businesses to 

develop more 

accessible toilets 

that can be used 

by older people. 

• Involving residents 

in monitoring the 

performance and 

setting standards 

for council 

contractors, so 

that the job gets 

done properly. 

7. Reducing age 



people 

Age discrimination is 

not subject to legislation 

in the same way as 



ace and sex, although 

laws about age 

discrimination in 

employment are 

expected to come into 

force in 2006. 

Older people 

experience a range of 

discrimination. They 

may be viewed as a 

burden, incapable of 

expressing their views 

about how they wish to 

be treated, They may 

be patronised by the 

well-intended, and 

sometimes abused and 

treated with hostility. 

They may also 

experience 

discrimination because 

of their race, religion, 

gender or sexual 

orientation as well as 

because of their age. 


wants to do 

We will challenge age 

discrimination. We will 

work to identify and 

eliminate age 

discrimination in access 

to our services. 

We want to work with 

partners to reduce 

direct and indirect 

discrimination based on 

age. 


now 

Working with health 

partners to action the 

recommendations of the 

National Service 

Framework for Older 

People on reducing age 

discrimination in terms 

of access to health and 

social care services. 

We are ensuring that 

this also applies to 

other council policies 

and services. 

We are working to 

achieve level 2 of the 

Equality Standard for 

Local Government by 

March 2006, endorsing 

our commitment to 

stopping all forms of 

discrimination, including 

that based on age. 


2005-08 



• Review our 

policies on 

employment and 

training 

recognising the 

continued 

contribution of 

older people. 

• Improve customer 

care and the 

understanding of 

the needs of older 

people. 

• Develop an action 

plan to reduce age 

discrimination. 

8. Consulting and 

Informing 


people 

The voices of older 

people are not always 

listened to. Frail older 

people find it difficult to 

get to meetings or 

participate in other 

ways. Some cannot 

speak for themselves. 

Older people are more 

likely to find reading 

reports difficult because 

of the small print. 

Hearing loss may 

hamper taking part in 

discussion or using the 

phone. 

Older people often lack 

good information about 

what is happening 

locally because they 

are isolated. While 

some older people have 

an excellent knowledge 

about events that they 

regularly participate in, 

others know little and 

hardly ever participate. 


wants to do 


to be consulted on all 

aspects of planning. 


the way we consult 

makes it easy for them 

to contribute. 

We will improve the 

quality and availability 

of information about 

what is happening in 



now 

• Supporting the 

Older People’s 

Assembly 



• Supporting the 

Fifty and Over 

Representative 

Committee 

• Supporting other 

forums like 

Sheltered Housing 

which offer a direct 

voice to older 

people 

• Encouraging the 

active participation 

of representatives 

from the whole of 

our diverse 

community within 

the Older People’s 

Assembly. For 

example, those 

who are 

housebound or in 

residential or 

nursing home 

care. 

• Developing an 

Involvement and 

Consultation 

Programme for 

older people, 

• Developing a 

website 

information forum 

for older people 


2005-08 

We will consult with 

older people about this 

plan and how well it is 

being delivered, and 

about how it may need 

to change over time. 

We will improve access 

to the Older People’s 

Assembly through 

telephone conferencing, 

a website information 

forum, questionnaires 

and using advocates for 

those who cannot 

speak for themselves. 

We will ask older 

people if they would like 

their own consultation 

charter and information 

strategy. 

We will make better use 

of : 

- Hillingdon People 

- The Press 

- Assemblies and 

Forums 

- Telephone surveys 

and the voluntary sector 

to inform and involve 

older people, 

particularly about what 



we are achieving, 

events, changes and 

plans that will be of 

interest to them. 


ensure that information 

is available in large 

print, on tape and disk, 

and we will improve the 

availability of 

information for older 

people whose first 

language is not English. 

We will also promote 

the publication of clear 

information in plain 

language with clear 

easy to read layouts. 

We will ensure that 

council information is 

produced in a suitable 

format for older people 

with learning 

disabilities. 

We will produce an A-Z 

of services for older 

people which includes 

access to health, social 

care, housing and daily 

living facilities. 

We will publish the 

Better Care High 

Standards Charter and 

ask older people and 

other users of services 

to work with us to 

ensure that the 

standards are being 

met. 

Conclusion 

This Plan heralds the 

beginning of a new way 

of valuing and working 

with older people using 

a ‘whole’ of life 

approach. 

We welcome the 

involvement of The 

Champion for Older 

People, and older 

people themselves in 

making this Plan a 

success and model for 

the future. 

Hillingdon’s Plan for 

Older 

People/September.05 





DEVELOPMENT OF CHILDREN’S SERVICES ITEM 2 

Contact Officer 


Kamini Rambellas /Chris Spencer 

01895 250527 / 01895 250529 

Appendix A Action Plan - attached 

SUMMARY 

This report updates Cabinet on new developments within children’s services including: 

• Development of the Children and Young People’s Plan 

• Establishment of a Local Safeguarding Children Board 

• Implementation of the agreed recommendations of the Best Value Review of 

Services to Vulnerable Children 

• Progress in developing Education Children & Youth Services department. 

• Priorities identified in the self assessment for the Joint Area Review 


Cabinet is asked: 

1. To note the progress being made to develop a framework for the integration of 

Children’s Services in Hillingdon through: 

• Establishment of the Local Children’s Safeguarding Board 

• Implementation of the decisions of the Best Value Review of 

Vulnerable Children 

• Preparation of the Children and Young People’s Plan 

• Development of Services in accordance with legislative 

requirements. 

2. To agree to receive a further report outlining the next steps in March 2006. 


To keep the Cabinet informed of progress in this new area of development. 


None. 


Cabinet Report – 10 th November 2005 Page 42

INFORMATION 

ANNUAL PERFORMANCE ASSESSMENT (APA) FEEDBACK 

3. Following the submission of the Annual Performance Assessment self assessment, 

the Inspectors have delivered their provisional findings. 

4. The inspectors recognised that a good start has been made in mapping need and 

analysing where service provision should be developed. They acknowledged that the 

authority has already made some significant changes in the deployment of resources to 

target identified development priorities, and that appropriate changes are being made in 

elected member and senior officer responsibilities within the authority to deliver the new 

children’s services agenda. 

5. They accept that the timetable for implementing these changes takes sensible 

account of current service performance issues and what needs to be done to implement 

change effectively. 

6. In summary the inspectors identify that the key task for the authority now is to ensure 

that the recent and planned changes in structures and processes follow through to 

better service provision on the ground and improved outcomes for children and young 

people locally. This will take time. Building on the recent improvements in working 

relationships with schools and other partners is a key requirement. 

INTEGRATED CHILDREN’S SERVICES REVIEW AUDIT COMMISSION REPORT 

7. The report (June 2005) has concluded that ‘Hillingdon has made significant progress 

towards the development of Children’s Integrated Services’ the key issues for further 

development are identified as: 

o Agreement and dissemination of the vision as set out in the Local 

Preventative Strategy as the vision of the Children and Young People’s 

Strategic Partnership Board (CYPSPB) in it’s Children and Young 

People’s Plan 

o Development with partners of a clear overall project plan with allocated 

tasks, timescales, and a risk management plan 

o Representation of children, young people and families at CYPSPB 

o Establishment of a clear governance framework for CYPSPB including a 

joint performance management framework; 

o Development of a joint workforce plan and proposals for pooling of 

budgets. 

See Action Plan at Appendix A 



JOINT AREA REVIEW (JAR) 

8. Following the APA the council was required to complete a broader self assessment 

for the Joint Area Review (JAR) taking into account the contribution of partners in the 

wider children’s economy. The JAR links with the Comprehensive Performance 

Assessment (CPA) process. 

9. The Council’s self assessment for the JAR identified the priorities set out in the table 

below: 

Being 

Healthy 

Staying Safe 

Enjoying & Achieving 

+ve 

Cont 

1. Continue to reduce risks and negative health outcomes particularly in 

physical health, emotional health and sexual health. 

2. Create a comprehensive CAMH service to meet the requirements of the 

National Service Framework (NSF) by 2006 

3. Increase the number of looked after children accessing health assessments 

4. To increase access to safe and inclusive play opportunities 

1. Develop safeguarding agenda through the newly constituted Local 

Safeguarding Children Board 

2. Implement the Common Assessment and Lead Professional Framework 

Strengthen preventative work and maintain numbers of local Looked After Children 

(LAC) excluding Airport children and Unaccompanied Asylum Seeking Children 

3. (UASC) in line with national averages 

4. Implement structural change to enable integration of services 

5. Improve timescales for core assessments and increase number of adoptions. 

6. Increase uptake of health assessments by older LAC 

1. Implement the outcomes from Review of School Improvement Services to 

improve the monitoring, challenge and impact of support to schools 

2. Implement as a matter of utmost priority our new secondary strategy and 

associated 14-19 strategy 

3. Improve Key Stage 4 achievement in secondary schools 

4. Improve attainment in primary schools recognising the changing 

characteristics of the pupil population and addressing changing needs 

5. Improve achievement in science at Key Stages 3 and 4 

6. Continue to improve attendance, closing the gap to national averages. 

7. Continue to improve attainment of LAC 

1. Increase the proportion of young offenders in education and training post 16 

2. Create a sustainable approach to communication, feedback and participation 

of children and young people in service development 



Well being 

Service 

Management 

1. Introduce the 14-19 Learner Offer to improve the range of options available to 

young people 

2. Further develop work based learning opportunities to increase participation 

post 16 

3. Improve support for existing childcare providers, particularly around updating 

existing qualifications 

4. Plan for the establishment of 13 Children’s Centres by 2008 

1. Create an integrated department for Education, Children and Youth Services 

2. Develop Children and Young People’s Plan 

3. Develop a communication and participation strategy for all children and young 

people 

4. Develop an overarching commissioning strategy prioritising children’s 

placements 

5. Maintain and improve partnerships with all including the voluntary and 

community sector; 

6. Continue the development of a Workforce Strategy 

10. Ten complex cases have been identified by the inspectors for closer scrutiny . 

Hayes and Harlington has been identified as the area for the neighbourhood study. 

Nine key areas of service have been identified for closer investigation, these include: 

• Child and Adolescent Mental Health Services(CAMHS) particularly for the over 

16’s. 

• Ensuring children and young people are encouraged to attend and enjoy school 

and achieve 

• Attending to the needs of vulnerable children and young people in transition 

• Children and young people participate in decision making and in supporting the 

community. 

• 14-19 education and training planned and delivered in a coordinated way. 

• Addressing the health and safeguarding needs of children and young people with 

learning difficulties or disabilities. 

CHILDREN AND YOUNG PEOPLE’S PLAN (CYPP) 

11. The guidance on CYPP outlines that the Local Authority has duty to prepare the 

plan which should cover children 0-19 and care leavers up to 25. The Plan is a 

strategic and overarching plan, it should be succinct and accessible. 

12. Work that has been completed for the JAR has placed the authority in a good 

position to produce the Children and Young People’s Plan and it is intended that a draft 

will be in place by January 2006 in advance of the requirement for April 2006. 

13. The plan should cover the following: 

• Improvements – identified in the JAR 

• Vision 



• Assessment of Needs 

• Priorities and key actions planned – identified in the JAR 

• Statement of how resources will be deployed 

• Explanation of how plan relates to arrangements for performance management 

and review of services 

• Arrangements for co operation under the duty to co-operate with partners. 

• Explanation of how plan is consistent with the strategic plans of local partners 

14. The guidance requires that children and young people are involved in the 

preparation of the plan. In preparing the draft the authority will be relying upon the 

consultation conducted as part of the Best Value Review’s (BVR) and will be consulting 

more fully with children and young people on the draft plan between November and 

January. 

INTEGRATION OF SERVICES AND IMPLEMENTATION OF BEST VALUE REVIEW 

15. Development of an Integrated Children’s Department is being managed under the 

HIP Programme and using the HIP Toolkit to ensure delivery. The following progress 

has been made: 

• The development of one Community Access and Support Team (CAST) which 

will serve West Drayton and Yiewsley and be based in West Drayton recruitment 

is underway and the CAST co-ordinator has been appointed. 

• Staff have been appointed to the new Intensive Family Support Service and the 

service is in place. 

• A Coordinator for the Central Parenting Support Team is being recruited. 

• Re organization of Social Care is progressing to create central integrated 

Safeguarding Service and Looked After Children Service, is in progress. 

Recommendations about future structures were presented to staff in October. 

• Models for the Management Structure of Education, Children’s and Youth 

Service are under consideration and were presented to staff at the end of 

October. 

LOCAL SAFEGUARDING CHILDREN BOARD (LSCB) 

16. Section 13 of Children Act 2004, requires all local authorities to set up a Local 

Safeguarding Children Board (LSCB) as the statutory successor to the Area Child 

Protection Committee. Their primary focus will be on the outcome ‘Staying Safe’. The 

membership of the Board is prescribed in legislation and the Director of Children’s 

Services is accountable for the arrangements. There are a number of provisions in the 

Children Act (2004) that relate directly or indirectly to agencies responsibilities to 

safeguard and promote the welfare of children. Section 10 of the Children Act 2004 

requires agencies to co-operate with one another, Section 11 places a duty on all 

agencies to safeguard and promote the welfare of children and Section 12 requires that 

information is exchanged and an index of children can be developed. 



17. The objective of LSCB will be to co ordinate and ensure the effectiveness of what is 

done by each of the Board partners individually and collectively for the purpose of 

safeguarding and promoting the welfare of children, including ensuring that all child 

deaths are reviewed and lessons learned, through contributing to Child Death 

Screening Teams. 

18. Hillingdon’s LSCB was launched on 4 October at the Compass Theatre, 150 local 

stakeholders attended. Presentations at the launch and a play performed by young 

people at Bishopshalt School were successful in raising the profile of the Board and it’s 

wider agenda which is to prevent harm to children, whilst strengthening protection and 

promoting children’s welfare. 

19. The LSCB is taking the lead in implementing the Common Assessment Framework 

(CAF) and Lead Professional (LP), ahead of the statutory requirement of April 2006. 

The Common Assessment and Lead Professional Framework provides a means for 

weighing up concerns about children and young people and for co-ordinating support to 

promote well-being across a number of dimensions including Being Healthy, Staying 

Safe, Enjoying and Achieving, Achieving Economic Well being, Making a Positive 

Contribution. 

20. The CAF and LP framework will become a central component of the integration 

agenda, ensuring that a common language, common assessment process and 

standards are established across all professional groups. 

FINANCIAL IMPLICATIONS 

21. The Integration and BVR initiatives are funded from within existing budgets and are 

currently forecast to remain within budget. 

22. The LCSB is funded from existing base budget, government grant and contributions 

from partners and is currently forecast to remain within budget. 



23. The recommendation of the report to note progress contains no direct financial 

commitments. However, the ongoing developments described in the report have 

financial implications that are identified above. These resource issues are currently 

being developed through the Medium Term Financial Forecast (MTFF) process, and the 

rationale for, and values of, any additional resources required and any available savings 

will be presented when the MTFF is reported to Cabinet on 15 December 2005. 


24. The legal implications are contained in the body of the report. 




APA self assessment 

JAR self assessment 

Guidance on Children and Young People’s Plan 

Children Act (2004) 



Action Plan 

APPENDIX A 

ACTION PLAN ARISING FROM 

CHILDREN’S INTEGRATED SERVICE REVIEW 

ISSUE ACTION Timescale 

Managing Change 

A clear overall project plan 

with allocated tasks and 

timescales has not as yet 

been agreed 

Project plan exists for HIP 

project 

CB to pull together high 

level plan from existing 

documents for CfC Board 

to agree 

Completed 

It is intended that the 

children’s integrated 

service projects will form 

part of the HIP. It will be 

important for other senior 

partners to be engaged in 

this process to ensure 

engagement and 

embedding of the project 

outcomes. 

A risk management plan 

has not as yet been 

agreed. 

Developing ambitions 

The impetus from the 

extensive consultation for 

the BVR should be built 

upon to ensure that 

stakeholders, particularly 

children, young people 

and their families, are able 

to systematically inform 

the development and 

review of services and 

plans. 

The agreed vision as set 

out in the Local 

Preventative Strategy will 

need to be formally 

agreed and disseminated 

as the vision of the 

CYPSPB in its Children 

and Young People’s Plan. 

C f C Board are steering 

group for HIP project 

To be completed by CB 

after Project Plan 

competed 

Work Plan includes 

developing participation 

and communication 

strategy for child, young 

people and families as 

well as professional 

stakeholders 

Lead PN – staff 

Lead MP – Children + Yp 

To update as part of CYP 

Plan 

CB to develop project plan 

Completed 

November 05 

Ongoing 

November 05 



Action Plan 


It will be important that the 

new role and 

responsibilities of Director 

of Children’s Services is 

developed in order that 

the postholder is able to 

play a pivotal role in 

achieving change. 

Ongoing – evidence 

chairing C f C Exec and 

vice chair of LSCB 

Ongoing 

Interagency working 

Further work is needed to 

establish clear 

governance arrangements 

for the CYPSPB and its 

sub-groups. 

Methods of representation 

of the views of children, 

young people and families 

at the CYPSPB should be 

agreed. 

Integrated frontline 

delivery 

Detailed mapping to 

inform a joint workforce 

plan should be developed 

which identifies the skills 

and range of staff needed, 

addresses how teams will 

be integrated, managed, 

supported and employed. 

Concern has been 

expressed by interviewees 

regarding capacity to 

address this complex and 

time consuming area. 

Capacity issues and 

resource implications will 

need to be reviewed 

regularly. 

To include in work plan of 

Children’s Development 

Team 

Part of CYPSPB Action 

Plan/ participation plan 

C+F restructure has 

commenced 

Experience from MAST 

and CAST 

kept under review by C f C 

Exec 

January 2006 

2005 

Ongoing 

Ongoing 



Action Plan 


The current arrangements Applies only to MAST December 2005 

for secondments and 

managing staff in 

integrated teams should 

be subject to a risk 

assessment to ensure that 

the lack of S31 

agreements does not 

subject the partners to 

unforeseen risks or 

liabilities. 

Integrated processes 

Hillingdon has a joint 

information sharing 

protocol but further work is 

needed to develop subprotocols 

and embed 

these in practice. 

progress as part of ISA Ongoing as 

required 

Capacity will be needed 

from a specialist resource 

to develop and implement 

any pooling proposals. 

Managing Performance 

A joint performance 

management framework 

needs to be developed. 

No immediate plans for 

pooling budgets 

LSCB is developing plan 

Action for CYPSPB 

September for 

LSCB 

January CYPSPB 



CONSULTATION AND ENGAGEMENT - A FUTURE 

STRATEGY FOR HILLINGDON 

ITEM 3 

Contact Officers 


David Holdstock / Paul Williams 

01895 250822 / 250986 

Appendix A - attached 

SUMMARY 

The report sets out the need for a strategic approach to consultation, a corporate 

consultation strategy and a draft three-year development programme for consultation 

and engagement in Hillingdon. 


That Cabinet agrees: 

1. the vision statement : ‘consultation and engagement are placed at the 

heart of policy making and service delivery in Hillingdon to help deliver 

excellent services and make the best use of resources’. 

2. that consultation be linked to communications under the new Head of 

Communications, following the restructure of communications within the 

council. 

3. that officers examine the current structure of dealing with both internal 

and external communications across the council and identify resource(s) to 

work with the new Head of Communications to deliver a corporate 

Consultation Strategy and three year development programme. 

4. to the creation of a Consultation Board which includes a member 

champion to sponsor the Council’s annual consultation programme. 

5. subject to the review of communications to identify resources, that the 

Council undertake an annual residents’ survey to underpin future service and 

policy development. 

REASONS FOR OFFICER RECOMMENDATIONS 

To ensure a comprehensive approach to the development of consultation and 

engagement in Hillingdon, thereby ensuring that residents’ and communities’ issues 

are increasingly utilised in the development of service plans, strategies and priorities. 


Cabinet can reject the proposals in whole or in part. 



INFORMATION 

1. On 28 April 2005, the Cabinet endorsed an approach to consultation and 

engagement based on the following 

a] To better manage and co-ordinate consultation, it should be broken down 

into service user consultation, more general policy consultation and local 

consultation. 

b] A consultation strategy therefore must focus at three levels : at Group / 

service level, council wide and with partners. 

c] All opinion / information gathered will be analysed and used to inform 

service planning and will be reflected in the Medium Term Financial Forecast 

[MTFF]. Feedback will be given as a matter of course to groups consulted. 

d] A comprehensive consultation strategy and development programme will 

be developed. 

2. An outline illustrative programme to develop consultation and engagement 

has been drafted and is included at appendix A to illustrate potential areas for 

improvement. 

3. The programme and the recommendations of this report are based on ‘good 

practice’ advice and guidance from good and excellent rated councils. This includes, 

as key aspects, the importance of the council having appropriate consultation skills 

available, locating these under the Head of Communications and introducing an 

annual public survey, truly representative of opinion across the borough, which 

would be used as a foundation to review and inform future service priorities and 

policy development. 

4. By adopting a strategic approach to consulting with the borough’s many 

communities, businesses and voluntary organisations, we will ensure that the council 

is responding appropriately to local needs. 

Why consult? 

5. Consultation can be a useful tool to help us to: 

• assist with prioritisation 

• plan services 

• develop new services as a result of the outcomes of consultation 

• test new ideas and policies before implementing them 

• allocate resources more effectively 

• improve relationships with those who live, work and study in the borough and 

those who choose to visit Hillingdon 

• measure satisfaction levels which can then be used as a performance indicator to 

monitor performance 

• develop new approaches 

• work more effectively with our partners and influence opinion, where appropriate 

• co-ordinate the work with our partners 

• provide background information for other council activities 



• anticipate problems before they occur. 

6. In establishing authority-wide objectives and performance measures, the 

council must find out the views of local residents, businesses, user groups and other 

stakeholders on what they want for their local area and what they think the priorities 

for the council should be. These views should then be taken into account when 

priority and policy setting is planned. 

7. As part of modernisation and good business management service users 

should be consulted before service objectives and improvement targets are set or 

services are changed, re-aligned or re-designed. Improving services should take 

account of users’ wishes, requirements, attitudes and their views of current 

performance. Consultation can also help to identify individuals and groups in the 

community who are not using services and why, thereby assisting the council in 

ensuring services are delivered to an increasingly diverse population in Hillingdon. 

8. To become good or excellent, this council should carry out a range of 

consultation exercises and, in particular, an annual residents’ survey in similar vein 

to organisations already identified as good or excellent. 

9. Hillingdon Council currently has a Citizens’ Panel, which allows consultation 

throughout the year on major issues. 

10. Cabinet is reminded that some useful building blocks are already in place to 

support the development of consultation processes over the next three years, 

namely the corporate consultation team, a draft annual programme of consultation, a 

set of established standards for consultation practices and the appointment of the 

new head of communications. 


11. It is anticipated that the costs of the annual residents' survey will be in the 

region of £30k, it is also possible that additional staff resources, estimated to cost 

£50k, will be needed with particular consultation skills, which may not be available 

within the current staffing portfolio. The proposed funding strategy will be to fund the 

annual resident's survey through the potential savings that can be achieved by 

centralising the communications function. Any review will be put on hold to allow the 

new structure to mature and by doing so look to develop consultation skills in house 

to support the delivery of the annual residents' survey. 



12. A corporate finance officer has reviewed this report and the financial 

implications contained within it, and is satisfied that the report and its financial 

implications properly reflect both the direct resource implications on the consultation 

function and the wider implications on the Council’s resources in total, through the 

funding strategy identified above. 




13. Members should note that as part of the CPA process the issue of public 

consultation is stressed as a way of ensuring that local authorities reflect the desires 

of their community in the provision of services. Such a process is also 

recommended as way of ensuring an efficient use of resources as it enables a local 

authority to focus on those matters of importance to the local community. Clearly 

any consultation needs to be undertaken in a structured way which delivers accurate 

results from the broadest range of the community. Failure to do so could result in a 

local authority concentrating on matters which only benefit a small vocal element of 

the community but does not reflect the desires of the wider community. 

Corporate Property Services 

14. Corporate Property Services fully support the consultation process detailed in 

this report 

Relevant Service Groups 

15. All Service Groups are represented on the consultation co-ordinators groups 

and have contributed to the report. 


16. The PCT and the Police are included in the corporate consultation group and 

their comments have been taken into account in preparing this report. In addition, 

comments and advice have been sought from Westminster City Council and others 

as a source of best practice. 


None 



Illustrative Consultation and Engagement Strategy 2005 –2008 

Appendix A 

The table below illustrates the kind of actions that would be considered in developing 

the council’s consultation and engagement strategy. A definitive programme will be 

worked up following the review of communications, subject to Cabinet’s decisions. 

2005 /06 2006/07 2007/08 Comment 

Service User 

Consultation 

• Build on existing 

good practice to 

extend service 

user 

consultation 

more widely 

across Council. 

• Develop 

feedback 

mechanisms for 

those consulted. 

• Use consultation 

to inform service 

planning and 

MTFF process. 

• Ensure 

responsibility to 

consult is 

included in ALL 

service managers 

PADAs. 

• Extend service 

user consultation 

to ALL council 

services. 

• Develop 

feedback for ALL 

user groups 

consulted. 

• Demonstrate that 

consultation 

major influence in 

service 

development / 

MTFF process. 

• Develop 

consultation with 

non users 

• Consider 

possible links/ 

efficiencies with 

LSP partners 

• Ensure that 

consultation 

process take 

account of 

comment and 

opinion from non 

user groups. 

• Develop links / 

efficiencies as 

appropriate with 

LSP partners 

Critical aspect of 

development to 


Council is fully 

engaging with 

specific service 

users [ and non 

users] and 

complying with 

equalities 

legislation. 

Management and 

Procedure 

• Ensure 

corporate team 

is properly 

representative[ 

including the 

Police and 

PCT], is 

• Extend corporate 

team to include 

additional LSP 

partners. Ensure 

team is delivering 

work programme 

and terms of 

• Transfer team on 

virtual basis. 

• Identify any 

possible 

economies of 

scale / 

efficiencies 

Once the 

corporate process 

has become 

established, team 

business can be 

accomplished 

without the need 



working well 

and has a 

timetabled work 

plan 

• Confirm terms 

of reference 

reference 

to have meetings. 

• Identify 

member 

champion. 

• Ensure liaison 

with corporate 

team. 

• Establish links 

to Cabinet 

• Involve member 

champion in 

corporate team. 

• Raise profile of 

consultation in 

political process 

and decision 

making 

• Ensure 

consultation and 

engagement 

process is fully 

co-ordinated with 

political process 

and led by 

members. 

The object of the 

aspect of the 

programme is to 


process becomes 

member driven. 

• Revise existing 

consultation 

programme 

and submit to 

Cabinet for 

approval 

• Link to LSP 

partner 

consultation 

where possible 

• Devise extended 

programme with 

member input, 

which reaches 

wider public. 

• Work up 

proposals to 

extend 

sophistication, 

range and 

effectiveness of 

consultation. 

• Link to some 

partner 

consultation as of 

course. 

• Continue, with 

partners and 

within resources, 

to develop the 

sophistication, 

range and 


consultation 

If the council’s 


engagement 

processes are to 

develop, then they 

must be extended 

with the benefit of 

the appropriate 

skills and 

knowledge. 

• Ensure that the 

results of 

consultation are 

taken into 

account in the 

service planning / 

MTFF process 

2006/07. 

• Begin systematic 

reporting back 

on key messages 

from consultation 

as part of the 

Quarterly 

Performance 

• Ensure the 

consultation 

programme 

complements the 

need to take 

account of 

consultation in 


MTFF process. 

• Forge stronger 

links between the 

information 

function [needs 

information and 

performance 


needs information 

, performance 

information, 

complaints and 


integrated and 

fully inform the 


MTFF process as 

a matter of 

course so that 

policy is clearly 

evidence based. 

This is beginning 

to happen and be 

seen to be 

happening, but 

needs to be seen 

across the whole 

council since it is 

the prime objective 

of consultation 



Review [ QPR] 

• Establish a 

customer 

relationship 

management 

system and 

comprehensive 

approach to 

complaints 

across the 

Council 

information] and 

consultation to 

better inform the 

QPR and policy 

development. 

• Ensure 

complaints are 

taken into 

account along 

with consultation 

to inform policy 

development 

• Ensure that the 


and Group 

Directors begin 

to feedback 

comments to 

those consulted 

on the outcomes 

of their 

consultation. 

• Include work to 

make this 

systematic in the 

corporate team’s 

work plan. 

• Introduce 

systematic 

feedback to those 

consulted on the 

outcomes 

resulting from 

their comments. 

• Include feedback 

in the corporate 

consultation 

programme and 

ensure it is 

undertaken. 

• Extend as 

consultation 

extends 

• Ensure feedback 

to those 

consulted 

becomes integral 

and expected 

aspect of any 

consultation or 

engagement 

exercise. 

This has been 

identified through 

inspection as a 

failing in the 

council and it is 

critical to begin 

addressing it 

comprehensively 

asap. 

• Estimate 

corporate and 

service costs of 

consultation 

programme 

against corporate 

consultation 

programme 

• Submit MTFF bid 

for consultation 

programme, 

based on 

corporate and 

service 

requirements as 

for all other areas 

of council activity 

• Embed bidding 

process and 

transparency of 

costs fully in the 

MTFF process 

Whether or not the 

profile of 

consultation is 

raised and its 

resourcing 

increased, the 

allocation of 

funding fro 


engagement 

should be a more 

transparent 

process. 

• Ensure Head of 

Communications 

plays a leading 

role in 

developing and 

• Appoint a 

consultation 

officer to work to 

the Head of 


• Same as year two 


This is a key 

resource issue 

based on 

Westminster’s 

advice. Whether or 


developing and 

directing the 

work of the 

corporate team. 



communications 

programmes 

dovetail 


to help develop 

the council’s 

programme and 

improve its 

consultation. 

[ Alternatives – buyin 

expertise or 

develop in house. 

Latter will still 

require new 

resources if to be 

properly 

delivered] 




programmes are 

fully integrated 

through the Head 

of 

communications / 


not an 

appointment is 

made, the 


and consultation 

agendas need to 

be fully coordinated 

and, it is 

suggested, both 

managed by the 

Head of 

Communications. 

• Employ a range 

of mechanisms 

and media [ 

including ICT] to 

deliver 

consultation 

based on best 

practice applied 

elsewhere. 

• Use consultation 

officer to advise 

on most 

appropriate 

mechanisms and 

media [ including 

ICT] for specific 

consultations 

within 

consultation 

programme 

[ Alternative. Train 

key officers from 

across the 

council 

• Ensure most 

appropriate 

mechanisms and 

media [ including 

ICT]are used 

consistently as 

matter of course 

across the council 

This action links 

directly to the 

proposed 

employment of a 

skilled consultation 

professional. 



• Apply agreed 

standards for 

consultation as 

widely as 

practicable 

• Ensure agreed 

standards of 


taken into 

account in 

devising 

consultation 

programme 

• Ensure 

consultation 

standards are 

applied 

consistently 

across the 

council. 

• Extend to LSP as 

appropriate 

Consultation 

standards have 

been agreed by 

Cabinet but are 

quite exacting and 

are not applied 

consistently for all 

consultation. 

• Based on best 

practice 

elsewhere, 

monitor 

effectiveness of a 

chosen piece of 

consultation. 

• Build monitoring 

of effectiveness 

into consultation 

programme for 

specific aspects 

of programme. 

• Build monitoring 

into whole 

programme 

It is important to 

monitor the 



learn from this 

evaluation. 

Corporate 

Consultation 

• Widen 

representation at 

existing forums. 

• Align forum 

meetings and 

agendas around 

community plan 

themes 

• Collate, coordinate 

and 

distribute 

comment across 

Council[ LSP] 

• Ensure, where 

possible, 

feedback taken 

into account in 

service planning/ 

MTFF for 

2006/07 

• Ensure feedback 

to those 

consulted on 

actions / 

outcomes 

resulting from 

their comments 

• Embed process 

begun in first 

year and extend 

forums to include 

other groups, in 

particular 

business. 

• As for year two 

up to manageable 

number of forums 

Need to make the 

most of this 

existing means of 

communication, 

whilst accepting its 

overall limitations 



• Make use of 

citizens panel up 

to March 06. 

• Use all other 


communication 

exercise to add 

people to panel 

• Replace citizens 

panel with biannual 

residents’ 

survey. 

• Use survey to 

identify group of 

citizens willing to 

respond to any 

other smaller , 

specific survey 

requests. 

[Alternative. 

Ensure citizens 

panel is more 

representative, 

ensure it is 

regularly topped 

up and use it for 

annual opinion 

survey 

Use outcomes of 

annual survey as 

main plank of 

service planning/ 

MTFF process. 

• Embed annual 

survey as key 

aspect of 

council’s 

consultation 

process which 

informs policy 

direction. 

• Supplement with 

minority group 

survey as 

necessary 

This is a second 

key aspect of the 

draft programme. 

If the decision is 

taken to maintain 

the citizens panel, 

then it needs to be 

topped up 

consistently and 

also used for an 

annual survey. 

• Identify notable 

event before 

March 2005 to 

pilot direct 

council contact 

with residents. 

• Include 

appropriate 

events, such as 

the Hayes 

carnival in the 

programme of 

consultation for 

2006/07 . 

• Ensure comment 

circulated to 

inform service 

planning / local 

area perspectives 

and appropriate 

feedback to those 

consulted. 

• As for year two. 

• Include 

attendance at 

events and follow 

up action in 

specific officers 

PADAs 

Direct contact with 

residents art even 

a limited number 

of events can 

produce valuable 

comment and also 

enhance public 

opinion of the 

council 


consultation 

through the 



connecting 

communities 

forum is as 

effective as 

possible. 

• Identify best 

practice from 

elsewhere on 

how to engage 

‘hard to reach 

‘communities. 

Local 

Consultation 

• Complete local 

question time 

meetings. 

• Develop 

community 

councillor role 

• Continue local 

question time and 

consider taking to 

more local level. 

• Establish 

community 

councillors at 

heart of local 

engagement and 

ensure their 

comments 

feedback into 

service 

development . 

• Introduce annual 

locality 

conferences in 

the three 

parliamentary 

constituencies to 

replace the 

community 

conference. 

• Take stock of 

local ‘hard to 

reach’ groups. 

• Continue local 

question time, 

engaging local 

councillors. 

• Introduce area 

forums to 

supplement 

locality 

conferences. 

• Introduce area O 

and S committees 

to cover 

parliamentary 

constituencies. 

• Identify and 

implement 

proposals to 

reach local ‘hard 

to reach’ groups 

There is an 

increasing 

Government focus 

on neighbourhood 

and more local 

engagement. It is 

inevitable that 

Government will 

expect all councils 

to take action to 

increase local 

engagement. 

• Identify 

manageable 

number of 

established 

groups by area 

to begin some 

form of dialogue 

with eg officer 

and /or member 

• Extend number of 

existing groups 

with which some 

dialogue is 

developed 

through officer / 

member contact. 

• Include contact 

responsibilities in 

• Further extend so 

there is officer or 

member contact 

at least once a 

year with range of 

existing groups 

across the 

borough. 


The key issue 

here is that there 

are many existing 

groups already in 

the borough which 

the council can 

use to extend its 


engagement 


and /or member 

attendance at 

annual meetings 

of specific 

community 

groups. 

responsibilities in 

specific officers 

PADAs 

• Include contact 

responsibility in 

most officers 

PADAs. 

• Ensure 

appropriate 

training provided 

without creating 

new ones. 

• Progress 

‘neighbourhood 

partnerships’ 

pilots, including 

the involvement 

of local people to 

genuinely 

influence local 

affairs. 

• Extend pilots on 

the back of safer 

neighbourhood 

policing initiative. 

Consider some 

form of 

constitution 

guaranteeing 

local community 

involvement. 

• Link locality 

initiatives to local 

management of 

contracts , 

residents quality 

promise etc. 

• Learn lessons 

from original 

pilots and 

consider 

delegation of 

some limited 

decision making 

and budget. 

• Extend 

neighbourhood 

pilot s across the 

borough, possibly 

based on 

‘constitution’ 

which guarantees 

local involvement 

with some 

delegated powers 

and budgets. 

The pilots offer a 

real opportunity to 

develop 

meaningful local 

engagement on a 

broader front. 



HILLINGDON’S DOMESTIC VIOLENCE STRATEGY ITEM 4 

Contact Officers David Brough 01895 250636 


Domestic Violence Strategy 2005/08 - attached 

SUMMARY 

This report seeks approval to the Hillingdon Domestic Violence Strategy which aims to: 

• Raise awareness of domestic violence in Hillingdon. 

• Improve partnership working and the sharing of best practice across the Borough. 

• Improve the range of support available and access to it for women and children. 

• Implement Government guidance on tackling domestic violence. 

• In line with the Community Safety Strategy 

Reduce the levels of domestic violence 

Reduce repeat victimisation by 25% 

Increase detection rates to 60%. 

• Meet the Best Value Performance Indicator for action against domestic violence. 


1. That the Hillingdon Domestic Violence Strategy 2005/08 be approved. 

2. That formal endorsement of the Strategy be sought from the Police, the Primary 

Care Trust and other relevant partner agencies. 

3. That a member of the Cabinet as nominated by the Leader, and the Chief 

Executive be allocated responsibility for the implementation of the Strategy. 

4. That the Domestic Violence Forum be made responsible for the annual 

monitoring of the Strategy. 


Since the setting up of the Domestic Violence Forum in 1996 the Council and its partners 

have made considerable progress in dealing with domestic violence and this has been a 

continuing high priority in the Community Safety Strategy. However domestic violence 

remains at a disturbingly high level in the Borough and there is a clear need for a separate 

strategy to bring together in a more coherent manner the various activities of Council 

departments and statutory and voluntary agencies. The introduction by the Government of 

new and more detailed Best Value Performance Indicators for domestic violence includes 

a specific requirement to have a multi-agency strategy. 


To approve the Strategy with or without amendments. 


Cabinet report 10 November 2005 Page 64

COMMENTS OF OVERVIEW AND SCRUTINY COMMITTEE 

The detailed strategy has not been considered by Overview and Scrutiny but it 

incorporates the key issues identified by the joint scrutiny of children and domestic 

violence carried out by the Education and Health and Social Services Overview and 

Scrutiny Committees in 2004. 

INFORMATION 

1. Domestic violence accounts for approximately a quarter of reported violent crime in 

London. It is well known that many victims do not report what has happened to them or 

they suffer numerous incidents over many years before making a report. The number of 

cases reported to Hillingdon Police therefore under-represent the full scale of the problem 

but over the last three years they have increased as follows: 

Year 

Incidents 

2002/03 2762 

2003/04 2500 

2004/05 3307 

2. The reasons for this increase are not known and it impossible to say whether there 

have been more incidents or it is simply due to more reporting or a mixture of the two. 

During the last year there was extensive media coverage of domestic violence and there 

has certainly been a growing awareness that the Police and other parts of the judicial 

system have a commitment to tackling this issue. Whatever the factors at work it is clear 

that domestic violence remains a major issue for Hillingdon and as a result it is a high 

priority in the community safety strategy for 2005/08 that was approved by the Cabinet on 

10 February and the Council on 17 March. 

3. The strategy includes the following targets and proposals in relation to domestic 

violence: 

Targets 

We will reduce repeat victimisation for domestic violence, racial and homophobic offences 

by 25%. 

We will improve confidence among victims of domestic violence by achieving a minimum 

detection rate of 60%. 

How will we achieve this? 

• Development of a comprehensive domestic violence strategy that is agreed 

amongst all relevant agencies 

• The Hillingdon Domestic Violence Forum to promote awareness of domestic 

violence 

• Annual White Ribbon Day seminar to inform practitioners of different domestic 

violence issues 



• Delivery of domestic violence awareness training across partner agencies, including 

teachers in schools. 

• Improve integration and intelligence between partner agencies (in particular the 

Police, Council and Health Care). 

4. The attached domestic violence strategy has been developed in response to the 

first bullet point and includes all of the other action points. However Council involvement in 

tackling domestic violence is not just because it is a crime. It does enormous damage to 

individuals and families and this has substantial implications for Social Services and 

Housing in particular but also for schools and Education, Youth and Leisure Services. In 

addition it places substantial burdens on the Health Service. The strategy therefore has 

clear links with a range of other Council and multi-agency strategies including those for 

children, housing, education and mental health services. 

5. The strategy has been devised by Housing Services as a result of its success in 

securing resources from the Office of the Deputy Prime Minister for the creation of a post 

of Domestic Violence Co-ordinator. Work on the strategy has been overseen by the 

Domestic Violence Forum which includes representatives of all Education, Youth and 

Leisure Services, Housing and Social Services and the Chief Executive’s Office together 

with the Police, the Primary Care Trust and numerous local voluntary agencies. 

6. The preparation of the strategy has been carried out in accordance with Home 

Office guidance on the development of domestic violence strategies. Account has also 

been taken of the proposals in the draft Second London Domestic Violence Strategy which 

was published by the Greater London Authority in July 2005. 

7. In addition it should be noted that the Government has introduced more rigorous 

and detailed Best Value Performance Indicators for domestic violence with effect from 

2005/06 in order to assess the overall provision and effectiveness of local authority 

services in helping victims and preventing the incidence of domestic violence. A full 

description of the Indicators is set out in Appendix 2 to the attached strategy and it will be 

seen that one of these is that the local authority must have produced and adopted a multiagency 

strategy developed in partnership with other agencies. This also requires the 

designation of a member of the Executive and a Chief Officer to have responsibility for the 

implementation of the strategy and the Cabinet is asked nominate one of its members for 

this purpose. 

8. As part of the development of the strategy a mapping exercise was undertaken. 

This highlighted the excellent work that is taking place through multi-agency co-operation 

between Education, Youth and Leisure Services, Social Services and Housing and the 

Police. It also identified a number of gaps in service provision and areas where there is a 

need for increased multi-agency work. The major issues are as follows: 

• More work is needed to develop a clear picture of the level of understanding within 

the community as a whole of domestic violence as a crime. 

• A common assessment tool is required together with a common recording system. 

• More information is needed on male and same sex victims. 

• Training should be extended across all agencies. 

• Further action is needed to support victims through the legal process. 

• An agreed approach is needed on dealing with perpetrators. 



9. As a result of this exercise the strategy identifies the following key areas for action: 

• Raising awareness 

• Improving service provision and access 

• Improving information sharing and data management 

• Developing legal, civil and criminal justice responses 

• Perpetrator work 

10. The strategy sets out the actions needed to address these issues and includes an 

implementation plan with timescales. It is proposed that the Domestic Violence Forum 

should be given responsibility for monitoring the achievement of the targets. 


11. Implementation of the strategy does not require additional resources at this stage. 

The continuation of the post of Domestic Violence Co-ordinator will enable many of the 

recommendations to be taken forward without the need for extra funding. The approval in 

the current year’s budget of a second outreach post in Social Services for dealing with 

victims on domestic violence will also assist in meeting current needs. In addition 

resources have been identified within the community safety budget to fund awareness 

campaigns and to support the work of the Domestic Violence Forum. 

12. However the mapping exercise which was undertaken in developing the strategy 

identified that there are gaps in local service provision. The implementation plan highlights 

areas that will need to be further investigated and any proposals to provide or extend 

services will need to identify sources of funding. 



13. Corporate Finance has reviewed this report and the financial implications within it. 

The view of Corporate Finance is that this report and its financial implications properly 

reflect both the direct resource implications on the service concerned and any wider 

implications on Council resources as a whole. 


14. The Crime and Disorder Act 1998 places a joint duty on the Council and the Police 

to tackle crime and disorder in the local area and to improve community safety. Section 17 

of the Act also gives the Council a specific duty to consider the community safety 

implications of everything it does. 

15. The Act also requires the production of a local strategy every three years by the 

Council and the Police to tackle crime and disorder in their communities and there is also a 

requirement for these bodies to work in partnership with other statutory agencies including 

the Probation Service, the Health Service and the Police Authority. These requirements 

have been met by the production of the community safety strategy for 2005/08. 



16. There is no separate legal duty to have a specific domestic violence strategy but as 

set out in the report this is clearly an important element of the overall community safety 

strategy. 

17. In the Domestic Violence Strategy which is appended to the report, specific 

reference is made to developing appropriate legal, civil and criminal responses to domestic 

violence. 

18. There are a number of legal remedies which are available to help protect the victims 

of domestic violence in both the criminal and civil courts. Examples are the prosecution of 

perpetrators and non-molestation and ouster injunctions, the provisions of which 

perpetrators are required to observe. 

19. Although the Council does not have the direct responsibility for seeking such 

remedies on behalf of the victims, it can nevertheless play an important support role, 

working in conjunction with its partners, and in this respect, the key actions outlined in the 

Strategy to address this particular area are welcome. 


20. Consultation was undertaken through the Domestic Violence Forum and its 

Executive. Membership of the Forum includes representatives of the Police, Primary Care 

Trust and numerous local voluntary organisations active in the field. 


Community Safety Strategy 2005/08 

Home Office Guidance for Partnerships on Developing Domestic Violence Strategies 



Hillingdon Domestic Violence Strategy 08/2005 

Hillingdon Domestic Violence Strategy 

Contents: 

• Foreword 

• Executive Summary 

• Introduction: 

‣ Definition of domestic violence 

‣ Positive statement on domestic violence 

‣ Background 

‣ Aims 

• Understanding of domestic violence within Hillingdon: 

‣ Statutory services 

‣ Voluntary services 

‣ Awareness raising 

‣ Training provision 

‣ Co-ordination 

‣ Local context 

• Key deliverables and targets: 

‣ Raising Awareness 

‣ Improving service provision and access to it. 

‣ Improving information sharing and data management 

‣ Developing legal, civil and criminal justice responses. 

‣ Perpetrator Work 

• Implementation plan 

• Strategy action plan monitoring process 

• Appendices 

‣ Appendix 1 - Feedback from DV Forum Meeting. 

‣ Appendix 2 - Best Value Performance Indicators 

(Actions Against Domestic Violence ) 

‣ Appendix 3 - Hillingdon Domestic Violence Strategy 

Gap Analysis 2005 




Foreword 

Domestic violence is the secret scandal of Hillingdon. Often unreported and 

largely un-discussed it brings pain and suffering to many thousands of people 

in the Borough. It affects every section of the community and does untold 

damage, particularly to women and children but increasingly to men too. The 

Council with its partners has a profound duty to tackle this sad state of affairs. 

The setting up of the Domestic Violence Forum in 1996 (and its predecessor 

the Domestic Violence Working Party) brought together for the first time the 

statutory and voluntary agencies that could begin to address the problem. The 

Forum has put the issue on the agenda and much good work has been done, 

particularly by Housing Services, the Police and the voluntary sector and with 

schools. 

However there is still an enormous challenge to be faced if we are to achieve 

the significant reduction in domestic violence that we all seek. The targets set 

in the 2005/08 community safety strategy and the Government’s new Best 

Value Performance Indicators make it even more important that all agencies 

are working together to best effect. 

The domestic violence strategy set out in this document has been drawn up 

with the full support and involvement of all the agencies represented on the 

Forum. It charts a course for the next three years and highlights the priorities 

we need to adopt. Building on the excellent work to date and harnessing the 

goodwill and commitment of all those involved I am sure that we can and will 

succeed. We owe it to those who have suffered domestic violence and still 

suffer in silence and to future generations across the Borough. 

Councillor Mary O’Connor 

Chair of Hillingdon Domestic Violence Forum 




Executive Summary 

The Domestic Violence coordinator, under the management of Housing and 

Social Services and guidance of the Domestic Violence Forum, will take the 

strategic lead in developing and implementing the Strategy and the Delivery 

Plan. 

The Strategy and Implementation Plan has been developed in partnership 

with all relevant statutory and voluntary partners. 

Hillingdon Council has a responsibility to adhere to the Best Value 

performance Indicators (BVPI 225) introduced in 2005 in relation to domestic 

violence. This Strategy reflects all indicators and a Chief Officer and 

Executive Member are therefore to take responsibility for its implementation 

within the local authority. 

Each partner needs to remember their responsibilities both as service 

providers and employers. As such, each should introduce a Workplace 

Domestic Violence Policy to recognise and support staff experiencing 

domestic violence, as well as hold perpetrators accountable. The policy 

should provide easy access to support information and raise awareness 

amongst service managers and staff. 

Information sharing, in relation to individual cases, is crucial for effective multi 

agency working at a local level. This increases victim’s safety and holds 

perpetrators accountable. It is vital an information Sharing Protocol be 

developed and implemented to support this. It is also important that this 

process is not cumbersome, preventing appropriate responses in crisis 

interventions and reflecting the core definition of domestic violence. 

Clear, objective, measurable aims, performance indicators and targets to 

monitor the progress and success of the Strategy will be detailed in the 

Implementation Plan. 

To improve responses to Domestic Violence, anonymised data on domestic 

violence should be collected by all partners to provide the statistical evidence 

by which to measure performance. 

Most of the statutory agencies often refer clients to organisations that offer 

services from volunteers. These organisations are often poorly resourced and 

the burden of crisis work often limits their capacity to train and develop 

through research. 

Parental conflict undermines the effectiveness of parent education 

programmes and it is important that frontline agencies are supported in 

delivering such interventions effectively, sharing Good Practice standards, so 

that responses to Domestic Violence are more consistent across the region. 

The Domestic Violence Coordinators will be offering a course in parental 




conflict to frontline parenting educators, professionals and volunteers 

supporting families to address this matter, which will be accredited. 

The Domestic Violence Strategy will be presented to Hillingdon Cabinet for 

approval. 

Housing & Social Services Department 

On behalf of Hillingdon Domestic Violence Forum 

September 2005 




Introduction 

Definition of Domestic Violence 

In order to address this issue, and harness the many agencies that are key to 

delivering the targets set out in this strategy LBH has accepted the 

governments ‘core’ definition of domestic violence as follows: 

“Any incident of threatening behaviour, violence or abuse (psychological, 

physical, sexual, financial or emotional) between adults who are or have been 

intimate partners or family members, regardless of gender or sexuality." 

The government has made it clear that this definition incorporates issues such 

forced marriage and so called ‘honour’ killings as well as older abuse when 

committed within the family or by an intimate partner. 

The term ‘domestic violence’ is used to describe the pattern of abuse such as 

threats, intimidation, physical, sexual, emotional or psychological violence of 

one person, usually a woman, by another, usually a man, with whom they 

have had an intimate or family relationship. 

Domestic violence can affect anyone regardless of age, race, class, religion, 

sexual orientation or disability. We recognise that in this society certain 

groups may face additional obstacles and discrimination when seeking help. 

Domestic Violence is unacceptable and is a crime. Everyone has the right to 

live their life free from fear, intimidation and violence. 




Positive Statement on domestic violence: 

Domestic violence is a crime and a disgrace to the society in which we live. In 

Hillingdon it accounts for more than a quarter of the annual total of violent 

crime recorded by the Police. Being attacked in your home by your partner is 

a much greater risk than being mugged in the street. 

As well as being a crime it also destroys lives, damages the self-confidence 

and prospects of its victims and costs the community a vast some of money. 

In addition it passes from generation to generation with boys brought up in a 

family where violence is the norm being much more likely to become 

perpetrators when they grow up. 

It affects all sections of the community, all parts of the Borough and all age 

groups. However there is overwhelming evidence that the vast majority of 

those who suffer domestic violence are women. Tackling domestic violence is 

therefore not only an imperative in making Hillingdon safer but it is also a vital 

step towards the achievement of equality for women. Until women are able to 

feel safe in their relationships and safe in their homes they will never be truly 

free. 

Everybody in Hillingdon, particularly women and their children, are entitled to 

live in a society which challenges all violence against individuals, regardless 

of their race, religion, sexuality, disability, age, class or livelihood or their 

relationship with the perpetrator or whether such violence occurs inside or 

outside the home. 

For all these reasons the Community Safety Partnership has given high 

priority to domestic violence ever since it was set up in 1998 and it continues 

to give it the same priority in the Community Safety Strategy for 2005-2008. 

The Council, the Police, the Primary Care Trust, the Probation Service and 

the judicial agencies are committed to ensure that this statement of intent is 

turned into practical action which addresses the causes of domestic violence, 

supports survivors, punishes perpetrators and sends a clear message that 

this crime will not be tolerated in our Borough. 

The agencies recognise that the voluntary sector plays a central and crucial 

role in dealing with domestic violence and they commit themselves to work 

with all relevant local organisations through the Domestic Violence Forum and 

by any other practical means in the achievement of these aims. 




Background. 

The importance of tackling Domestic violence has long been recognised by 

the council, and substantial progress has been delivered through the work of 

the Domestic Violence Forum, formed in May 1996, which has brought 

agencies working to tackle domestic violence together for the first time 

borough wide. 

This strategy document has been developed to ensure that work of the 

various agencies and the council is strategically relevant to the needs of 

domestic violence victims in the London Borough of Hillingdon. It is also 

linked to the council’s community safety strategy, which ensures that the work 

on domestic violence coherently contributes to the local authority’s strategic 

agenda. 

Each stage of the development of this strategy was subject to consultation 

with the Domestic Violence Forum members, which encompasses both 

statutory and voluntary agencies, thus ensuring the approach agreed was 

pertinent. 

The strategy is for a three-year period from 2005 to 2008 and is owned by the 

Forum who also has the responsibility of updating it. 

* * * * * 

• Domestic violence constitutes 18% of all murders in this country. 

In previous years there have been domestic violence related murders 

within Hillingdon, however in 2004/05, there were no murders in Hillingdon 

with links to domestic violence. 

• Home Office figures show that almost half of all murders of women are 

committed by partners or ex partners; an average of 2 women are killed 

every week in Britain. 

• An estimated 100,000 women every year seek medical treatment for 

injuries received in the home. 

• Over 50% of women who are in contact with mental health services have a 

history of domestic abuse (DoH 2002) and 25% of suicides are due to the 

same cause. 

• In Hillingdon, DV accounts for over 80% of all hate crime: 

‣ 2002/03 = 2,762 incidents 

‣ 2003/04 = 2,500 incidents 

‣ 2004/05 = 3307 incidents 




• Hillingdon Victim support currently deals with 48 reports of domestic 

violence each week. 

• In a sample of clients presenting to Hillingdon Community Safety Unit 

Domestic Violence Coordinator in 2004/05, 37% suffered domestic 

violence during pregnancy, and 28% were the victim of sexual 

assault/rape. 

• Hillingdon Women’s Centre receive approximately 30 enquiries per month 

and the majority of their client group are women fleeing or experiencing 

domestic violence: 

‣ Between April 2004 - March 2005 they dealt with 4186 

enquiries concerning domestic violence 

* * * * * 

It is well known amongst agencies working with domestic violence, that those 

whose lives are affected by domestic violence include not only the immediate 

victim, but also wider family of the victim/perpetrator. 

As well as the personal cost to these victims in terms of emotional and 

physical damage to their development there is also a broad spectrum of more 

hidden costs to any society in which domestic violence occurs. These costs 

are manifested in crime, cycles of abuse, and arrested development of young 

people. The costs to any society of addressing the results of domestic 

violence are therefore great. 

To identify the scale of the problem within Hillingdon, we have used London 

wide research on the cost of domestic violence, which was supported by the 

Metropolitan Police Service (MPS) and has produced the following figures per 

year. The figures quoted are for the whole of London. 

Service Criminal 

Justice 

System 

Annual 

Cost 

Total 

Legal System 

£142.29 

million 

£185.94 

million 

Civil 

Legal 

Costs* 

£43.65 

million 

National Health 

Service 

Physical Mental 

Injuries healthcare 

£170.69 

million 

£24.62 

million 

Local Authority 

Social 

services 

£31 

million 

Housing 

£22.11 

million 

Lost 

Economic 

output** 

£373.84 

million 

Business 

Savings 

to 

employers 

£4 million 

£1195.31 million £53.11 million £377.84 million 

£1,812,20 million 

*About half is born by legal aid and half by the individual. 

**This is the cost of time off work due to injuries. 




The total figure for London was divided by 32 (the total number of boroughs in 

London) to evaluate the cost to the borough of Hillingdon 

Service Criminal 

Justice 

System 

Annual 

Cost 

Total 

Legal System 

£4.446 

million 

Civil 

Legal 

Costs* 

£1.364 

million 

National Health 

Service 

Physical Mental 

Injuries healthcare 

£5.334 

million 

Local Authority 

Social 

services 

Housing 

Lost 

Economic 

output** 

£769,000 £968,000 £690,000 £11.68 

million 

Business 

Savings 

to 

employers 

£125,000 

£5.81 million £6.103 million £1.658 million £11.805 million 

£25.421 million 




Aims: 

Domestic Violence is a crime that reaches into every corner of our society. 

Due to its pervasive nature, and high volume of this crime within the borough, 

Hillingdon considers a strategic partnership approach vital in order to tackle it 

effectively. 

In developing this strategy, the council and partner agencies are committing 

resources and raising domestic violence high onto the local agenda as a key 

area to be addressed. This strategy seeks to target issues relating to 

domestic violence within the borough, incorporating other strategic and 

development work carried out and ongoing across the borough. 

The aims are to: 

• Raise awareness of Domestic Violence within Hillingdon 

• Improve partnership working and sharing of best practice across the 

borough 

• Improve the range of support available, and access to it for women 

and children 

• Implement Government guidance on tackling Domestic Violence 

• In line with the Community Safety Strategy – 

‣ Reduce the levels of Domestic Violence 

‣ Reduce repeat victimisation of domestic 

violence by 25% 

‣ Increase detection rates to 60% by March 

2008 

• Meet the Best Value Performance Indicators on actions required 

against domestic violence 




Understanding of Domestic Violence within Hillingdon. 

Statutory services 

1. Social services 

Social Services and Housing departments merged in October 2004. This is already delivering 

improved, coordinated responses to domestic violence, and is set to continue doing so. 

Managers from both departments meet regularly to coordinate services to avoid overlapping 

or duplication of work and delivery of DV Training. Both departments are represented at the 

DV Forum and at the DV Executive Meetings. 

Social Services employ a DV Coordinator in partnership with the police through the 

community safety unit, and are planning to take on one further support worker to help with the 

increasing workload coming through from the improved police assessment process. 

The DV Coordinator provides emotional support to victims, carries out casework, and refers 

and signposts to other agencies including healthcare, childcare, offers advocacy support, a 

help line and an out of hours service. 

The DV coordinator also delivers DV Awareness Training, and regularly reports to the DV 

Forum. 

Characteristics of Parents with Children on the Child Protection Register. June 2005 

Domestic violence 40 – 43% 

Substance Use 26 – 28% 

Mental illness 7 – 8% 

Physical Disability 1% 

Learning Disability 4% 

Domestic Violence & Mental illness 2% 

Domestic violence & Substance misuse 11 – 12% 

Learning disability & physical disability 1% 

Domestic Violence & Substance use & mental illness 1% 

None 33% 

2. Housing 

The Housing Service is committed to improving service delivery to all victims of domestic 

violence. The housing needs of women at risk of domestic violence are being recognised 

through the Supporting People Shadow Strategy as well as the Homelessness Strategy. The 

strategies recognise a need to increase capacity and address the diversity of need, as well as 

enable victims to stay in their homes. 

In addition, a Domestic Violence Housing Policy has been developed covering assessment of 

need, accommodation options and availability of support to be offered to anyone experiencing 

domestic violence. 

The Hillingdon Sanctuary Scheme has also been developed and launched in partnership with 

the Police, Community Safety Unit, Care Line and Hillingdon Homes offering security 

measures to victims who choose to remain in their home. 

They have appointed a DVC who is based in the Emergency Housing Unit, with a strategic 

role to develop information protocols, develop statistical data collection processes, coordinate 

partnership working, provide Multi-Agency DV training. 




3. Education 

Research show that prevention work in schools should start at or prior to the age 11, before 

attitudes begin to harden. 

The Education department is committed to preventative work. A programme around domestic 

violence is delivered in schools for staff with a focus upon raising awareness and prevention. 

The Children Act established a duty to promote well being in cooperation between agencies. 

Citizenship, Sex and Relationships Education, Social and Health Education and specific 

subject areas provide opportunities for teachers to raise consciousness of domestic violence 

and encourage discussion and debate. 

6th form students have produced a leaflet for secondary school children, which gives advice 

on how to get help and raises awareness of domestic violence. 

4. Health 

Healthcare workers are a crucial factor in the identification of cases of domestic violence, and 

the provision of care to those who experience domestic violence. The midwifery services play 

a very important role in identifying incidences of domestic violence during pregnancy and the 

impact upon the mental health difficulties for children that witness it. 

Hillingdon’s Child and Adolescent Mental Health Development Strategy (May 2005 – 2008) 

strives ‘to develop a holistic corporate approach to secure better services and better 

outcomes for children’ according to particular requirements set out in the recently published 

CAHMS standard, The mental Health and psychological Well being of Children & Young 

People. This leads towards more effective coordination across health, GPs, education, social 

care, voluntary sector, youth leisure, Sure Start, Children’s Fund and youth justice. 

In addition, MAST (Multi-Agency Support Team) works with children at risk of becoming 

looked after to prevent accommodation. 

The Hillingdon Hospital trust is represented on the domestic violence forum by a senior 

Accident & Emergency (A&E) department sister, who is vice chair of the forum and plays an 

active role in training, informing and supporting colleagues and patients. 

Staff in A&E receive domestic violence awareness training, and there is a protocol in place, 

with a questionnaire to help staff in its implementation. 

Like staff in A&E, midwives follow local guidelines. They are encouraged to attend domestic 

violence training and are aware of the referral process. Midwives, GPs and health visitors are 

key to the early detection of domestic violence in the antenatal process. 

All other community staff (health visitors, school nurses, nursery nurses and mental health 

nurses) are offered training by the Community Safety Unit Domestic Violence coordinator on 

a regular basis and within child protection training. Families for whom domestic violence is an 

issue are treated as priority and are referred to appropriate agencies as necessary. 

The Primary Care Trust (PCT) shares the forums concerns regarding the harmful effects of 

domestic violence, and supports its work. The PCT has addressed the recommendations of 

the overview and scrutiny panel and has its own action plan in relation to the health and crime 

project report, which is reflected above. 

5. Crown Prosecution Service. 

The Crown Prosecution service (CPS) always aims for safe convictions in which the public 

can have confidence and which deliver justice for victims, witnesses and defendants. The 

CPS will ensure that witnesses are supported to enable them to give their best evidence. 

The CPS have a Public Safety Agreement (PSA) that largely follows governmental guidelines 

regarding avoiding delays in bringing perpetrators to justice, helping victims and witnesses 

give evidence, Bail and Sentencing as well as a Code of Practice for Crown Prosecutors. 




The law in the Domestic Violence Crimes and Victims Act, which offers powers to arrest on 

Common Assault, bolsters this policy. 

The PSA Targets 2005-08 are to: 

• Improve the delivery of justice by increasing the number of crimes for which an 

offender is brought to justice to 1.25 million by 2008 

• To reassure the public, by reducing the fear of crime and anti-social behaviour, and 

building confidence in the Criminal Justice system. 

The CPS strategy also aims to “strengthen the prosecution of hate Crime and crimes of 

domestic violence” 

The CPS are developing a more sophisticated approach to prosecuting by: 

• Ensuring independence whilst working with victims professionally and sensitively; 

• Actually seeking, and considering, the needs and requests of the individual victim 

whilst addressing the wider public interest issues for stirrings potential future victims; 

• Balancing the night of the victim and any children against the right, of the defendant; 

• Meeting the shared needs of all victims, whilst also ensuring that specific needs of 

different communities are taken into account; 

• Addressing value for money within a preventative as well as prosecutorial framework. 

The CPS strategic plan is largely compatible with the joined up partnership working approach 

that is modern and efficient; with core values that are replicated with other domestic violence 

strategies across local regions and nationally. 

6. Hillingdon Police 

Hillingdon Police have demonstrated great leadership in taking the domestic violence agenda 

forward and creating a more sophisticated approach to dealing with this crime. They have 

helped to dramatically improve effectiveness by gathering information that focuses more on 

the pattern of behaviour of domestic violence perpetrators, which are linked to issues of 

power and control. 

The police have helped to provide 3 rd Party Reporting Sites to improve the quality of 

information, enabling them to be more effective in response / reports and providing more 

detailed evidence for the justice process. 

The Borough commander works closely with Democratic Services and the Community Safety 

team, and the police regularly send representatives to the domestic violence Executive 

Committee, Domestic Violence Forum, Anti-Social Behaviour Teams, Victim Support, Elder 

Abuse and Neighbourhood Watch. They also strategically contribute to Supporting People 

Consultation Processes. 

The Metropolitan Police have introduced an additional risk assessment form, which has been 

implemented by Hillingdon police and contains more in-depth questions to help identify risks 

posed by the perpetrator, thus helping to reduce repeat offending in the long term. 

The Community Safety Unit is a dedicated team comprising 15 police officers (both uniform 

and detective), which are branch supervised by 3 sergeants and deal with all domestic 

violence related issues, from minor domestic arguments to serious assaults on either male 

and female victims. The target group incorporates homophobic and race hate crime victims. 

The officers work to identify repeat instances of all domestic incidents and attempt to reeducate 

both victim and perpetrator. The officers deal with the victims, witnesses and 

perpetrators. 




There is a dedicated domestic violence coordinator within the unit, funded by Social Services 

to assist many of the victims and advise them on injunctions, civil actions, refuges etc. and 

provide the much needed support and reassurance the vulnerable victim needs. 

The Crime Prevention officers specialising in domestic violence issues work closely with the 

CSU and advise on security for the home address. They have been instrumental in setting up 

the Hillingdon Sanctuary Scheme in partnership with Hillingdon Homes, Careline, Housing, 

Shepherds Bush Housing Association and outreaching local locksmiths whilst monitoring cost 

effectiveness, impact upon the victim and maintenance of security measures installed. 

Voluntary Services 

1. Support Services 

Shepherd Bush Housing Association (SBHA) provides floating support to victim of domestic 

violence. The support is practical and includes emotional advice to women all over the 

borough. They also offer a limited counselling service as well as advocating on behalf of their 

clients with regard to housing and benefits. 

The domestic violence floating support service (DVFSS) provided by SBHA operates a 

counselling service for women who are supported through the floating support service or who 

live in the refuge or the safe houses. 2 Counsellors see 8 clients per week between them. 

2. Accommodation based services 

SBHA provides a refuge for seven women and their children as well as 2 safe houses for 11 

single women. There is also a Play worker who offers individual support, a Family Counsellor 

for mothers and children, as well as a Play Therapist who offers group activities and support 

to the children. All of these services are funded through the Children's Fund. 

SBHA has obtained funding to set up a residential for ex-refuge tenants and their children 

who have remained in the borough which will offer confidence building and self-esteem 

raising sessions as well as getting valuable feedback from the service users to effect tailor 

future service provision. 

3. Advocacy services 

The DVFSS supports women using the legal system by accompanying clients to solicitors 

appointments or to court, and where appropriate, liasing with Victim Support Witness Service 

and other Court Support Services. 

Hillingdon Women’s Centre provides a limited legal service run on a voluntary basis. 

Sure Start provides a range of services and support to families within their areas, including 

specific groups and links to specialist agencies to ensure a network of provision to increase 

safety and choices available to victims. There are links between Hillingdon and the local 

programme. Sure start offers key staff allocated according to need and as appropriate uses 

other agency input and support. Services include family support workers across all 

programmes, which provides support for young and/or vulnerable mothers, a key worker 

system of individual support for women or children, crèche and play workers to support 

attendance at groups and to support the parents relationship with the child. 

4. Outreach 

Hillingdon has invested in a Primary Well being Pilot project to promote the emotional health 

and well being of primary school aged children. The pilot includes in-service training for 




teachers, parent information sessions, whole class ‘circle time’ sessions and individual work if 

required. 




Awareness raising 

The council has a full complement of advertising, using a range of different media in 

appropriate community languages, and its website carries regularly updated information about 

anti domestic violence services. The council pro-actively promotes awareness raising events 

such as White Ribbon Day. 

Domestic Violence forum produces a range of information for women and agencies including 

help cards for women with key agency details and posters with anti domestic violence 

messages. 

HAVS produce a newsletter, which features community news, training and funding 

opportunities. 

Training 

The council is rolling out multi agency D V Training to develop a more effective, standardised 

response to clients that are fleeing / experiencing or concerned about domestic violence 

across the borough. 

Providing training is a key way of supporting agencies to develop their services. 

Multi-agency 2-day courses run every month and provide training to a wide range of 

statutory and voluntary sector agencies. 

The Community Safety Unit and Hillingdon Housing. Domestic Violence Coordinators also 

assist in the development of customised courses for agencies or departments. Training is 

linked to relevant agency policies, procedures and protocols. 

The Probation Service has recently introduced a system that identifies perpetrators of 

domestic violence to attend a 30+ week course based on the Duluth Model. This course is 

focused on addressing the needs of victims and witnesses through a consultative process. 

Co-ordination 

The council have employed a full time Domestic Violence Coordinator within housing to work 

with the various agencies delivering services to victims and ensure that the service is 

seamless and addresses the needs of service users. 

A Domestic Violence Pack is being developed to include a directory of all local agencies, as 

well as similar information from neighbouring Local Authorities – this will be distributed to all 

agencies taking part in the multi –agency training and to services involved in the provision of 

domestic violence services across the borough. 

SBHA services carry out risk assessments and support planning. These tools, agreed with 

the client, inform and direct the service they receive. In addition, the local police have 

adopted a generic assessment tool that is used throughout frontline services – it is used to 

assess risk of perpetrators as well as to build towards Safety Planning for victims. 




Local context 

The Housing Services conducted a mapping exercise (as detailed above) of 

the services currently available within the borough. 

The areas used as a guide during the mapping exercise were those indicated 

in the guidance document published by the home office in December 2004 to 

assist local authorities with developing domestic violence strategies. 

This allowed for a comprehensive gap analysis to be conducted. 

The key findings of the gap analysis were: 

Presently, the complex nature of domestic violence defies the necessity for 

building a systematic way of understanding its impact. Health, Police and the 

council’s housing dept have all developed ways to collect data but their 

different criteria, modus operandi and the ‘masked or hidden’ issues arising 

often reduce compatibility. 

Local voluntary organisations operating on limited resources with clients at 

crisis point can be reluctant to contribute to mapping exercises as the needs 

they identify may then be taken up by rival agencies with the resources to 

develop services. 

There is a strong commitment to develop good practice and outreach to all 

communities. Many organisations have primary concerns with survival, and 

reaching targets and these qualities can contribute to minimise ‘thinking out 

side the box’, which is important to enable the power-sharing roles in 

partnership working, with a view towards prevention. 

However, more work is needed to develop a clear picture of the level of 

understanding of this crime within the community as a whole. 

Violent relationships often become more violent over time. While it is 

impossible to predict with any degree of certainty when relationships will 

escalate to lethal violence, researchers have identified some common factors. 

The police have taken a strong initiative in adopting a new assessment tool 

that they consistently use for domestic violence cases. This has resulted in 

more effective ways to determine the lethality of perpetrators, as well as 

providing earlier intervention by the agencies they refer victims to. 

This tool is being shared and developed with other agencies through multi 

Agency DV training and will be instrumental in developing a common 

assessment tool. It is compatible with adult and child protection procedures. 

Many agencies are moving toward a common assessment tool, indicating that 

in the future the information they share will be more meaningful and enable 

more effective referrals. 

Until then, there is no common assessment tool in place. 




Agencies working within the borough with victims of domestic violence record 

and use their own statistics for development purposes and to ensure that 

service delivery is meeting local need. There is no commonality across the 

agencies at this stage, and the statistics are not combined. This is a key area 

that the domestic violence forum is committed to addressing. 

In the meantime, there is no common statistical recording, or gathering 

and using of any statistics that are recorded. 

The police have worked in partnership with local business to develop third 

party reporting sites with the aim of increasing reportage of domestic violence, 

homophobic behaviour and hate crimes. The police, representatives from the 

Council and Democratic services regularly attend the DV and LGBT Forums 

in order to develop links with local associations, clubs, volunteer groups to 

raise awareness and to address the issues arising about abuse within gay 

and lesbian relationships. There is anecdotal evidence that social pressures 

contribute to the reluctance of these groups to declare incidents. 

Despite the work carried out as above, at this stage, there is no firm 

evidence about male and same sex victims of domestic violence 

Members of the DV Forum benefit from regular updates of research 

developments and Good Practice but this is not sustained over the entire 

health / housing sector. Research based developments can outstrip common 

knowledge so that many outmoded attitudes and responses continue to 

prevail. There have recently been good initiatives that reach out to 

marginalised groups within the borough. 

Despite this however there are still gaps in service provision across the 

borough for all victims of domestic violence 

We are at an early stage of rolling out the monthly DV training process (to be 

reviewed in December ’05). There has been a good response to this training 

package from Housing & social services, Youth offending, Links and 

Voluntary organisation so far. Although the DV Training programme is freely 

available to all DV Forum members, it is also run on a roll-on format, which 

offers flexibility and choice and is set out in a way that allows for planning by 

management. 

This demonstrates that whilst there is an encompassing training 

package, not all departments are signed up to it. 

The CPS has adopted a new policy that will encourage agencies to have a 

more joined up approach to supporting victims. Advocacy services are being 

developed to provide legal support to victims on a voluntary basis. 

Magistrates rely on information provided by the prosecution authorities. Their 

legal advisors have been trained and on-going training is also provided for 

staff and magistrates in areas such as victim awareness & support, how to 




issue bail etc. Systems have been introduced that promote the safety of 

victims. 

The Uxbridge Magistrates Court works closely with the Witness Service and 

has developed facilities to protect victims that appear in court. 

Despite this there is no agreed approach to supporting victims through 

the legal process. 

Although there have been examples of Perpetrator Prevention Interventions 

across South East / London regions such as Camden Safety Net and the 

Living Without Violence Prevention Programme in Brighton, funding is difficult 

to identify and maintain. These programs have thorough assessment 

processes and have support programmes for the family, victims and 

witnesses that run alongside the corrective behavioural group work that last 

36 weeks. Local agencies that develop successful prevention programs 

services in the future will contribute to reducing costs. 

Despite this there is no agreed approach to dealing with perpetrators. 




Key Deliverables: 

From the mapping exercise and gap analysis, the key deliverables for this 

strategy focus on the following main themes: 

• Raising Awareness 

• Improving service provision and access to it. 

• Improving information sharing and data management 

• Developing legal, civil and criminal justice responses. 

• Perpetrator Work 




Raising awareness: 

Why a priority? 

Despite the targeted campaigns on domestic violence by the government, 

voluntary sector and police, and the increased visibility of domestic violence 

through the media coverage it now receives; there persist many 

misconceptions surrounding domestic violence that affect how victims are 

perceived, and that lead to perpetrators being excused their actions. 

Research shows that some young people think that violence to a partner is 

acceptable in some circumstances. For many a level of violence in their lives 

is commonplace and accepted as inevitable. 

In order for the society we live in to confront domestic violence a basic level of 

understanding of the issues surrounding it must be reached. 

Lack of recognition of domestic violence within Hillingdon, and lack of 

awareness of the services that exist to deal with it have lead to under 

reporting and under recording of the true extent of domestic violence. 

There are two aspects to ensuring that domestic violence is recognised by 

society: 

• Awareness of the general public, 

• Awareness of those working with people who may be affected by domestic 

violence, targeted at different groups including the public, victims and 

perpetrators. 

Our key actions to address this area will be: 

• Public awareness: 

• Training for staff: 

‣ To work with local media to raise awareness. 

‣ To ensure there is clear accessible information 

provided to the public. (Creatively placed) 

‣ To build on national campaigns, and incorporate 

them into local strategy. 

‣ To do outreach work in schools and local 

businesses as part of a raising awareness 

campaign 

‣ To ensure a consistent message is given to the 

public by all partner agencies regarding domestic 

violence. 

‣ To hold regular information events for practitioners 

& staff 

‣ To provide information to agencies via a newsletter 

‣ To provide cross borough multi agency training 

‣ To ensure domestic violence training links with 

agency training plans and staff development 




Improving Service provision and access to it: 


Our research has clearly indicated the gaps in our service provision in this 

area. Refuges and other services within the borough are continuously 

oversubscribed and though Supporting People has helped to coordinate the 

delivery of services, there are still gaps in this area. 


• Mapping of service provision within the borough 

• Providing clear information to all agencies involved in work with victims of 

domestic violence on service provision and routes into services within the 

borough. 

• To widely promote local and national help-lines 

• Developing a common risk assessment tool for use across the borough 

• Participating in strategic work to tackle domestic violence across West 

London partnership, and ensuring this is widely available 

• Carrying out ongoing local consultation with service users to continuously 

address gaps in service at a strategic level 




Improving information sharing and data management: 


Within Hillingdon there are many agencies working towards reducing 

domestic violence, supporting the victims of domestic violence, and increasing 

the levels of prosecution. 

There is scope to increase the level of joint working that currently takes place, 

thus reducing duplication of services and effort, confusion over responsibility, 

and the cost that this brings about in terms of human and financial resources. 

For a more effective policy where more perpetrators are brought to justice and 

more victims supported appropriately it is vital that information is shared and a 

common database and method of recording is established. 


• Draw on national and local good practise 

• Build on existing local processes (e.g. child protection system) 

• Reduce the duplication of services through streamlined communication 

• Develop and agree a common tool for reporting incidents of domestic 

violence, and monitoring victims and perpetrators. 

• Ensure that all agencies have appropriate mechanisms to facilitate the 

analysis of this data, and are equipped to incorporate it into the 

development of their service. 

• Further develop effective and appropriate networks for information sharing. 




Developing appropriate legal, civil and criminal responses to domestic 

violence: 


The civil and criminal justice system is instrumental in ensuring the effective 

protection of women and their children. Its input into this process is threefold: 

• It is one of the main mechanisms that can provide abused women the 

safety for themselves and their children that they seek. 

• It can deliver justice to perpetrators of domestic violence 

• It can send a clear message to society that domestic violence is a crime 

that will not be tolerated. 


• To promote the training of all those involved in the civil and criminal justice 

system. 

• To ensure that women have access to appropriate advice and advocacy 

services 

• To promote effective working relationships between the key domestic 

violence support agencies, and the legal and advice service providers. 

• To develop domestic violence courts, in line with national good practise 

• To promote a supportive approach for women using the civil and criminal 

justice system and consistent sanctions for perpetrators 

• To implement government proposals on improving the protection of 

women 




Perpetrator Work 


To date the main body of funding spent, and work done to combat domestic 

violence has had a victim focus. This, whilst it has been necessary, has failed 

to address the cause of the domestic violence itself, and therefore missed a 

key element in preventing its reoccurrence. 

To achieve a reduction in repeat victimisation significant focus must be on the 

perpetrators. To address this for convicted perpetrators there must be 

improved coordination amongst the criminal justice agencies. For non 

convicted perpetrators and those who come forward with the wish to address 

their own behaviour there should be easier access to specialised, appropriate 

programmes. 

Our key actions to address this area are: 

• Ensure the criminal justice implementation group performs according to 

best practice and adapts to new developments 

• Investigate ways in which perpetrators can be assisted to change their 

behaviour 

• Introduce a systematic approach to dealing with perpetrators (check if 

exists. 

• To implement nationally approved programmes of work with perpetrators 

• To ensure women are provided with parallel support services. 




DOMESTIC VIOLENCE STRATEGY IMPLEMENTATION PLAN 

Action Lead Officer By When 

Raising awareness 

− To work with local media to raise awareness 

Domestic Violence 

Forum 

September 

06 

− To ensure there is clear accessible information provided to the public 

(creatively placed) 


Forum 

December 

06 

− To build on national campaigns, and incorporate them into local strategy DV Exec. Committee March 07 

− To ensure a consistent message is given to the public by all partner agencies 

regarding domestic violence. 


Forum 

September 

06 

Develop a domestic violence education pack in consultation with the wider domestic 

violence forum. 

− To do outreach work in schools and local businesses as part of a raising 

awareness campaign 

− Carry out an evaluation of education work done to measure the impact of the 

awareness raised in schools. 

2. Improving Service provision and access to it 

− Mapping of service provision within the borough 

− Providing clear information to all agencies involved in work with victims of 

domestic violence on service provision and routes into services within the 

borough. 

− Developing a common risk assessment tool for use across the borough 

Education 

December 

06 

Domestic Violence March 07 

Forum Members 

Education June 07 

Domestic violence 

co-ordinators 


co-ordinators 

Police & domestic 

violence coordinators 

December 

05 

June 06 

March 06 




− Participating in strategic work to tackle domestic violence across West London 

partnership, and ensuring this is widely available 

All service providers March 08 

Lobby for additional refuge places in the borough 

Domestic Violence March 08 

Forum 

− Carrying out ongoing local consultation with service users to continuously Domestic Violence March 08 

address gaps in service at a strategic level 

Forum 

− To widely promote local and national help-lines All service providers December 06 

3. Training 

Multi–agency training – continue & review delivery plan 

− To hold regular information events for practitioners & staff 

− To provide information to agencies via a newsletter 

− To provide cross borough multi agency training 

− To ensure domestic violence training links with agency training plans 

and staff development 

− Businesses to send their employees on multi agency training. 

Domestic violence coordinators 


Forum 


Forum 

Domestic violence coordinators 


Forum 


Forum 

December 05 

June 07 

September 06 

April 05 - March 

08 

March 06 

June 07 

4. Improving information sharing and data management 

Develop a reporting mechanism on repeat homelessness due to 

domestic violence 

Develop an information sharing protocol and have it agreed between 

key statutory partners 

Housing Services March 06 


Forum 

March 07 




− Draw on national and local good practice 

− Build on existing local processes (e.g. child protection system) 

− Reduce the duplication of services through streamlined communication 

− Develop and agree a common tool for reporting incidents of domestic 

violence, and monitoring victims and perpetrators. 

− Ensure that all agencies have appropriate mechanisms to facilitate the 

analysis of this data, and are equipped to incorporate it into the 

development of their service. 

− Further develop effective and appropriate networks for information 

sharing. 

5. Developing appropriate legal, civil and criminal responses to 


− To promote the training of all those involved in the civil and criminal 

justice system. 

− To ensure that women have access to appropriate advice and 

advocacy services 

− To promote effective working relationships between the key domestic 

violence support agencies, and the legal and advice service providers. 

− To develop domestic violence courts, in line with national good practise 

− To promote a supportive approach for women using the civil and 

criminal justice system and consistent sanctions for perpetrators 

− To implement government proposals on improving the protection of 

women 

6. Perpetrator Work 

Review the council tenancy agreement to ensure that there is a specific clause 

stating that perpetration of domestic violence by a tenant can be considered 

grounds for eviction. 

Police March 06 


Forum 


coordinators 

Police & Probation 

service 


Forum 


coordinators 

Crown prosecution 

service 

Crown prosecution 

service 


service 

September 06 

April 05 – March 

08 


08 


08 


08 

December 07 

December 07 

December 07 

Hillingdon Homes December 05 




Ensure the criminal justice implementation group performs according to best practise 

and adapts to new developments 

− Identify ways in which perpetrators can be assisted to change their 

behaviour 

− Introduce a systematic approach to dealing with perpetrators 

− To implement nationally approved programmes of work with 

perpetrators. 

− To ensure women are provided with parallel support services 

− Ensure the criminal justice implementation group performs according to 

best practise and adapts to new developments 


service 


Coordinators 


service 

All service providers 

working with this group 


Forum 


service 


08 

June 06 

June 06 

December 07 

December 07 


08 




Strategy action plan monitoring process. 

This strategy was developed in order to ensure that Hillingdon meets national 

and regional standards of excellence in responding to Domestic Violence. 

Housing services, through their domestic violence coordinator, took the lead in 

developing the strategy. 

It was instrumental that the members of the Domestic violence executive 

committee were closely involved throughout the period of development in 

order to involve key partners at a strategic level. 

The Domestic violence forum participated in a consultation process on the 

draft strategy during its inception. 

This collaborative approach to the development of the strategy will be 

continued during the 3 years of its operation to ensure that the targets and 

time frames are met. 

Following the launch of this strategy the Domestic Violence Forum Executive 

Committee have taken the lead role in ensuring that targets are met and work 

is delivered. 

In order to achieve this the action plan and progression of it will be reviewed 

quarterly at this group’s meetings. 

The executive committee will follow up on all named leads within the action 

plan, whilst the domestic violence forum will provide support and information 

to all named leads on designated tasks. 

All members of the domestic violence forum are signed up to its terms of 

reference, which this strategy falls under, and therefore have the opportunity 

to contribute to every stage of the strategies implementation. 




Appendices. 

Appendix 1 

Feedback from DV Forum Meeting. 

The DV Forum met to review the 2nd draft of this strategy and approved the 

key Deliverables by way of a consultation Exercise on 14 th September 2005. 

What follows is a summary of recommendations made by the forum, which 

have been included within the action plan and strategy: 

• The strategy should include an objective to ensure resources are made 

available 

• Invite and encourage local drama schools, Brunel University to create 

teaching packages that could be made widely accessible to young 

people, such as 6 th Form, Youth Offenders with a focus upon “Reduce 

Stigma = Reduce Crime”. 

• Representatives from senior management, directors, cabinet members, 

management as well as frontline staff should receive training in basic 

awareness of DV and assessment skills when appropriate. 

• Multi agency DV Training must essentially continue to be rolled out on 

a regular basis and remain free of charge to encourage partner 

agencies to attend. 

• Promote the 11 points on the BVPI 

• The DV Forum is a good example of how partnership can be effective – 

the following agencies should be invited if not attending: Health, 

Housing (including Residential Social Landlords), Crown Prosecution 

Service, Statutory and Voluntary social care agencies, Mental Health, 

Police, Civil & Criminal Courts, REAP, Age Concern, Refugee & BME 

Organisations, Travellers representatives, Refuge, Benefits, Youth 

Offending, Anti-Social Behaviour Teams, Probation and Drug & Alcohol 

Teams. 

• Attendance coordinated to maximise opportunities for partner agencies 

to network and familiarize with diverse ranges of DV related services. 

• Pursue a vision that incorporates advocacy support, rehabilitation & 

Prevention of perpetrators, Family Therapy to address recovery from 

the long term problems attributed to living in intimidating 

circumstances, client centred partnership working 

• Define responsibilities to help organisations understand their roles and 

links 

• Supporting People could play an important role 

• Basic awareness for GPs, dentists and all hospital departments 

• Promote client centred partnership working across the region 

• A possible additional key deliverable that addresses the question about 

duplication of statistics 

• Promote the Sanctuary Scheme to increase options of safety for 

victims 

• Perpetrator work for men that want to stop abusive behaviours 




• Domestic Violence training to be mandatory for all staff that come into 

contact with victims, witnesses and perpetrators 

• Itemise domestic violence on team meeting agendas so that strategic 

thinking is consistently reinforced 




Appendix 2 

Best Value Performance Indicators 

Actions Against Domestic Violence 

Purpose/Aim 

The purpose of this BVPI is to assess the overall provision and effectiveness 

of local authority services designed to help victims of domestic violence and 

prevent further domestic violence. 

Description 

The percentage of the following questions to which a local authority can 

answer ‘yes’. (To answer ‘yes’ the local authority must have fully achieved to 

goal described; it is not enough that the authority is working towards the goal.) 

1. Has the local authority produced a directory of local services that can 

help victims of domestic violence? 

2. Is there within the local authority area a minimum of 1 refuge place per 

ten thousand population? 

3. Does the local authority employ directly or fund a voluntary sector 

based domestic violence co-ordinator? (For district Councils of fewer 

than 35,000 households, the responsibility for co-ordinating domestic 

violence can be designated within the job description of an existing 

senior officer. For District Councils that contribute to a county-wide coordinator, 

see definition. 

4. Has the local authority produced and adopted a multi-agency strategy 

to tackle domestic violence developed in partnership with other 

agencies? 

5. Has the local authority support and facilitate a local multi-agency 

domestic violence forum that meets at least 4 times a year? 

6. Has the local authority developed an information-sharing protocol and 

had it agreed between key statutory partners? 

7. Has the local authority developed, launched and promoted a 

‘sanctuary’ type scheme to enable victims and their children to remain 

in their own home, where they choose to do so and where safety can 

be guaranteed? (For smaller district authorities, or fewer than 35,000 

households this can be arranged in partnership with neighbouring 

authorities) 




8. Has there been a reduction in the percentage of cases accepted as 

homeless due to domestic violence that had previously been re-housed 

in the last two years by that local authority as a result of domestic 

violence? 

9. Does the council’s tenancy agreement have a specific clause starting 

that perpetration of domestic violence by a tenant can be considered 

grounds for eviction? (For local authorities that have transferred their 

housing stock, the clause should be contained in LSVT organisations’ 

tenancy agreement.) 

10. Has the local authority funded and developed a domestic violence 

education pack in consultation with the wider domestic violence forum? 

11. Has the authority carried out a programme of multi-agency training in 

the last twelve months covering front line and managerial staff in at 

least two of the following groups: housing staff, social services staff 

providing services in the local authority area; education staff; health 

staff; and front line police officers? 

Definition 

1. The directory must list both statutory and voluntary agencies that can 

provide emergency housing, advice (welfare, housing and legal), 

counselling and support, and include any local women’s aid contact 

details and the National Domestic Violence Helpline. It must be widely 

distributed and updated at least every 2 years. A directory should be 

available for each district and not just county level, as a minimum it 

should be available on the local authority’s web-site. A directory for 

services that work with victims of domestic violence can be provided 

separately from the Directory for Victims of Domestic Violence. 

2. ‘Places’ means the number of rooms providing bed spaces for a 

woman and her children. Rooms not normally designated, as 

bedrooms should be counted towards the total. ‘Refuge’ means 

emergency accommodation for women and children who have been 

referred for help having experienced threats to their physical safety. It 

must provide help, advice and advocacy support as well as being part 

of an integrated local approach involving partnership with other local 

and statutory bodies. 

3. Calculate ‘Local Authority population’ using the latest ONS mid-year 

estimates. 

4. The co-ordinator should be employed at a local authority level (see 

exemption below) and have responsibility for strategically co-ordinating 

domestic violence issues throughout the local authority area. Where 

funding has been provided to the voluntary sector or local area. Where 

funding has been provided to the voluntary sector or local partnership 

to employ a co-ordinator this will meet the definition as long as their 




role remains to co-ordinate work in both the statutory and voluntary 

sectors across the area covered by the local authority. Exemption in 

cases where District Councils fun a county-wide co-ordinator the 

District Council will meet the requirements of this BVPI if the 

responsibility for ensuring that any county-wide work is implemented at 

a district level is included in the job description of an existing senior 

officer for that district. 

5. The strategy should have been developed in partnership with all 

relevant statutory and voluntary partners. It should be supportive of, 

and aligned with, the authority’s Crime and Disorder Reduction 

Strategy (CDRP). The strategy should cover a 3-year period with an 

action plan reviewed annually. The action plan should contain at least 

50% outcomes that are SMART and include a section on how the 

needs of BME communities will be addressed. A Chief Officer and an 

Executive member in the authority should have been allocated 

responsibility for its implementation. 

6. The forum should have a mix of statutory and voluntary sector 

representatives at a senior enough level to aid the implementation of 

decisions and the strategy action plan. The forum should be formalised 

as part of the Crime and Disorder Partnership. 

7. The information-sharing protocol must facilitate the exchange of 

information to enable domestic violence to be effectively tackled across 

all statutory agencies. Key statutory agencies are defined as the 

Police, Health, Housing, Social Services and Education. The protocol 

will also provide an opportunity to implement Homicide Reviews where 

appropriate. It must ensure that confidentiality and victims safety is 

protected. 

8. A sanctuary type scheme must provide security measures to allow the 

woman to remain in her home where she chooses to do so, where 

safety can be guaranteed and the violent partner no longer lives within 

the home. It must be available across tenures where the landlord of a 

property has given permission for the work to be carried out. It must 

consist of additional security to any main entrance doors to the 

accommodation and locks to any vulnerable windows. Wherever 

possible it must provide a safe room in the home secured with a solid 

core door and additional locks. It is essential that this service be only 

provided where it is the clear choice of the victim. The scheme should 

be implemented through partnership with the police and/or the 

voluntary sector that could provide supplementary support. It may be 

provided directly by the local authority or through a third party funded 

as part of the local authority’s homelessness prevention work through 

grants that may be available for crime reduction initiatives. 

9. The indicator is met if there is a percentage reduction in homelessness 

acceptances due to domestic violence. Acceptances who were 




previously homeless in another local authority area should not be 

included. Reductions achieved in preventing repeat homelessness 

should be clearly linked to positive measures adopted to provide 

genuine alternatives for women to either remain in their own home or 

be placed in alternative accommodation, removing the need to become 

homeless. Alternative accommodation may be secured by arranging a 

reciprocal property with another social landlord, or a safe management 

transfer. Any options or measures to prevent repeat homelessness 

must only be taken with the full consent of the victim of domestic 

violence. 

10. Any clause should make clear that evidence of domestic violence for 

eviction purposes does not need to rely on a criminal charge. Evidence 

may be based on a possession action using civil evidence. 

11. The domestic violence education pack must have been specifically 

designed for use in schools and with youth groups. It must aim to 

challenge attitudes of tolerance to violence and help young people to 

achieve positive relationships based on mutuality and respect. Schools 

and youth groups cannot be forced to run a programme on domestic 

violence but the pack must be easily available and actively promoted. 

Schools should be encouraged to use the material as part of their 

PSHE or Citizenship curriculum. 

12. The training programme must cover domestic violence awareness 

training, the legal framework, information sharing, and who provides 

what services to victims of domestic violence with referral and contact 

points. The programme should be developed in consultation with the 

Domestic Violence Forum and reviewed by the forum annually. 




Appendix 3 

Hillingdon Domestic Violence Strategy - Gap Analysis 2005 

Service 

requirement/aspect of 

domestic violence to 

address 

Preventative work within 

education (raising 

awareness) 

Linked to BV 225 (Q10) – 

Has the local authority 

funded and developed a 


education pack in 

consultation with the wider 

domestic violence forum? 

Current Position Excellent Position Action required to address Gap 

Identified within the 

council’s Domestic 

Violence policy. 

2 officers have attended 

training for Westminster 


intervention project. 

Have developed and published a pack for 

schools on Domestic violence prevention, 

both in secondary and primary. This should 

comprise inset training days for all school 

staff and in-depth training for nominated 

teachers. 

Pack will have features of Westminster 

model, as well as any other necessary local 

variations. 

All schools to have received training and be 

implementing project. 

The education pack must have been 

specifically designed for use in schools and 

with youth groups. 

More schools to accept training 

and allocate resources to allow 

project to be implemented. 

“Training the Trainer” Parent skills 

courses offered to parent 

educators from all agencies. 

Work with local media to raise 

awareness. 

Ensure that clear accessible 

information is creatively provided 

to the public. 

Outreach work in schools and local 

businesses as part of raising 

awareness campaign. 

Evaluation of education work done 

to measure the impact of 

awareness raised in schools 




Corporate Social 

responsibility and the 

employers role 


Has the local authority 

produced and adopted a 

multi-agency strategy 

developed in partnership 

with other agencies? 


Does the authority support 

and facilitate a local multiagency 


forum that meets at least 

four times a year? 

Lancaster counselling 

service for staff 

Multi-agency strategy is 

currently being 

developed and will be 

completed in Q3 05. All 


Forum members will be 

consulted in the process. 

The council supports and 

facilitates the Domestic 

Violence Forum that has 

been in place since 1996 

and meets 6 times a 

year. The DV forum 

retains a degree of 

independence with a 

chair elected from the 

voluntary sector. The 

local domestic violence 

co-ordinators work very 

closely with the forum, 

and have an input into 

determining their annual 

work programme. 

Promotion of good practise for employers 

on Domestic Violence and the workplace 

across the borough, involving local 

businesses in promoting help lines and 

services imaginatively. 

Businesses to send their employees on 

multi agency training. 

Holistic, multi-agency wrap-around service 

with an efficient Information Sharing 

Protocol that is focused upon prevention of 

domestic violence and protecting victims 

and witnesses and developing work and 

research on perpetrators of domestic 

violence. 

Full representation on the Domestic 

Violence Forum by all statutory and 

voluntary agencies. 

Progress action to be delivered 

through Local Strategic 

Partnership work. 

Promote domestic violence training 

for Human Resources and 

Personnel departments 

Multi-agency Domestic Violence 

Training 

Developing Advocacy services 

Strategy document & action plan to 

be implemented. 

Continue to consult with Domestic 

Violence forum – sharing research 

evidence of good practise, whilst 

developing links to relevant 

services that come into contact 

with domestic violence. 




Supporting women through 

the legal system 

Support systems available 

specifically for children 

CPS/police have a 

positive charge protocol 

in the absence of victim. 

There is a police victim 

care unit with positive 

intervention procedure. 

Victim Support Service 

have/are addressing 

these needs 

Fast track/specialist DV court. 

Access to solicitors 

Advocacy Service. 

Information raising awareness of domestic 

violence made accessible to minority 

groups. 

Improved support to parents through 

targeted services. 

Early intervention and protection – 

improved information sharing, common 

needs assessment framework, assignment 

of lead professional for children in multiple 

risk, and multi disciplinary teams in 

schools. 

Work force reform strategy. 

Create accountability & integrated local 

services. 

Establish a fast track/specialist 

Domestic Violence court with 

access to solicitors 

Advocacy Service with training 

made available to relevant 

agencies. 

“Training the Trainer” Parents 

Skills Course offered to Parent 

Educators across all disciplines 

and agencies. 

Multi-Agency Domestic Violence 

Training – including governing 

bodies, executive & councillor 

representatives. Also to Human 

Resources and Personnel 

departments. 

Crisis support/outreach to 

perpetrators 

No current provision 

Murder Reviews. 

Training programme on how to challenge 

perpetrators, community perpetrators 

programmes linked into Multi Agency 

Public Protection arrangements, support 

group for partners 

Outreach to relevant individuals 

within statutory / voluntary 

agencies to develop a service that 

addresses the behaviour of 

perpetrators whilst protecting 

victims and witnesses 




Telephone advice / contact 

line for women & 

Information provision to 

victims 


Availability of directory of 

local services that can help 

victims of domestic 

violence. 

Work/refuges specifically 

targeting marginalized 

groups within the borough 

(e.g. prostitution, travellers, 

Black & Minority Ethnic 

groups) 


Availability of a minimum of 

1 refuge place per ten 

thousand population. 

Guidelines for health care 

workers 

Police have a witness 

care unit for this purpose 

in addition to the liaison 

with the Crime 

Prevention Unit 

Housing D V Coordinator 

currently developing a 

directory of local services 

Police have recognised 

the gap but have not 

structured a targeted 

programme for these 

groups yet. 

Some work on this has 

been done through the 

health and crime group 

Primary Care Trusts 

follow statutorial 

guidelines. 

Publicise national lines widely, have local 

information lines set up & also widely 

publicised. Creative use of advertising 

services, as previous. 

A domestic violence directory providing 

information, contacts and criteria of work of 

support agencies in and around the local 

area. 

Specialised support services/workers 

operating within existing teams with these 

client groups, tied in to existing services. 

Development of Domestic Violence policy 

and good practise guidelines, training of all 

health professionals, implementation of 

guidelines, including operation of routine 

enquiries, proactive role for Primary Care 

Trusts in local multi agency work on 

Domestic Violence. 

Share resources to improve 

training of voluntary services e.g. 

Equal Opportunities. 

Media to promote new D V 

directory and service provision. 

Develop links with neighbouring 

local authorities to provide detailed 

account of local services for 

persons fleeing domestic violence. 

Develop 3 rd Party Reporting sites 

across the region. 

Develop Advocacy training / 

services. 

Outreach projects to encourage 

members of minority groups and 

raise awareness of domestic 

violence. 

Multi Agency Domestic Violence 

Training. 

Promote Core Definition of 


Accident &Emergency 

provide statistics 




Monitoring and regular 

consultation with women 

Collection and 

interpretation of statistical 

data 

according to statutorial 

guidelines. 

There is no data to 

suggest that women are 

consulted about 

development of future 

services across the 

borough. 

Although individual 

agencies do collect data 

to support effective 

domestic violence action, 

there is need for a 

coordinated collection & 

reporting process. 

Building consistently upon links with local 

voluntary agencies that comer into contact 

with victims and encourage feedback and 

representation for the domestic Violence 

Forum. 

The Domestic Violence forum is 

investigating choosing a preferred Common 

Monitoring program which will use software 

packages that are capable of collecting 

data from multiple and varied sources. 

There are cost implications in this that need 

to be resolved. 

Mapping of service provision within 

the borough. 

Develop a reporting mechanism on 

repeat homelessness due to 


Draw on local and national good 

practice. 

Build on existing local processes 

such as Child Protection system. 


Has there been a reduction 

in the percentage of cases 

accepted as homeless due 

to domestic violence that 

had previously been rehoused 

in the last two 

years as a result of 

domestic violence (repeat 

homelessness) 

There is no data 

available through 

Accident & Emergency 

Services. 

The data is being 

collected by Housing 

Services since April 

2005. However, there is 

no data for the previous 

year for a comparative 

analysis to be carried out 

yet. 

Ensure that all agencies have 

appropriate mechanisms to 

facilitate the analysis of data, and 

are equipped to incorporate it into 

the development of their service. 

Further develop effective and 

appropriate networks for 

information sharing. 

Reduce the duplication of services 

through streamlined 

communication. 




Joined up approach and 

info sharing 


Whether the local authority 

employs directly or funds a 

voluntary sector-based 

domestic violence coordinator 



developed an informationsharing 

protocol and had it 

agreed between key 

statutory partners. 

Outreach 

services/community 

relevance. 

2 co-ordinators are 

employed at local 

authority level and one of 

them has responsibility 

for strategically coordinating 

domestic 

violence issues within 

the borough. 

No protocol agreed. 

There is a floating 

support service in the 

borough as well as an 

outreach service 

provided by the 

Community safety Unit 


coordinator. Voluntary 

organisations provide 

community based routes 

into services 

Social service awareness of CP issues 

recording DV etc. Develop an information 

sharing protocol, which is agreed between 

key statutory partners. 

Multi agency training 

To facilitate the exchange of information 

between the police, health, housing, social 

services and education 

Multi agency training to increase 

awareness of services available, and to 

ensure that staff working in this field are 

able to set realistic expectations and 

outcomes with their clients of the services 

available. 

Wide reaching service accessible by all 

sections of the community. 

Use police risk assessment tool as 

basis for joint Risk Assessment 

Promote information exchange 

through multi agency training and 

maximising attendance at 

domestic violence forum. 

Develop an information sharing 

protocol. 

Research within the community 

and service user groups to identify 

gaps in service provision. 

Consideration of further 

development of new services, or 

building on existing ones. 



has developed, launched 

Housing Services in 

partnership with the 

Metropolitan Police, 

Increased publicity as to options 

available to victims of domestic 

violence. 




and promoted a ‘sanctuary’ 

type scheme to enable 

victims and their children to 

remain in their homes, 

where they choose to do 

so and where safety can 

be guaranteed. 

Others 

Hillingdon Homes & 

Shepherds Bush 

Housing Association 

developed and launched 

the scheme in July 2005. 

Monitoring of Sanctuary Scheme 

performance and perceptions in 

relation to neighbouring boroughs. 


Whether the council’s 

tenancy agreement have a 

specific clause stating that 

perpetration of domestic 

violence by a tenant can 

be considered grounds for 

eviction. 

Hillingdon homes 

tenancies have a clause 

that stipulates that 

persistent anti social 

behaviour will lead to 

eviction. This includes 

violence against people 

living within the home. 

The clause should make clear that 

evidence of domestic violence for eviction 

purposes does not need to rely on a 

criminal charge. Evidence may be based 

on a possession action using civil evidence. 

Hillingdon homes to ensure this 

clause is in place and used 

effectively. 



carried out a programme of 

multi-agency training in the 

last 12 months covering 

front line and managerial 

staff in at least two of the 

following groups: housing, 

social services, education, 

health staff and front line 

police officers 

Multi agency training, 

that fulfils this criteria has 

been in place since June 

05 

The training must cover domestic violence 

awareness training, the legal framework, 

information sharing & who provides what 

services to victims with referral and contact 

points. The programme should be 

developed in consultation with the Forum 

and reviewed by the forum annually. 

Training programme to be 

reviewed after 6 months. 

Following the review steps to be 

taken by facilitators to needs of 

subscribers are met. 



COUNCIL WORKFORCE PLAN 2005 – 2015 ITEM 5 



Roger Hackett/Pacey Cheales 

01895 250579 / 250118 

Appendices A & B- attached 

SUMMARY 

In July 2005 the Cabinet approved the workforce strategy 2005-15. Officers were ask 

to develop a more detailed Workforce Plan, which would set out the actions and 

targets needed to support the Workforce Strategy. The plan is set out in this report. 

RECOMMENDATION 

That Cabinet approve the Workforce Plan 


Cabinet endorsement is needed so that it is clear that the plan as well as the 

strategy has been formally adopted by the council. 


To not or not adopt the Strategy 

INFORMATION 

Background 

1. In July 2005 the Cabinet approved a Workforce Strategy for 2005-15 

2. Within the context of the vision, values and Community Strategy priorities set 

out in the Council Plan, the Workforce Strategy for 2005 – 2015 identifies four 

strategic themes that will drive a high performing workforce and council: 

Clear Vision and Leadership 

Modernisation and Improvement 

Attract and Retain High Calibre People 

Continuous Learning and Improvement 

3. These strategic themes emerged from an analysis of external factors, the 

current workforce, organisational issues as well as the future direction of the council. 

The final section of the Strategy sets out a number of top-level objectives for each of 

the four strategic themes. 

4. The 10 year Workforce Strategy needed to be underpinned by a Workforce 

Plan that translates the four themes into a number of tangible actions and targets. 



The details of this Workforce Plan have now been developed by officers and 

includes a number of existing HIP People Management deliverables as well new 

issues that have been highlighted in the Workforce Strategy. The Workforce Plan 

ensures that 

• leadership and accountability for implementing the Workforce Strategy and Plan 

is clearly and effective allocated amongst officers. 

• the practical implementation of the Workforce Strategy and Plan fit with the 

council’s existing strategies and priorities. 

• Employers are seeking to provide more quantative performance measure into 

their people management arrangements. This is in order to see how well this 

critical area is being managed both from a VFM perspective and against good 

practice. The plan sets out those areas that it is proposed that data be regularly 

collected and monitored .There are various models being considered and the one 

used in the plan is based upon a model being developed by the ALG. 


Corporate Finance comments 

5. There are no direct financial implications arising from this report. However, as 

staffing costs within the authority excluding schools totals £115m the proper planning 

for staffing requirements is a crucial part of the medium to longer term financial 

planning for the authority. If it is successfully implemented it should be capable of 

generating savings or avoiding extra costs in areas such as recruitment and agency 

costs.' 


6. There is a plethora of employment-related legislation and case law which 

underpins the relationship between the Council and its employees. The law in this 

area primarily focuses on the various rights and obligations of both employers and 

employees. 

7. The Workforce Strategy is a welcome document as whilst it is based on well 

established legal principles, it goes further than strict compliance with the law and it 

sets out a framework, which if adopted by the Council, will help to develop good 

employment practice and will serve to enhance the relationship between the Council 

and its employees.'' 

Further Consultation 

8. Group representatives and the Trade Unions views on both the plan and the 

strategy have been sought . The Strategy has been published on Horizon and staff 

comments sought 




Cabinet report 14 th July 2005 (Workforce Strategy) 



DRAFT 

APPENDIX A 

HILLINGDON WORKFORCE PLAN 



DRAFT 

Workforce Plan 2005/2010 

The following plan describes how we are going to translate our workforce strategy into actions and targets over the next and 

subsequent years based on where we are now, our achievements to date and the challenges we face. It shows how this plan links 

to our strategy, our corporate objectives and our staff values. It also highlights the key influences, which the activities are seeking 

to address. Although the strategy covers the period 2005/10 the plan concentration on setting targets for the medium term of 

2005/8. 

This plan will be a developing document with a process of review and change initially led by the HIP people management group. 

This will be informed by feedback from internal and external stakeholders and policy changes. 

Further work needs to be done to develop S.M.A.R.T. action plans to deliver activities. With these will then come the information to 

realistically populate the final three columns. If the document is to achieve the objective of a whole organisation approach then 

Board members and their teams need to be involved in deciding the detailed indicators which would for them signal success, 

These will also need to be subject to review over the period of the plan as assessment and service changes take place. 



DRAFT 

Objectives How we will achieve By When Responsibility Indicators of Success 

CLEAR VISION & 

LEADERSHIP 

Organisational Ownership 

Board level leadership on workforce 

management. Director of Social 

Services & Housing, Champion of 

People Management in the council. 

Done 

Hugh Dunnachie 

Increased profile of workforce 

at Board level via quarterly 

reporting to Management 

Board. 

Review and clarification of the roles 

and responsibilities for workforce 

issues between Board, Groups, 

Personnel and HIP people, 

management team. 

Feb. 

2006 

HIP People 

Management 

Team 

Effective management of both 

‘hot’ issues eg disciplinary and 

grievance, recruitment and new 

initiatives eg job remodelling 

and career pathway 

development. Delivery of 

agreed quantitative measures. 

Co-ordination of cross organisational 

initiatives to resolve problems 

shared across groups. 

From 

July 

2005 

Recruitment & 

Retention Officer 

Council/Hillingdon wide action 

plan and projects to address 

common initiatives eg level of 

agency staffing overseas 

recruitment developed as part 

of recruitment & retention 

initiative work. 

Board Members and other 

professionals to ensure appropriate 

aspects of national initiatives are fed 

into the plan. 

Ongoing 

Board HIP 

People 

Management 

Team 

Plan updated to reflect national 

initiatives. 



DRAFT 


Effective resource planning 

Partnership Planning 

Develop a resource plan (financial 

and human) to implement this plan. 

Develop a partnership plan with 

partner organisations and 

outsourced providers to take forward 

whole Hillingdon issues and 

maximise community benefits of 

workforce initiatives. 

By Mar 

2008 

HIP People 

Management 

Team 

HIP People 

Management 

Team 

CEO & Service Group Plans 

evidence resources committed 

to delivering /sustaining 

Workforce Strategy and Plan. 

Partnership Plan formally 

endorsed by all contributing 

partners. 

Integration of workforce 

planning into the 

organisation service/team 

Clarify and agree workforce related 

Group, team and individual 

objectives for inclusion in plans and 

Padas. 

Jan2006 

HIP People 

Management 

Team 

Service Planning & PADA 

guidance for 2006/7 revised 

Ensure through Service and team 

plans and Padas all managers 

objectives include appropriate 

workforce related objectives. 

Jan 

2006 

HIP People 

Management 

Team 

Sample Survey provides 

evidence of link between PADA 

objectives and workforce 

matters 

Building Leadership 

Competence and capacity 

Review ‘Building Hillingdon’s Future’ 

programme and introduce more high 

quality management development 

targeted in Y1 at 4 th and 5 th tier 

managers. 

April 06 

Head of Training 

& Development 

XX% increase per annum in 

employee satisfaction with 

leaders judged through staff 

surveys. 

Introduce a qualifications framework 

Nov 05 


Quality and skills profile of 



DRAFT 


for leaders and managers. 

& Development 

managers through 360 degree 

feedback benchmarked against 

competency framework 

Roll out the Leadership 

Development programme and 

ensure full coverage. 

April 

2006 


& Development 

Qualifications framework in 

place for management 

development of top XXX 

managers 

Introduce management development 

programmes linked to Succession 

planning. 

To be 

advised 


& Development 

Leadership/management 

programme delivered via 

modular format encompassing 

learning needs identified 

through the 360 degree 

feedback process. 

Introduce the expectation and 

opportunities for managers to take 

up secondments and job 

swops/shadowing with high 

performing organisations or services 

with the council. 

Mar 

2007 


& Development 

Introduce new secondment 

arrangement to encourage job 

“swop” for XX managers per 

annum 

Joint working between Social 

Services and Housing with PCT 

Ongoing 

SSD/H and PCT 

Current joint working 

arrangements continued. 



DRAFT 


Communication of our 

values, culture and 

objectives 

Communicate our vision, values, 

culture and objectives through coordinated 

staff 

communication/briefings 

Ongoing 



Assess success through staff 

survey results showing XX% 

increase in employee 

awareness and recognition. 

Improve upward and sideways 

communication systems through the 

implementation of the Staff Survey 

Action Plan in line with its timetable. 

Ongoing 

HIP People 

Management 

Team 

Values compounded through 

including in competency 

framework behaviours 

Define our workforce management 

values. 

Done 

Completed and reviewed as 

part of annual council Plan 

refresh 



DRAFT 


MODERNISATION AND 

IMPROVEMENT 

In 2005/6 develop and implement 

the action plans derived from this 

Workforce Plan for the period 2005- 

10. 

End 

2005/6 

HIP People 

Management 

Team 

Action Plan agreed HIP People 

Management Team 

Modern Information 

Systems 

Through the HR portal of the new 

HR/Payroll system provide 

managers and staff with the tools 

and resources that will enable them 

to better manage their people. 

By Aug 

2008 

People 

Management 

Steering Group 

Implementation of new people 

management system in line with 

project plan and monitor 

effectiveness management 

information with sample annual 

survey of managers 

Introduction of self service and 

workflow modules of new people 

management system and achieve 

XX% use of self service modules. 

Ensure that the implementation of 

the new HR system goes smoothly 

and that the planned improvements 

in service and efficiency are realised 

in line with the agreed project 

timetable for 2005/8. 

Aug 

2008 

The People 

Management 

Steering Group 

Agreed project deliverables, cash 

and non-cash benefit achieved in 

agreed timescales. 



DRAFT 


Complete the Process mapping of 

personnel Policies on our intranet 

site June 2005. 

Done 

Inventory of process agreed ad 

mapped within agreed 

timescales. 

Carry out third Staff survey in 

Feb/March 2006 in order to assess 

culture change and effect upon 

employee satisfaction that the 

various organisational development 

initiatives have made. 

June 

2006 

Personnel 

Service 

Survey completed on time. 

Results evaluated and assets 

employee satisfactions and 

impact of previous initiatives. 

Attractive rewards strategy 

and framework 

As part of our R&R package we are 

committed to: 

- Introducing an employer child 

Tax Credit System to help 

attract and retain working 

parents. This will enable 

these staff to pay up to £50 

per week to registered carers 

free of tax and NI. It is 

planned to have this scheme 

up and running by July 2005. 

- Also as part of the Wellness 

Strategy to introduce an 

improved Private Health Care 

Done 

Done 

Recruitment & 

Retention 

Officer 

Revised arrangement in place for 

June 2005 and take up of 

scheme monitored annually. 

Implementation of new schemes 

in July 2005 and July 2006 



DRAFT 


scheme for staff by July 2005. 

Develop proposals for a noncontributory 

scheme in 

2006/7. 

Publicise the Rewards strategy for 

2005/6. 

End 

2006/7 

Ongoing 

Personnel 

Service 

Personnel 

Service 

Personnel 

Service 

Ensure that the arrangements for 

determining Team Bonus pay are 

established by the last quarter of 

2005/6. 

Mar 

2006 

Arrangements for evaluation to 

be in place by the end of 2005/6. 

Team Bonus action plan 

delivered to agreed timescales. 

Linking performance & 

rewards management 

Amend Pada guidance to 

incorporate Team Bonus 

arrangement, Whole Job 

assessment and succession 

planning by end October 2005. 

Oct 05 

HIP People 

Management 

Team 

New guidance published and 

aligned with revised service 

planning guidance. 

Putting in place mechanisms for 

gaining feedback from all levels of 

the organisation on what reward 

initiatives will be most attractive and 

Mar 

2006 

Personnel 

Service 

Through 2006 Staff Survey and 

periodic online and sample 

surveys with staff. 



DRAFT 


ensure staff feel valued. 

Improve our management of 

performance by revising the Council 

behaviour codes and procedures 

ensuring that they comply with new 

legislative requirements. 

Dec 

2005 

Personnel 

Service 

Revised performance 

management arrangements 

endorsed by Management Board 

Put in place arrangements to meet 

the 2005/6 attendance management 

targets of 9 average days. 

June 05 

to Jan 

06 

Personnel 

Service 

Management board and Steering 

Group agreement to 

arrangements for 2005/6. 

Monitoring arrangements in place 

for 2005/6 

Put in place compliance and 

monitoring arrangements for 

attendance management. 

From 

Aug 

2005 

Personnel 

Service 

Compliance Report published 

Feb 2006. Setting on level of 

compliance with key indicators. 

Review the changes in conditions of 

service introduced in 2004/5 as 

there are potentially further savings 

in excess of £100k that could be 

achieved. 

By June 

2006 

Personnel 

Service 

Joint agreement with Trade 

Unions on revised Conditions of 

Service 



DRAFT 


Equalities & Diversity 

Annually monitor recruitment 

arrangements to ensure that we 

maintain or improve the existing 

workforce profile so that it better 

reflects the community we serve. 

Ongoing 

Personnel 

Services 

Targets for Workforce profile set 

annually, monitored and XX% 

improvement in workforce profile 

achieved per annum. 

Publish proposals for Equal Pay 

auditing by October 2005. 

Oct 2005 

Personnel 

Service 

Proposal published with clear 

action plan to address equal pay 

within agreed timescales 

Review and define more clearly the 

competency schedules linked to 

knowledge and skills required. 

Dec 

2006 

T&D Section 

Revised competencies agreed 

Ensure that the action plans in the 

Workforce EO monitoring report for 

2004/5 are widely published 

internally and externally and 

implemented in line with the agreed 

timetable. 

Feb 

2006 

Personnel 

Services 

Report published with monitoring 

of action plan delivery in place. 

Implement the action plan of the 

2004/5 Equalities Workforce report 

in 2005/6. To ensure that the 

workforce reflect the community the 

council serves 

Ongoing 

in 

2005/6 

Personnel 

Service 

Implementation of plan agreed 

July 2005 XX% of Action Plan 

targets/outcomes achieved. 



DRAFT 


Risk management 

Include workforce risks in Risk 

Register. 

Done 

Personnel 

Service 

Include in Corporate Risk 

Register 

Include identification of workforce 

risks in contract performance 

reporting from outsourced providers. 

For incorporation into shared 

workforce planning. 

Ongoing 

Service 

Groups 

Included in Group/ Team Service 

Plans 

Modernisation and 

remodelling 

Review of job remodelling projects 

underway in schools and NHS, 

April 

2006 

HIP People 

Management 

Team 

Report to the HIP People 

Management Team agreed 

actions 

Job remodelling system developed 

in the light of lessons learned above, 

June 

2006 

HIP People 

Management 

Team 

Approved by HIP People 

Management Team and 

implementation plan agreed 

Identify criteria for prioritisation of 

service areas for job remodelling. 

Sept 

2006 

HIP People 

Management 

Team 

Approved by HIP People 


Role out programme of remodelling. 

2006-8 

HIP People 

Management 

Team 

Programme delivered on time, 

achieving agreed efficiency and 

performance outcomes. 

As JDs and person specifications 

From 

HIP People 

Monitoring in place to ensure 



DRAFT 


are reviewed we will re-write them in 

terms of knowledge and skills 

required in line with remodelling. 

Sept 

2006 

Management 

Team 

XX% of jobs aligned with 

remodelling objectives 



DRAFT 


ATTRACT AND RETAIN 

HIGH CALIBRE STAFF 

Celebrating success internally and 

publicising it externally. 

Ongoing 

Personnel 

Service 

Continuation of staff recognition 

scheme and agreed programme 

of publicity and promotion 

Working in partnership 

Recruit the R&R officer and by the 

end of 2005/6 to have implemented 

the agreed action programme. This 

will include developing better 

relationships with colleagues and 

other sources of staff for skill 

shortage areas and raising the 

council’s profile as an employer and 

applying the R&R model we have 

developed to the skill shortage 

areas. 

Approved 

June 

2005 

Personnel 

Service 

Agreed work programme to be 

implemented 2005/6, delivering 

agreed outcomes, cash and noncash 

efficiencies 

Attractive staff care 

Developing a co-ordinated package 

from effective initiatives, which is 

publicised internally and as an 

attraction tool. 

Done 

Personnel 

Service 

Publicise Employee Benefits to 

staff and Job applications on 

websites. Monitor effectiveness 

with sample of employees and 

applicants. 

Review and roll out pilot recruitment 

and retention initiatives, which have 

proved effective. 

By June 

2006 

R&R 

Officer/Groups 

Implementation of agency 

worker conversion programme 

delivering agreed migrations 



DRAFT 


In light of demographic data 

developing initiatives to attract 

workforce groups ie young BME 

increasing older workers and 

registered disabled. 

Annually 

volumes and efficiency gains 

Quantitative targets to attract 

priority groups set, monitored, 

reviewed annually and delivered. 

Complete the home working pilot in 

Legal Services and roll out home 

working arrangement in the civic 

centre. 

By June 

2007 

HIP Programme 

Managers 

Increased numbers of home and 

mobile workers to target of c 

800-900 in civic centre. 

Progressing in partnership 

with our workplace 

Looking at models for workforce 

involvement in job remodelling and 

developing workforce involvement 

in planning. Including unions but 

giving a voice to our non-union 

workforce by direct involvement. 

Sept 

2006 

Personnel 

Service 

Targets for workforce 

involvement established at all 

levels. Employee report 

increased levels involvement via 

staff survey and sample surveys. 

Maximising potential 

In conjunction with job remodelling 

to begin identifying career pathways 

through the organisation based on 

knowledge and skill sets. 

From 

Sept 

2006 

Personnel 

Service 

Clear career pathways identified 

and publicised to staff and 

reported awareness amongst 

staff monitored annually. 

Revise Pada system to meet the 

demands of this plan. 

Mar 2007 

Personnel 

Service 

New PADA arrangement 

publicised, implemented and 

compliance monitored. 



DRAFT 


Attracting the best 

Researching models of career 

management operating in other 

industries and organisations. 

Sept 

2006 

Personnel 

Service 

Research completed and report 

agreed by HIP People 


Introducing a more systematic 

approach to career management 

and succession planning based on 

revised Pada system. 

From 

Mar 2007 

Personnel 

Service 

New arrangements published 

and implemented and evidence 

of improved career management 

reported via staff survey and 

other sample surveys 

Proactive Management of 

Temporary Staff 

Develop modern apprentice 

schemes. 

During 2005/6 we will seek to 

reduce the level of use of agency 

staff particularly in skill shortage 

areas by seeking to convert long 

term agency staff to direct 

employment. 

By April 

2006 

Mar 2006 

T&D section 

Groups and 

R&R Officer 

New arrangements in place and 

number of agreed modern 

apprenticeship’s recruited and 

complete modern apprenticeship 

with council. 

Reduced use in 2005/6 

compared to 2004/5, by XX% 

and £XX 

Monitor the implementation of the 

TMP response service during 

2005/6 to achieve a continued 

reduction in the time taken to recruit 

to vacancies. 

Quarterly 

Personnel 

Service 

Reducing time taken to recruit to 

vacancies by 3 days 



DRAFT 


Produce quarterly monitoring 

reports on exit feedback from 

2005/6 onwards. 

Quarterly 

Personnel 

Service 

Quarterly Reports produced and 

remedial actions implemented to 

reduce adverse feedback. 

Raising profile, improving 

our brand and promoting 

Hillingdon as an employer 

of choice 

Appoint a Head of Communications 

to be in post before mid 2005/6. 

To produce with Head of 

Communications on an internal 

communications strategy and 

ensure it is published by last quarter 

of 2005/6. 

Done 

Mar 2006 



Appointment May 2005 

Publication of internal 

communication strategy. 

Ongoing monitoring of improved 

effectiveness of workforce 

monitoring messages. 

Raise employee awareness of the 

achievements of the authority so 

staff are proud to work for 


Mar 2006 



Staff survey feedback evidences 

XX% increase in reported staff 

awareness. 

Raising the Hillingdon profile and 

brand as an employer of choice. 

Explore use of Apprenticeship 

Schemes, Bursaries and career 

conventions 

First 

Phase by 

June 

2006 

Recruitment & 

Retention 

Officer 

Mar 2006 Recruitment & 

Retention 

Officer 

Implementation of Recruitment & 

Retention work programme. 

Evidence of increased 

applications via sample survey of 

applicants. 

Determine council policy in these 

roles 



DRAFT 


Introduce work experience for 

young people 

Mar 2006 Recruitment & 

Retention 

Officer 

Partnership works with 

Connexions and careers service 

on council work. Separate 

programme. 



DRAFT 


CONTINUOUS LEARNING 

AND IMPROVEMENT 

Developing different ways of 

learning in the organisation. 

Mar 

2008 

T&D Team 

E-Induction rolled out across the 

organisation 

Mentoring and Coaching 

available for staff via the T&D 

Team. Monitor of take-up to 

ensure fair and equitable access 

to learning. 

Partnership interagency 

working 

Developing closer learning 

partnerships with other organisations 

across Hillingdon and the region. 

Mar 

2008 

T&D Team 

Management Development 

programme developed, delivered 

with neighbouring Boroughs and 

the PCT 

Developing co-ordinated links with 

education establishments to source 

potential staff and meet learning 

needs. 

June 

2006 

T&D Team 

Qualifications delivered by 

Borough educational partners 

(Uxbridge College). Targets for 

number of applicants and new 

starters from local education 

establish set, monitored and 

delivered. 



DRAFT 


Promoting and sharing best practice 

within the organisation, with partners 

and providers. 

June 

2006 

T&D Team 

DASH delivering parts of the 

equalities programme involving 

the DDA 

User involvement 

Linking learning with 

organisational priorities 

Research and develop models of 

service user involvement in 

recruitment and training. 

Reviewing our learning and skills 

strategy with input from across the 

organisation to ensure opportunities 

offered are targeted to deliver skills 

and qualifications required for job 

remodelling and career pathway 

developments. 

June 

2007 

Mar 

2006 

T&D Team 

T&D Team 

Report to HIP People 

Management Team. Priority 

areas for user involvement 

identified, targets set and 

delivered 

A defined Learning and Skills 

strategy in place. Targets 

established, resources allocated, 

monitors in place and evidence 

from surveys of staff /managers 

that correct skills/qualifications 

are being developed. 

Ensuring access to learning is linked 

to performance and skills 

development as identified through 

Pada, Career pathway and career 

Mar 

2006 

Personnel 

Service 

Process and applications for 

learning highlight the need to link 

to PADA Monitoring in place to 

ensure compliance and fair 



DRAFT 


management systems. 

access to learning. 

Ensuring managers actively 

participate in staff development by 

supervising and authorising 

development plans. 

Ongoing 

All People 

Managers 

Learning identification and 

planning process is feed via 

PADA. XX% of staff have 

development plans 

Developing a method of training and 

contracting service groups to provide 

a range of learning activities eg 

coaching learning. 

June 

2006 

HIP People 

Management 

Team 

A range of learning activities 

included in Personnel 

Development Plans. 

We need to ensure that the whole 

organisation achieves IIP 

recognition. 

Done 

Accreditation obtained annual 

plans to maintain accreditation, 

delivered in place 

Modernising learning and 

development 

Improve the development and 

promotional opportunities for our 

staff by better management of 

secondment and project 

arrangements. 

From 

Mar 

2006 

Personnel 

Service and 

People 

Managers 

Implementation and monitoring of 

revised arrangements for 

secondment 

Targets set for staff undertaking 

secondment opportunities 

internal and externally with 

partner organisations. Staff 

satisfaction with secondments 

reports in annual survey. 



DRAFT 


Review and improve our policies and 

guidance on secondments, coaching 

and mentoring. 

Mar 

2006 

T&D Section 

and Personnel 

Service 

Policy and guidance on 

secondments, coaching and 

mentoring defined. 

Delivering a training programme 

using a wide range of intelligent and 

flexible learning solutions in line with 

our core competency framework and 

organisational values. 

Ongoing T&D Section Annual Corporate Training 

Programme agreed with 

Management Board. Managers 

and staff evaluations report 

training is effective and supports 

councils competency/values 

framework. 

Define and develop an 

evaluation/assessment strategy. 

June 

2006 

T&D Section 

A corporate evaluation strategy in 

place outlining minimum 

standards for evaluation of all 

learning. Comprehensive 

evaluation report on all council 

learning reported to management 

board. 



PEOPLE MANAGEMENT PERFORMANCE INDICATORS SURVEY (1) 

APPENDIX B 

NAME: 

TELEPHONE: 

BOROUGH: 

E-MAIL: 

(Please refer to Notes for Guidance for additional information.) 

Section 1: Developing Leadership Capacity 

1.1 Percentage of senior managers appraised. ______% 

1.2 Percentage of staff that indicate senior management 

communicate borough's strategic aims and objectives effectively. 

______% 

1.3 Percentage of staff that indicate reasons for change are well communicated. ______% 

1.4 Percentage of staff that indicate change is well managed. ______% 

1.5 Number of managers on leadership/management development programmes. ______ 

1.6 Average gross training expenditure per Elected Member. £_____ 

Section 2: Developing the Skills and Capacity of the Workforce 

2.1 Average number of 'off the job' training days per employee. ______0.0 

2.2 Percentage of employees who have had a performance appraisal. ______% 

2.3 Does the performance appraisal produce an agreed development 

and training plan? Yes No 

2.4 Training spend as a percentage of staff budget. _______% 

Section 3: Developing the Organisation 

3.1 Employment Tribunals 

Total 

Won (including withdrawn) 

Lost 

Settled 

________ 

________ 

________ 

________ 

3.2 Is an employee survey conducted (at least) every two years? Yes No 

3.3 Percentage of employees indicating they are satisfied with their job. _______% 



3.4 Percentage of staff that would speak highly of the borough to others. _______% 

3.5 Number of reportable accidents per employee. _______ 

Section 4: Resourcing the Organisation 

4.1 Average time taken to recruit. _____days 

4.2 Percentage of the workforce the age groups listed: 

16 to 24 _______% 

25 to 39 _______% 

40 to 49 _______% 

50 and over _______% 

4.3 Voluntary leavers as a percentage of staff in post. _______% 

4.4 Average number of vacancies (excluding agency cover). _______% 

Average number of vacancies (including agency cover). 

_______% 

4.5 Percentage of staff leaving within the first a year of appointment. _______% 

4.6 Terminations 

Total 

Early retirements/ ill health retirement 

Redundancy 

Disciplinary/capability/unsatisfactory probation 

Sickness 

_______ 

_______ 

_______ 

_______ 

_______ 

Section 5: Pay and Rewards 

5.1 Single status review 

Completed and implemented (100%) 

More than 75% complete 

Between 50% to < 75% complete 

Between 25% to < 50% complete 

Less than 25% complete 

_______ 

_______ 

_______ 

_______ 

_______ 



5.2 Equal pay audit 

Completed 

Currently being conducted 

Planned and resources identified 

Still under consideration 

_______ 

________ 

_______ 

_______ 

Section 6: HR Function 

6.1 Average FTE personnel services staff per FTE employees. 1:_____ 

6.2 Average personnel services salary pay bill cost per FTE employee. £______ 

6.3 Percentage of employees covered by Investors In People. _______% 

6.4 How does the (1) HR strategy (2) workforce plan/strategy link to the borough's strategic 

plan: 

HR 

Workforce 

Fully ____ _______ 

Partially 

Not at all 

No current plan/strategy 

____ _______ 

____ _______ 

____ _______ 

Section 7: Audit Commission Best Value Performance Indicators 

7.1 Equality Standards - level achieved. (1 to 5) _______ 

7.2 Early retirements (excluding ill-health retirements) as a 

percentage of the workforce. 

_______% 

7.3 Ill health retirements as a percentage of the total workforce. _______% 

7.4 The proportion of working days/shifts lost to sickness absence. _______days 

7.5 Number of staff declaring that they meet the Disability Discrimination 

Act disability definition as a percentage of the total workforce. 

_______% 

7.6 Minority ethnic community staff as a percentage of the workforce _______% 

7.7 The percentage of top 5% of earners that are : 

Women 

From Black And Minority Ethnic Communities 

_______% 

_______% 



EQUALITY STANDARD FOR LOCAL GOVERNMENT – 

AN UPDATE 

ITEM 6 

Contact Officers Sonia Gandhi 01895 277019 


Appendix - attached 

SUMMARY 

This report informs the Cabinet of progress on moving through the levels of the 

Equality Standard for Local Government (EsfLG). The Equality Standard recognises 

the importance of fair and equal treatment in local government services and 

employment and has been developed as a tool to enable authorities to mainstream 

gender, race and disability into council policy and practice at all levels. 

The equality standard broadens the approach to equality and was introduced in 

2002. Hillingdon Council stated its commitment to the standard in March 03, and 

achieved level 1 in March 04. 

The standard is a recognised framework of self-assessment and audit procedures for 

equality across the Council and is supported by the Commission for Race Equality, 

Equal Opportunities Commission, Disability Rights Commission, the Employers 

Organisation, DIALOG, and the Local Government Association. 

Although the standard is a self-auditing tool, this can be subject to external audits 

and the requirement to present evidence when requested by the Audit Commission 

as well as any of the supporting bodies listed above. 


The Cabinet is asked to note : 

1. the level of the Equality Standard for Local Government the Council is 

currently at. 

2. the timetable the Council has set to achieve further levels. 

3. the current assessment of where we are at the moment. 

4. the action that is needed and how that action can be realised. 


The EsfLG is a self-auditing tool to ensure that we are delivering excellence in 

service provision, employment and community engagement to all our residents in 



Cabinet report – 10 th November 2005 Page 140

The Council reached level 1 of the ESfLG by March 04 and has set targets to reach 

level 2 by March 06 and levels 3/4 by March 08. It is anticipated that we will meet 

Level 2 without difficulty in March and in fact in some areas we are already working 

towards level 3. 

The EsfLG is an integral part of the Council Plan, and is also one of the national best 

value performance indicators. 


Cabinet may choose to instruct officers to take further action on the checklist or not. 


The Committee received a presentation from Sonia Gandhi on the report. The 

Committee commended the work of officers, especially in relation to Partnership 

Working and Civil Ceremonies and requested an update report to come to 

Committee at a later date 

INFORMATION 

1. The ESfLG has five levels. The Council has reached level 1, which 

demonstrates commitment to the Equalities agenda, will reach level 2 by March 

2006, and is targeted to reach level 3/4 by March 2008. 

2. Having reached Level One it will be useful for members to take note of what 

the Council have achieved and what is required for level 2. 

3. To reach level 2 an authority will need to demonstrate: 

Statement 

That it has engaged 

in an impact and 

needs/requirement 

assessment 


in consultation with 

designated 

community, staff and 

stakeholder groups 


in the development 

of information and 

monitoring systems 

Evidence 

All service areas and corporate services have 

completed a full equality impact needs assessment – 

on disability, age, race, gender, faith, sexual 

orientation and community cohesion 

The Council are the lead in the LSP, and have 

developed a community strategy with a theme group – 

Opportunities for all. This group has a responsibility to 

monitor key equality measures for across the Borough. 

Through this partnership the Council shares equality 

documents such as the Race Equality Scheme with 

stakeholders, staff and representative forums 

The Council has a diverse range of methods of 

engagement with detailed monitoring forms, e.g. the 

contact centre with reporting systems such as the 

CRM and documents such as Hillingdon Profiles. To 

ensure staff data is up to date the Council are 

undergoing a data cleansing exercise by June 06 




in an equality action 

planning process for 

employment, pay 

and service delivery 

That it is developing 

a system of selfassessment, 

scrutiny and audit. 

All of the equality assessments have given rise to 

detailed action plans for every service area. In 

addition, the Council annually commission an external 

specialist to devise a workforce monitoring report. This 

report provides recommendations and action for 

employment and pay. These recommendations form 

the basis of the workforce strategy 

The Corporate Equalities and Diversity Group receive 

monitoring reports from service area equality groups 

on how the services are performing against their 

equality action plans. 

There is also detailed monitoring of comments and 

complaints through the Contact Centre. 



4. There are no financial implications relating to this report 


5. As is stated in the body of the report, the Equality Standard is a self-auditing 

tool to ensure that the Council is delivering excellence in service provision, 

employment and community engagement to all Hillingdon residents. 

6. There is a variety of legislation which underpins the Council's equalities and 

diversity agenda. Cabinet will recall that at its October meeting, it considered a report 

on the Council's Corporate Equalities and Diversity Plan which set out a summary of 

this legislation. 

7. Achievement of the various levels of the Equality Standard will not only help 

the Council to demonstrate that it is securing fair and equal treatment in its services, 

employment practices and community engagement but it will also assist the Council 

in meeting its various statutory obligations and therefore minimise the risk of 

successful legal challenges being brought against it 


Nil 



APPENDIX A 

Equality Standard for Local Government – an Update 

1. Briefing on the Equality Standard for Local Government 

The Equality Standard recognises the importance of fair and equal 

treatment in local government services and employment and has been 

developed as a tool to enable authorities to mainstream gender, race and 

disability into council policy and practice at all levels. 

The equality standard broadens the remit of the “Racial Equality means 

Quality” and was introduced in 2002. Hillingdon Council stated their 

commitment to the standard in March 03, and achieved level 1 by June 04. 

The standard is a recognised framework of self-assessment and audit 

procedures for equality across the Council and is supported by the 

Commission for Race Equality, Equal Opportunities Commission, Disability 

Rights Commission, the Employers Organisation, DIALOG, and the Local 

Government Association. 

Although the standard is a self-auditing tool, this can be subject to external 

audits and the requirement to present evidence when requested by the 

Audit Commission as well as any of the supporting bodies listed above. 

The Equality Standard 

The Equality Standard is a framework that sets up a way of working within 

local authorities which will make mainstreaming equalities into service 

delivery and employment an issue for all aspects of the council’s work. 

Using five levels, authorities will introduce a comprehensive and 

systematic approach to dealing with equalities. These levels cover all 

aspects of policy-making, service delivery and employment. 

The Standard will: 

• Provide a systematic framework for the mainstreaming of equalities 

• Help local authorities to meet their obligations under the law 

• Integrate equalities policies and objectives with Best Value 

• Encourage the development of anti-discrimination practice appropriate 

to local circumstances. 

• Provide a basis for tackling forms of institutionalised discrimination. 

• Provide a framework for improving performance, over time. 



APPENDIX A 

Putting the Equality Standard in place 

The standard builds on the principles of: 

• Quality 

• Leadership 

• Community involvement. 

Local authorities will be able to assess their progress based on five levels: 

Level 1: Commitment to a Comprehensive Equality Policy 

Level 2: Assessment and Consultation 

Level 3: Setting equality objectives and targets 

Level 4: Information systems and monitoring against targets 

Level 5: Achieving and reviewing outcomes 

Extending equalities – beyond gender, disability and race 

The Standard provides a framework that can be easily extended to antidiscrimination 

policies for age, sexuality, class and religious beliefs. Local 

authorities can readily adapt the principles to these other categories of 

equality by extending their equality objectives, targets and monitoring 

systems. These additional equality objectives, which should be consistent 

with published guidelines on age and sexuality, would be driven through 

the self-assessment procedure and would effectively become part of the 

Best Value process. 

2. The Equality Standard for Local Government: Moving up the 

Levels. 

The ESfLG has five levels. The Council have reached level 1 and have a 

target to reach level 2 by March 2006, level 3 /4 by March 2008. 

Most London Councils have already reached level 3, with many 

approaching level 5. 

Having reached Level One it will be useful for members to take note of the 

next levels. 

The Equality Standard Level 1: Commitment to a Comprehensive Equality Policy 

An authority must have adopted a comprehensive equality policy that commits it to 

achieving equality in race, gender and disability through: 

Improving equality practice at both corporate and departmental level 

Earmarking specific resources for improving equality practice 



APPENDIX A 

Equality action planning and equality target setting within all departments and 

service areas. 

Systematic consultation 

A fair employment and equal pay policy 

An impact and needs/requirements assessment 

Progress monitoring 

Audit and scrutiny 

The Equality Standard Level 2: Assessment and Consultation 

An authority will need to demonstrate: 

That it has engaged in an impact and needs/requirements assessment 

That it has engaged in consultation with designated community, staff and 

stakeholder groups 

That it has engaged in the development of information and monitoring systems 

That it has engaged in an equality action planning process for employment, pay 

and service delivery 

That it is developing a system of self-assessment, scrutiny and audit 

The Equality Standard Level 3: Equality Objectives and Targets 


That it has completed a full and systematic consultation with designated 

community, staff and stakeholder groups 

That it has set equality objectives for employment, pay and service delivery 

based on impact/needs assessments and consultation 

That equality objectives have been translated into action plans with specific 

targets 

That it is developing information and monitoring systems that allow it to assess 

progress in achieving targets 



APPENDIX A 

That action on achieving targets has started 

The Equality Standard Level 4: Information Systems and Monitoring against 

Targets 


That it has developed information and monitoring systems that allow it to assess 

progress in achieving targets 

It is measuring progress against targets and effectively information and 

monitoring systems. 

Monitoring reports are being produced at specified intervals and circulated to 

designated consultation and scrutiny groups. 

Monitoring systems are providing useful information about progress towards 

specific targets 

The Equality Standard Level 5: Achieving and Reviewing Outcomes 


It has achieved progress towards the targets set at level 3 

It has reviewed and revised targets monitoring and consultation systems. 

It has initiated a new round of action planning and target setting 

Through its achievement it can be seen as an example of good practice for 

other local authorities and agencies. 

3. LEVEL 2 EQUALITY STANDARD – Where we are at the moment 

It puts together in one place both the action items under corporate 

commitment and service level action to avoid duplication. 

LEADERSHIP ACTION PROGRESS 

• Published in variety 

of formats 

• Co-ordinated with 

R E S (Race 

Equality Scheme) 

1.1 Publish corporate 

equality and 

diversity plan 

(CEDP) 

• Plan going to 

Cabinet for 

publication in 

Oct 05 

• RES on web – 

incorporates 

action plans 

from the CEDP 



APPENDIX A 

1.2 Equality impact and 

needs 

analyses 

1.3 Corporate 

mechanism for 

assessing service 

level equality 

targets 

1.4 Corporate structure 

for overseeing 

monitoring 

1.5 Procedures for 

dealing with 

harassment in 

employment and 

service provision 

• Responsibility 

clearly allocated 

• Work on 

assessments 

underway 

• Reports to 

corporate group 

(e.g. CEDG) on 

these 

• Department targets 

exist 

• How monitoring will 

be done (and coordinated 

with 

RES) 

• Services 

monitoring 

programme 

• Documented 

• Lists of nominated 

officers trained 

• Multi agency 

panels to counter 

harassment 

• Recommended 

definition of 

harassment and 

form to record it 

2.0 CONSULTATION 

2.1 CEDP Circulated • In variety of 

formats 

• Time table to 

publish final CEDP 

2.2 Review equality 

content of 

community strategy 

2.3 Consultation with 

community and staff 

• Review completed 

and the strategy 

corresponds with 

equality plans 

• Planned 

• Held 

• Reported on 

• Co-ordinated 

corporately 

• For staff too 

• Key managers 

informed of 

responsibilities 

• Assessments all 

done, action 

plans completed 

• All service areas 

have equality 

groups 

• Equality targets 

set for next 3 

years 

• Corporate 

Equalities and 

Diversity Group 

had timetable of 

monitoring in 

place to monitor 

service and 

corporate plans 

• Harassment 

procedures 

done – racial 

harassment 

being re- written 

• Racial 

harassment 

forum developed 

• Plan will be in 

several formats, 

and consulted 

through 

recommended 

strategy 

Content to be reviewed 

by Jan 06 

Consultation will follow 

recommended formats 

and will be completed 

by March 06 



APPENDIX A 

2.4 Consultation with 

members, 

employee, reps and 

departments 

2.5 Departmental 

consultations 

Monitoring of User 

Focus 

2.6 Equality self 

assessment, 

scrutiny and audit 

on service delivery 

2.7 Equality objectives 

included in 

partnerships 

3.0 CUSTOMER CARE 

AND SERVICE 

DELIVERY 

3.1, See above 

3,2 

• Members consulted 


• Employee reps 

consulted 


• Department 

consultation reports 

for each 

department e.g. 

ask each SMT to 

comment on CEDP 

• Reports on 

departmental 

consultations e.g. 

with Connecting 

Communities and 

other consultations 

e.g. on disability 

and with women 

(form of 

consultation so 

women can attend 

– timings, play 

areas, crèches etc) 

• Framework for 

guidance on user 

focus developed 

• Monitoring 

arrangements in 

place throughout all 

service and 

corporate areas 

• Self assessment 

plans by 

community and 

stakeholders and 

for each 

department 

• CEDP circulated to 

partners 

• Consultation 

meetings with 

partners 

• CEDP 

presented at 

management 

board 

• All equality 

groups aware of 

action plans and 

monitoring 

timetable 

• Connecting 

communities 

mapping 

underway 

• User focus 

guidance and 

framework 

developed and 

full response 

provided by Nov 

05 

• Monitoring 

arrangements in 

place by March 

06 

All areas completed 

self assessment plans 

CEDP to be circulated 

to Hillingdon Partners 

by Dec 05 



APPENDIX A 

3.3 Review 

procurement and 

contracted services 

3.4 See above 

4.0 Employment and 

equal pay 

4.1 Fair employment 

policy 

4.2 Employment and 

equality 

assessment of local 

labour market 

4.3 Workforce profiling 

in equal pay review 

4.4 Publicity for 

vacancies does not 

restrict range of 

applicants 

4.5 Standard range of 

recruitment forms 

• Evidence of review: 

evaluation of 

contracted services 

• Equal pay review 

started 

• Data sufficient to 

enable equal pay 

review, if not plans 

exist to ensure it 

can be collected 

• Planned 

• Started 

• Plan 

• Complete 

• Recruitment 

procedure 

reviewed 

• Reviewed 

• Exist 

and jobs 

4.6 Monitoring staff • Reports on 

monitoring and how 

complies with RES 

4.7 Employment 

procedures 

consistent 

with 

current legislation 

and codes of 

practice 

• Procedure 

reviewed 

• Are many 

consistent 

New procurement 

procedures in place 

that have taken on 

board comments from 

the CRE procurement 

guidance documents 

Equality employment 

action plan developed 

This will follow the 

employment action 

plan 

Workforce strategy and 

steering group in place 

This is under review 

Under review 

Employment 

monitoring reports 

done on annual basis 

These were assessed 

by an external 

consultant and internal 

legal services 

4. Conclusion 

The EsfLG is a self-auditing tool to ensure that we are delivering excellence in 

service provision, employment and community engagement to all our 

residents in Hillingdon. 

The Council reached level 1 of the ESfLG by March 04 and has set targets to 

reach level 2 by March 06 and levels 3/4 by March 08. It is anticipated that we 



APPENDIX A 

will meet Level 2 without difficulty in March and in fact in some areas we are 

already working towards level 3. 

The EsfLG is an integral part of the Council Plan groups, and is also one of 

the national best value performance indicators. 

Failure to meet level 2 will result in a lowering in score for the CPA, BVPi’s 

and also other national benchmarks. 



WEST LONDON TRAM CONSULTATION 

RESPONSE 

ITEM 7 

Contact Officer Janet Rangeley 01895 250553 


Appendices 1 and 2 - attached 

SUMMARY 

Transport for London (TfL) carried out a public consultation on the proposed West 

London Tram scheme between 29 th June and 8 th October 2004. The results of the 

public consultation were reported to the TfL Board on 25 th March 2005 and made 

available to London Borough of Hillingdon on 31 st March 2005. A report detailing the 

findings and the implications for Hillingdon was considered by Cabinet on the 14 th 

July 2005 and referred to full Council for consideration on 21 st July 2005. The full 

Council report was deferred for further information from Transport for London (TfL) 

on the feasibility of including a route along Coldharbour Lane to Hayes station in 

Phase 1 of the tram scheme. This report updates Members on the outcome of that 

further work and the most recent TfL consultation on details of the tram scheme, 

outlines the next stages in progressing the Tram proposals and proposes options for 

the future involvement of the Borough in the tram scheme. Officers are seeking 

Cabinet endorsement of the recommendations in the report including referring the 

report for consideration by full Council on 24 th November 2005, so that this Council’s 

position regarding the West London Tram proposals can be confirmed with TfL. 


1. That Cabinet refers the following options on the Council’s position on 

the West London Tram proposals for consideration by full Council on the 24 th 

November 2005:- 

Option 1: that officers are instructed (a) to draw up a ‘letter of no objection’ to 

Transport for London and (b) to continue to work with the TfL Tram team in 

progressing the scheme. 

Option 2: that Hillingdon Council formally objects to the West London Tram 

proposals on the grounds identified in paragraph 22 of this report and 

instructs officers to withdraw from any work related to progressing the Tram 

proposals. 

2. That the Council’s response on Transport for London’s current 

consultation on changes to the scheme in Hillingdon, as outlined in 

paragraphs 14 and 15 of this report, be the subject of a Cabinet Member for 

Planning and Transportation report. 




In light of 

• The second more detailed consultation by TfL on the West London Tram 

proposals and the responses, particularly in relation to Hillingdon, and 

• The recent response by TfL on the ‘Hayes/Phase 1’ option, 

officers consider it appropriate that:- 

a) Members revisit the Council’s current position of being a strong client in 

respect of the Tram proposals, and 

b) indicate to TfL whether or not they have an objection to the West London tram 

proposals. 

Recommendation 2 of this report relates to the most recent consultation on the tram 

scheme and officers consider that the most appropriate way of formally responding 

is with a Cabinet member report. 


Not to respond to the consultation report and updated information on the Tram 

scheme at this stage. 

INFORMATION 

1. The Cabinet, at its meeting of 28 th January 2003 considered a report on the 

West London Tram (WLT) from Shepherd’s Bush to Uxbridge. The Cabinet 

confirmed Hillingdon’s position as a “strong client” supporting Transport for London 

(TfL) in the development of the proposals. This position indicated support in 

principle for the tram proposals without being formally committed to it. This provided 

the Council with flexibility in its views on the details of the scheme and allowed for 

the possibility of objecting to the proposals should the details be unacceptable. 

2. The WLT route along the Uxbridge Road is currently served by bus routes 

427 into Uxbridge and 607, which the tram route would replace. The general 

principle of the scheme is to retain both trams and general traffic along the entire 

route, reallocating roadspace to allow these different modes to co-exist. In some 

sections, the tramway is in the centre of the road, but elsewhere is located on one 

side or the other of the Uxbridge Road. 

3. In May 2002, the Mayor announced that, of the various schemes being 

considered, he would give initial priority to the West London Transit, using trams, 

and the East London Transit, which would be based on a guided busway. It was 

intended that these schemes would go ahead first, with another two schemes going 

ahead later. In this way, resources could be concentrated on the two more preferred 

schemes. Over the last 2 years, TfL have been engaging Hillingdon officers in the 

development of the proposals through regular technical working groups and for a 

period of time held Steering groups with the three boroughs concerned and their 

respective Portfolio holders for Transport. The latest detailed design drawings were 

issued in May 2005 and Hillingdon officers continue to be consulted by the West 



London Tram team on the associated urban design guidance, draft planning 

conditions and draft supplementary guidance for eventual inclusion in Hillingdon’s 

Local Development Framework. The 2004 consultation material included a limited 

assessment on the environmental impacts of the proposal. These are based on the 

traffic reduction expected along the corridor of the tram. At this stage TfL are 

understood not to have assessed the environmental impact of increased traffic and 

congestion within the wider areas likely to be affected in Hillingdon, eg. the 

residential areas adjoining the Uxbridge Road. 

4. On the 17 th June 2005, TfL issued the results of a MORI poll on the West 

London Tram (WLT). The research examined the reactions of residents in six town 

centres to the WLT Scheme. Between 15 th April and 5 th May 2005, 1,815 telephone 

interviews were undertaken in Uxbridge, Southall, West Ealing/Hanwell, Ealing, 

Acton and Shepherd’s Bush. The poll results show that 48% of people in the project 

area support the WLT scheme compared to 37% against. Out of the six centres 

surveyed, support outweighs opposition in Uxbridge, Southall and Shepherd’s Bush, 

is split in West Ealing/Hanwell and Acton and in Ealing opposition outweighs 

support. The results also indicated that the WLT scheme is favoured by young 

people (under 25’s), people from ethnic minorities and socio-economic groups D and 

E. 

Results of the 2004 Public Consultation 

5. TfL carried out a second, more detailed public consultation on the WLT 

proposal from 29 th June to 8 th October 2004 , the results of which are summarised in 

part A, paragraphs 6-10 below. A separate five week consultation on the location of 

a depot site was undertaken in September / October 2004, the outcome of which is 

summarised in part B, paragraphs 11-12 of this report. 

A: The Tram Route and Associated Measures 

6. The consultation methods focused on questionnaires, meetings and road 

shows and TfL also carried out independent market research as part of the 

consultation to gain a better understanding of local views. The target audiences for 

the public consultation were statutory consultees and a wide range of stakeholders 

including residents, businesses and local organisations in Hillingdon, Ealing, 

Hammersmith and Fulham and in the other boroughs and districts identified as being 

in the catchment area for the tram or implications for displaced road traffic. 

Approximately 454,000 questionnaires were distributed, with the total number of 

respondents being 16,895 (3.84% return). A summary of the responses received is 

as follows:- 

• 16,895 completed questionnaires (of which 1,511 were identified as from 

Hillingdon) 

• 243 letters or e-mails 

• 54 responses from stakeholders 

• 8,930 visitors to road-shows 



• 1,100 feedback forms from the road-shows with 264 follow-up questions to 

answer 

• 1,384 calls to the free-phone helpline 

• 81 calls to the multi-lingual helpline 

• 17,000 visitors to the West London Tram Website 

• 15 responses in seven languages other than English 

Of the 16,895 completed questionnaires, only 26% of respondents indicated that 

they lived on the proposed route. 

7. A breakdown of the questionnaire responses which could be ‘traced’ to a 

specific borough is provided in Table 1 below. 

Table 1 

Borough 

Number of Responses 

Ealing 5,211 

Hammersmith & Fulham 1,566 

Hillingdon 1,511 

Hounslow 815 

Kensington & Chelsea 417 

Richmond 140 

South Buckinghamshire 71 

Harrow 59 

Westminster 51 

Brent 46 

Barnet 4 

Camden 4 

Other 68 

Did not give address 6,932 

Total 16,895 

8. The overall findings of the consultation are: 

i) 30% of the respondents support the proposals 

ii) 55% do not support the proposals 

iii) 48% said there would be no advantages from the proposed tram. 

iv) 47% said the main disadvantage is that it would divert more traffic onto 

residential streets. 

v) 26% said they would use the tram at least once per week. 

vi) 22% said they would use the tram less than once per month 

vii) 40% said they would never use the tram. 

viii) 54 formal responses from organisations, the key findings of which are 

summarised in Appendix 1 to this report. Only 13 organisations (25%) 

stated their support for the tram. 



Support was higher than opposition from respondents living in South 

Buckinghamshire, Kensington & Chelsea, Hillingdon and Brent. Opposition 

outweighed support in Hammersmith & Fulham, Hounslow and Ealing. 

Findings of the Independent Market Research 

9. In addition to the questionnaires, meetings and roadshows, TfL conducted 

market research the aim of which was to assess public opinion on the proposed tram 

based on interviews with a representative sample of people in West London. The 

interviews were conducted face-to-face in people’s homes and comprised a sample 

of 815 residents living within the distribution area for the consultation brochure and 

an additional 192 residents living within 800m of the proposed route. 

The overall findings from the market research are:- 

i) 65% felt there is a serious need to improve public transport and reduce 

congestion on the Uxbridge Road 

ii) 45% support the proposed tram 

iii) 13% would use the tram every day, 

iv) 33% would use it at least once a week. 

v) 27% said they would use it less than once per month. 

vi) 24% said they would never use the tram. 

vii) 40% felt that there will be reduced congestion with the tram 

viii) 

ix) 

90% thought there were advantages to the tram. 

86% thought there were disadvantages to the tram (27% of these 

respondents said the most important disadvantage would be more 

traffic in residential roads 

10. Comparatively, a higher number of persons in younger age groups supported 

the tram. Support for the tram was higher within groups using public transport 

compared to amongst motorists. The market research shows slightly higher potential 

usage of the tram than indicated by the consultation responses. 

B: Alternative Depot Sites 

11. The West London Transit scheme includes a depot for storing and 

maintaining trams not in service. The preferred depot location is on land in 

Hillingdon adjacent the Grand Union Canal, on the south side of the Uxbridge Road 

currently occupied by a retail warehouse. Two alternative depot locations have been 

proposed on land:- 

a) south of the Uxbridge Road between the Minet Country Park and 

Springfield Road, and 

b) between the Grand Union Canal and the Great Western mainline 

railway within the Southall Gas works redevelopment site in the 

London Borough of Ealing. 

12. A leaflet giving details of TfL’s preferred location for the depot and the two 

alternatives was distributed to approximately 1000 properties in Southall. A total of 

39 responses (59% negative and 41% positive or neutral) and a petition with 37 

signatures objecting to the preferred location were received. Only 9 of the 

respondents specifically favoured the location of the tram depot on the retail 



warehouse site, with 5 favouring location (a) above and 1 respondent favouring 

location (b) above. Overall the key concerns were of the impact of the proposals on 

the local area, residents and businesses. The Council’s response to the alternative 

depot locations was contained in the Cabinet Member report of October 2004 and 

supported in principle the depot location on the existing retail warehouse, but neither 

of the two alternative depot locations [(a) and (b) above] (see Appendix 2 to this 

report). 

Feasibility of Hayes/Coldharbour Lane included in Phase 1 of scheme. 

13. The report for consideration by full Council on 21 July 2005 was deferred to 

allow TfL to undertake a feasibility study for extending the tram route along 

Coldharbour Lane to Hayes station in Phase 1 of the scheme. During 

August/September, the WLT team prepared an option evaluation report and 

concluded that it is not possible to include the route to Hayes station in Phase 1 of 

the scheme as there is insufficient information available to be presented for the 

Transport and Works Order application next year and there is limited time to prepare 

such information. For inclusion in Phase 2 of the scheme (potential programme 

starting 2020), the WLT team made the following recommendations:- 

• that consultants be appointed to gather data, develop a feasibility design, 

update the modelling and produce an outline business case, which would 

need approval of TfL’s internal panels, finance committee and ultimately TfL’s 

Board; 

• that a joint proposal between TfL and the London Borough of Hillingdon 

should be developed to start this process; 

• that further work on alternative service patterns to optimise frequency and 

clarify off-peak demand and a sensitivity test to determine the business case 

in the absence of Crossrail be developed with officers. 

Consultation on changes to the scheme: 17 October – 16 December 2005 

14. Recently TfL issued a further consultation on the Tram scheme where it is 

proposing significant changes to the design proposed in 2004 or where it did not 

publish information in 2004. This include temporary construction compounds, 

electrical sub-stations, the depot test track and some changes to the track alignment. 

Details of the proposals have been sent by TfL to relevant ward councillors, the 

Cabinet member for Planning and Transportation and will be distributed to residents 

around the areas in the forthcoming weeks. 

15. In Hillingdon the consultation focuses on 

• the depot test track (adjacent to the preferred depot location off the Uxbridge 

road) which would run into the southern part of the Minet Country Park close 

to the Grand Union Canal; 

• 6 sub stations (Uxbridge, St Andrew’s roundabout Uxbridge, Coney Green 

Hillingdon Hill, Newport Road Hayes End, Coldharbour Lane adjoining 

Lombardy Retail Park and the Ossie Garvin roundabout; 



• 11 temporary construction compounds, 1 strategic (likely to last the whole 

construction period of possibly 4 years) at Springfield Road Hayes and 10 

local (likely to last possibly for a year or less). 

The closing date for comments is the 16 th December 2005 and officers are 

recommending that Hillingdon’s formal response is the subject of a Cabinet Member 

for Planning and Transportation report. 

TfL’s next stages for progressing the WLT Scheme 

16. Given the need to undertake further traffic modelling for those areas which are 

expected to experience the impact of displaced traffic, particularly through residential 

areas, (see paragraph 17 below) TfL have deferred the submission of an application 

to the Government under the Transport and Works Act (TWA) to late spring/early 

summer 2006 (originally it was scheduled for December 2005). 

17. For any form of railway scheme to proceed, an Order is required under the 

Transport and Works Act (TWA) 1992. This type of Order gives powers for 

constructing and operating the tram, including any land acquisition required. TFL 

has to seek powers from the Government under the TWA to progress the proposals 

to construction. The process for obtaining a TWA includes the requirement to hold a 

Public Inquiry. The TWA Order also covers any associated highways powers and 

any complementary measures needed to implement the scheme. Such measures 

will more than likely be needed in the predominantly residential areas to the north 

and south of the Uxbridge Road in order to discourage general traffic from seeking 

unsuitable alternative routes through these areas. It is therefore regrettable that the 

further traffic modelling work referred to above will not include any area in Hillingdon, 

but will focus on Ealing and the Royal Borough of Kensington and Chelsea. 

Discussions between Hillingdon officers and the WLT team have not resulted in the 

further traffic modelling work being extended to include Hillingdon. 

18. A Public Inquiry overseen by an independent inspector is likely to be towards 

the end of 2006. The inspector at the Public Inquiry will consider the proposals, and 

representations from organisations against the proposal. Based on the Inspector’s 

recommendations, the Secretary of State for Transport will decide whether to grant 

the powers to TfL to enable it to proceed with the WLT proposals. 

19. As a requirement of the TWA application, Hillingdon (and the other local 

authorities through which the tram would run – Ealing and Hammersmith and 

Fulham) needs to inform TfL as to whether it supports the scheme or opposes it. If 

the Council decides to support the WLT proposals, TfL would require the Council to 

submit a “Letter of No Objection”. In such circumstances, the Council would not need 

to be represented at the Public Inquiry and the majority of costs involved would be 

during and after the implementation stages. (At this stage officers are not in a 

position to advise Members of the likely costs involved for this scenario, but they are 

likely to be significant). Should the Council decide to oppose the WLT proposals, 

representations will need to be made to the Public Inquiry. In the latter 

circumstances, there would also be significant costs incurred due to need to 

commission technical and legal advice and support as there is currently limited 

capacity within the in-house expertise to take on the volume of work envisaged. 



However, if other Boroughs object to the proposals there is likely to be an 

opportunity for joint working and associated cost efficiencies. Should the Council 

decide to pursue an objection to the scheme, then officers would bring a further 

report on the likely costs involved to Cabinet for consideration. For the time being, 

the costs of officers’ time and input are contained within the existing Planning and 

Transportation Group budget, although as the tram scheme progresses it is likely 

that the costs will increase considerably as more of the details of the scheme 

emerge. 

20. For members information, the current situation with other Boroughs which are 

affected by the WLT proposals is as follows: 

• London Borough of Hammersmith and Fulham: To date the Borough has 

been neither a joint promoter nor strong client. However officers have been 

informed that the borough is likely to object in light of the recent proposals for 

a strategic construction compound at Shepherd’s Bush Green.. 

• London Borough of Ealing: a decision was made at a recent cabinet meeting 

to confirm Ealing’s role of a joint promoter of the Tram scheme with TfL. 

• Royal Borough of Kensington and Chelsea: although the proposed tram 

system will not be located in the Royal Borough of Kensington and Chelsea, 

the Royal Borough has formally objected to any proposal to progress the 

West London tram project mainly for the following reasons – poor value for 

money, the major negative impacts on the roads in the Borough, the poor 

quality of the traffic modelling and the lack of detailed information provided by 

TfL on the impact of the proposals on the Borough. 

21. The timetable for the WLT scheme has slipped since the original was 

published as shown in Table 2 below. 

Table 2. 

ORIGINAL STAGE REVISED 

Autumn/Winter 2004 Report on consultation February 2005 

Winter 2004 Mayoral decision Autumn 2005 

Spring 2005 

Transport and Works Summer 2006 

Order deposit followed by 

42 days objection period 

Autumn 2005 Public Inquiry Early spring 2007 

Summer 2006 

Secretary of State Early 2008 

decision 

Spring/Summer 2007 Construction starts/TWO Spring 2009 

awarded 

Early 2011 First tram/scheme opens 2013 

Implications for Hillingdon and its future role 

22. Officers are mindful of the fact that the results of the second consultation on 

the WLT proposals are useful indicators of the support/non support for the scheme. 

They also acknowledge the feasibility work on Hayes and Phase 1. However, they 



still have considerable reservations in respect of the fact that the main areas of 

concern for Hillingdon remain unresolved. These concerns have been continually 

raised by officers over the last 2-3 years and are as follows:- 

(i) Hayes Hub / Town Centre option. Hillingdon has frequently requested that 

the option to take the tram to Hayes town centre via Coldharbour Lane be 

considered in Phase 1 of the scheme. The public consultation document 

did not refer to this option. Hillingdon still considers this to be the most 

appropriate route for Phase 1, as it would:- 

• consolidate local and strategic proposals to make Hayes Station a subregional 

transport hub, 

• ensure that the Hayes interchange is part of a truly integrated transport 

system, 

• recognise the necessary economic and transport linkages with Heathrow and 

this part of West London, 

• meet many objectives of the Mayor’s London Plan(2004) and Transport 

Strategy (2001), particularly those related to the designated Areas of 

Opportunity in the Hayes/Heathrow part of the Borough; 

(ii) 

(iii) 

(iv) 

(v) 

the route to Uxbridge being considered ahead of any proposed route to 

Hayes Town Centre; 

Uxbridge terminus. The route options into Uxbridge town centre are of 

major concern, especially if the route is to run through and terminate in the 

pedestrianised area outside the Underground Station. This would have 

significant impact on both the established pedestrian area along the High 

Street and also the proposed environmental enhancements to Windsor 

Street, currently being programmed for implementation over the next year. 

Any alternative proposals to locate the terminus outside/in the proximity of 

the Civic Centre will not provide Uxbridge with a high quality, ‘seamless’ 

transport interchange (based on the tube and bus stations) which is 

considered essential to strengthening the public transport network in the 

borough as well as being essential to the future development of Uxbridge; 

the proposals within Hillingdon will result in the reduction of 50% in the 

carriageway capacity for other modes of transport and the impact on 

adjoining roads of traffic dispersal resulting from this significant reduction. 

As the further traffic modelling work being undertaken excludes Hillingdon, 

the impact of traffic dispersal and any mitigating measures will not be fully 

identified. 

insufficient information provided on the traffic modelling undertaken at key 

junctions along the Uxbridge Road in Hillingdon, resulting in considerable 

difficulties in assessing the level of impact of the tram displacing traffic into 

the adjoining residential areas and the associated traffic measures 

required to accommodate this displaced traffic. The effects of the tram will 

have a major impact on Hillingdon’s ability to carry out its functions under 

the Traffic Management Act. In addition, there is very little baseline data 



on which the borough can assess the financial implications of any traffic 

measures and subsequently identify funding to implement appropriate 

schemes if necessary; Officers cannot emphasise strongly enough how 

regrettable it is that the further traffic modelling work referred to in 

paragraph 17 above will not include any area in Hillingdon, but will focus 

on Ealing and the Royal Borough of Kensington and Chelsea. 

(vi) 

(vii) 

(viii) 

(ix) 

The consultation documents of summer 2004 contained scant detailed 

information on the section of the route in Hillingdon. None of the junctions 

along the Uxbridge Road in Hillingdon featured in the Consultation 

Document; 

No references were made to the impact of the proposals on Conservation 

Areas and the numbers of trees along the route that may be affected; 

Not all the information needed to determine the full impact of the 

scheme on the residents and businesses in the Borough is available; 

The extremely low level response to the public consultation ( 3.8%) and 

the low percentage of the respondents in favour of the proposals. 

23. Further discussions with TfL have not resulted in the above concerns 

being fully addressed, and officers are of the strong view that it would not be in 

Hillingdon’s best interests to maintain its position of a ‘strong client’. Further 

information relating to the feasibility of the Hayes/Phase 1 proposal has indicated 

that this is not possible and the borough’s preferred route for Phase 1 cannot be 

accepted. As such Members are requested to consider the option of objecting to the 

WLT scheme and in association with this, it is suggested that officers be instructed 

to withdraw from any development work on the WLT proposals. Should Members 

wish to consider the option of not objecting to the WLT proposals then officers would 

need to be instructed to draw up a ‘letter of no objection’ to Transport for London. 

Associated with this decision would be the need to confirm that Hillingdon officers 

can continue with the development work on the WLT proposals. Full Council 

authorisation would be required whichever option is chosen. 


24. Hillingdon officers have continued to assist TfL in the development of the 

proposals, these costs have been contained within existing budgets and this will 

continue if it is agreed to support the proposal. 

25. If it is agreed to oppose the proposal at a Public Inquiry there will be 

significant costs incurred on staff time and legal costs. It is too early to fully quantify 

what these might be, but it is likely that there will be insufficient provision available 

within existing budgets, and there may be a need to seek additional budget approval 

to meet the costs. 

26. The costs of this major scheme will be substantial. TfL will fund the scheme 

as part of the London Mayor Capital Programme, and funding allocations will 



normally be made to participating boroughs as and when particular sections of the 

work progress. The details of the capital funding will need to be examined when 

more details are available. However the Mayor of London’s Business Plan does not 

include funding for the implementation of the scheme. It is expected that during the 

next Central Government Spending Review a bid for funding will be made. 



27. As noted in paragraph 25 above, if the option to formally object to the West 

London Tram proposals is pursued, additional, unquantified, revenue costs will be 

incurred, most likely in 2006/07 and 2007/08 based on the timetable in Table 2 

above. It is noted from paragraph 19 above that Cabinet would receive a further 

report determining the level and timing of these costs. Along with the cost of this 

additional work, the funding for it has yet to be established, although in the absence 

of any countervailing savings it should be assumed to be an additional burden on the 

Council Tax requirement in the first instance. 


28. As indicated in the body of the report this scheme is being implemented under 

the process of a Transport Works Act Order. This is a system which was devised to 

deal with major infrastructure projects. 

29. In summary an Order can be made under the provisions of the Transport 

Works Act 1992. The effect of such an Order is to authorise the construction or 

operation of the works in question and to grant powers of compulsory purchase. An 

Order does not replace the need for planning permission but it should be noted that 

as part of the submission for the Order a request for deemed planning permission 

can be made. Given that the tram link will pass through 3 boroughs it is highly likely 

that such a request will be included in this case. It operates in a similar fashion to 

what are called Permitted Development rights, these are the rights people rely on to 

construct certain sizes of extensions to existing properties. 

30. The Council can elect to either support the project or to oppose it. If it elects 

to support the project it will have to provide a letter indicating that it supports it. This 

will avoid the need for the Council to attend the public inquiry which will be required 

as part of the process for obtaining the Order. In the event that Members resolve to 

oppose the scheme the Council will need to attend at the public inquiry to put 

forward its objections to the scheme. Any objections will have to be based on 

relevant grounds such as impact on traffic or environmental matters. The Council will 

have to instruct a barrister to represent it at such an inquiry and may also have to 

instruct external experts to appear as witnesses if there are no staff who can deal 

with this matter. It is not possible at the present time to provide any indication as to 

the costs the Council would incur in attending such an inquiry. 

It should be noted that which ever course of action the Council decide to adopt it will 

be necessary to pass a resolution at a full Council meeting making that decision. 



Under the rules governing decision making by local authorities the function of 

deciding this matter is one reserved to the full Council. 


L.B.Hillingdon Report to Transportation Sub Committee – 8 th June 2000 

L.B.Hillingdon Cabinet Report– 28 th January 2003 

L.B.Hillingdon Cabinet member report October 2004 

Royal Borough of Kensington and Chelsea: West London Tram report 28 th January 

2005 

Transport for London: ‘West London Tram – Hayes Town Centre Option Evaluation’ 

9th September 2005 

Transport for London: ‘ West London Tram: Consultation on changes to the scheme 

in Hillingdon’ - 17 October 2005 

Transport for London: West London Tram: Public Consultation 2004 – Full Report 

1. Public Consultation and Market Research Results 

2. Public Consultation results – Summary Brochure 

3. Public Consultation 2004 – Full Report 

4. Appendix A – Consultation materials and methodology information 

5.Appendix B, Stakeholder Responses 

6. West London Tram – MORI Poll results. June 2005 



APPENDIX 1 - SUMMARY OF KEY STAKEHOLDER RESPONSES 

STAKEHOLDER SUPPORT TRAM 

DO NOT SUPPORT 

TRAM 

COMMENTS / KEY ISSUES 

Acton Alliance 

* 

"Consultation a waste of time" 

"Conditionally supportive" 

"Transport for London needs to include provision for 

businesses and private vehicle use along the whole 

length of the Uxbridge Road" 

"Realistically we all know that a large proportion of 

commuters will continue to use private vehicles as the 

main preferred mode, no matter what else is on offer…." 

"Ken Livingstone has decided to have the tram regardless 

of the impact on residents 

"We are unable to support TfL's current proposal for the 

Acton Green Residents 

implementation of the WLT project…." 

Association * "A majority of 95% of the Acton Green Residents voted 

against the project" 

B & Q 

* 

Bedford Park Society 

* 

"Our principle objection is the allocation of land identified 

for the tram depot" 

"objection of the preferred location of the depot" 

"This to be a flawed scheme to which we are 

unequivocally opposed 





TRAM 


"Scheme, as it now stands will have a detrimental effect in 

Acton" 

Bromyard Avenue Residents 

Association * 

"The congestion, pollution, noise and increased danger to 

pedestrians, cyclists and drivers would be unacceptable" 

Capital Shopping Centre 

(Chimes, Uxbridge) * 

Capital Transport Campaign 

* 

"CSC supports the proposed location of the terminus 

adjacent to the Uxbridge Underground Station" 

"The reduction in stops will impose significant access 

problems for those of limited mobility…." 

CBI London 

"We are unable to comment on this project in isolation…" 

"Rather than view and assess transport projects for 

London individually and in isolation, we need a holistic 

approach" 

Central Ealing Residents 

Association * 

"it is therefore questionable to what extent a tram would 

enable drivers to switch from their cars" 

"the paragraphs that compare the capacity of trams and 

buses are misleading" 

"the tram stops are a matter of particular concern" 

"the impacts on traffic circulation along both the Uxbridge 

Road itself and on the adjoining network are not spelt out" 





TRAM 


Churchfield Community 

Association * 

"The CCA would oppose any tram proposal which 

involves the diversion of traffic on local residential streets 

including Churchfield Road" 

Cllr. Harvey Rose 

* 

"I am not in favour of sending main stream traffic down 

side streets" 

Ealing Cycling Campaign 

Ealing Friends of the Earth 

* 

Cyclists generally concerned about the physical 

environment. 

"We feel strongly that the cycle lane should retain the 

main roads priority" 

"sees it as a real opportunity to deliver both a substantial 

improvement in public transport" 

Ealing Hospital 48% of the staff "thought the tram is a good idea" 

"The A4020 corridor is already overloaded…" 

Ealing Passenger Transport 

Users Group * 

"Road pricing or congestion charging which will be 

commonplace by the time the tram becomes operational, 

will control any foreseeable increase in road usage and at 

a much lower cost" 





TRAM 


Ealing Village Residents 

Association * 

"Taking the tram in its present form with TfL's published 

preferences in the Consultation Document will be 

extremely detrimental to the Borough and the 

businesses…." 

East Acton Residents 

Association * 

Electric Tbus Group 

* 

"sadly, as the planning process has evolved, we have 

been dismayed to find that our views appear to have been 

totally ignored…" 

"…West London Transit scheme is necessary to relieve 

future congestion levels…." 

GLA Conservative Group 

* 

"We believe the project to be a highly costly scheme 

which cannot justify the high level of expenditure required 

for the building in terms of ridership it is likely to attract" 

"we also question the validity of the tram running as far as 

Uxbridge. The route will eat into the pedestrian precinct in 

the Town Centre" 

GLA Green Group 

* 

"we believe that the West London Tram should go 

ahead…." 

"we need a TfL/Mayoral guarantee that this area of West 

London will have more money for traffic reduction if the 

tram goes ahead." 





TRAM 


"Labour Assembly Members strongly support the 

proposals for the tram" 

GLA Labour Group 

* 

"we note the fears about displaced traffic congestion are 

considerable and would suggest that TfL commissions 

research into outcomes elsewhere" 

Notwithstanding our strong support for the principle of the 

tram, we would welcome an independent appraisal of the 

benefit cost assessment of the proposal, particularly in the 

light of the recent National Audit Office into light rail and 

tram schemes elsewhere" 

On the basis of the very detailed information give to the 

Liberal Democrat Assembly members and research team 

by Transport for London's Project Team, they cannot at 

this stage support the continuation of the West London 

Transit project proposed by the Mayor for London" 

GLA Liberal Democrat Group 

* 

"Liberal Democrats do not believe that at a currently 

estimated cost of £650 million, building a tramway along 

the Uxbridge Road from Shepherds Bush to Uxbridge will 

be good value for money for Londoners. They note that 

the original estimate given for the project was around 

£425 million" 

"Liberal Democrats do not accept that Transport for 

London necessarily know better than local communities 

what is in their best interests" 





TRAM 


GLA Transport Committee 

"If the scale of TfL's projections is accurate, it would seem 

sensible / essential to enhance / support public transport 

in the area to ensure a sustainable growth in population 

and employment" 

"The Committee has concerns on the following five points: 

- The credibility of TfL's passenger projections 

- The viability of parts of the proposed routes 

- -The financial burden of debt repayments 

- Assumptions underlying the business case 

- Management of project risk 

The committee would welcome an independent analysis 

of these points prior to TfL's application for a Transport 

and Works Act in Spring 2005" 

GLA UKIP Group 

* 

"Traffic modelling shows considerable increases in traffic 

in surrounding roads" 

"We feel that a solutions-led approach to the Uxbridge 

Road has been taken by TfL rather than a problems-led 

approach" 

Goldsmiths Residents 

Association * 

"I find the whole consultation process a total waste of my 

time…." 





TRAM 


Gordon Road and 

Surrounding Streets 

Residents Association 

(GRASS) 

"Our principle concerns are the unacceptable 

consequences of congestion, pollution, noise and 

safety…." 

* "…in the absence of information about the environmental 

impact or business case, and without detailed traffic 

modelling and details of the assumption on which 

passenger predictions are based, we cannot comment on 

these important matters" 

Grange Grove Residents 

Association * 

"….we stressed that traffic management must be an 

integral part of the consultation" 

"The number of electric wheelchairs being used in Central 

Croyden has increased since the trams have began 

running, two wheelchair positions are provided in each 

Greater London Action on 

tram" 

Disability (GLAD) * "The tram will not stop people using their cars, but will 

cause congestion on residential side streets, surrounding 

the proposed route" 



STAKEHOLDER 

SUPPORT TRAM 


TRAM 


Greenside Residents Action 

Group * 

"….we do not consider the tram as a practical or 

acceptable solution to the residents or local traders" 

"The questions in consultation forms are considered 

loaded to lead to responses that fit with the pre-set plan to 

introduce the tram" 

"Local residents consider the current level of predicted 

costs for a 20 km stretch of road as disproportionate to 

any possible benefits (£650 million capital costs, £48 

million annual operating costs" 

Hammersmith and Fulham 

Historic Buildings Group * 

"….the tram would be detrimental to the visual amenity of 

the historic buildings and townscape of Uxbridge Road, 

Shepherds Bush and Hammersmith 

Hammersmith Society 

* 

"We also hope that this consultation exercise is a genuine 

one and not purely cosmetic. The Mayor's decision to 

press ahead with the extension of the congestion zone in 

spite of an overwhelming negative response does not 

offer a great deal of encouragement in this respect" 

"Your scheme seems to us to be a massively overcomplicated 

solution to the problem" 

hfcyclists 

* 

"The work so far is flawed in not looking at the modelling 

for the evening peak or the area to the east of Sheperds 

Bush Green" 





TRAM 


Kingsdown Residents 

Association * 

"From the start the majority of members questioned the 

suitability of the Uxbridge Road as a light railway route. It 

is a busy road that has 27,000 vehicles travelling daily. 

The road is needed for this traffic. Residents do not want 

it displaced to their roads. It is not like Croydon where 

two thirds of the route use existing railway track" 

London Borough of Brent 

"The use of modern trams, which are emission-free at 

point of use and offer attractive and reliable alternative to 

private cars, is in principle a sound concept which will 

deliver a high quality public transport service. However 

the cost of building and operating a tram system needs to 

be compared in relation to cast and quality issues 

associated with other models such as bus, guided bus, 

trolley bus etc" 





TRAM 


"The council is currently considering whether it should join 

with TfL in promoting the Transport and Works Order to 

seek powers to construct and operate the scheme. 

Should the Council pass the necessary resolutions, the 

working framework and respective roles and 

responsibilities would be defined in a joint Promotion 

Agreement" 

London Borough of Ealing 

* "In summary, the Council's support for the scheme has 

remained constant since inception. While it addresses the 

existing problems of traffic congestion and public transport 

quality and capacity on the Uxbridge Road Corridor, and 

the environmental issues that these problems have 

created, the Council also sees it as a critical enabler for its 

strategies to improve the quality of life and economic 

prosperity in the Borough" 

London Borough of 

Hamersmith and Fulham 

"This is a very serious issue, but Uxbridge Road should 

not be considered in isolation. Other main roads suffer 

from congestion as least as bad as that in the Uxbridge 

Road and there are several areas where public transport 

is worse. It is important to recognise that the tramway 

would not just serve Uxbridge Road but the whole area 

between the District and Piccadilly lines and the Central 

Line" 

"The Council has made it clear on a number of occasions 

that we support the scheme in principle, but there are 

several detailed issues which need to be resolved before 

we could support it unreservedly" 





TRAM 


London Borough of Harrow 

"the Council has general concerns with regards to the 

limitations of the proposal, the impact on existing traffic 

and the impact on other modes of public transport, 

particularly in Harrow" 

"The lack of high capacity, fast and reliable orbital public 

transport service in West London is recognised by 

Transport for London and Wes London boroughs. The 

current proposal for the West London Tram does not 

address this problem. The Council therefore strongly 

requests that a high quality orbital transport system is 

considered for West London. An orbital extension of the 

Tram may be the solution and part of the bus route 140 

corridor would be well suited for this purpose" 

"Harrow is also concerned about the disruption to general 

traffic and the level of diverting traffic during construction 

works on the tram. These may effect Harrow and hence 

we would advise that all works are well publicised and 

programmed in with consideration to minimise the 

disruption to existing roads users" 





TRAM 


"It is regrettable that the consultation document contains 

scant detailed information on the section on the route in 

Hillingdon. In order for any consultee to be able to make 

an informed response, this information should have been 

a pre-requisite" 



"In Hillingdon, the introduction of a dedicated tram route 

would result in substantial reduction in Highway capacity. 

It is evident from the proposals that 50% of present 

carriageway capacity would be lost over considerable 

sections of the route within the borough. A corresponding 

result in traffic reduction could not be expected, hence 

traffic displacement on adjoining residential roads would 

be a major issue. The consultation document provides no 

information on how this issue is being addressed. Any 

displacement of traffic onto inappropriate roads is not 

considered acceptable in Hillingdon" 

"There are also serious concerns about the route through 

the pedestrianised area of the High Street, terminating in 

front of Uxbridge Underground Station. The potential 

conflict with pedestrians in one of the busiest parts of 

Uxbridge town centre , has not been addressed" 

"As regards the transport input, Southall Depot site only 

has merit if the route to Hayes via Coldharbour Lane, is 

progressed and adopted in the base scheme. Running of 

non-passenger-carrying services along Hayes By-pass 

(A312) is not an attractive proposition" 





TRAM 



Hounslow 

2Hounslow supports the concept of a tram along the 

Uxbridge Road. The Council accepts the need to provide 

a more attractive mode of public transport along this major 

public transport corridor. Based on the material presented 

by the West London Tram project team, the Council 

believes that the trams, as a mode, provide the best 

potential for promoting modal shift, encouraging 

regeneration and maximising accessibility in the face of 

rising levels of population, car ownership and traffic 

congestion" 

"The Council, cannot therefore, give its unqualified 

support to any proposal that significantly increases the 

level of traffic congestion or reduces the quality of the 

environment in the borough. We Urge Transport for 

London to reconsider the proposed road closures and 

employ alternative measures to maximise the priority and 

effectiveness of the proposed tram service" 




London Chamber of 

Commerce 


TRAM 


"it is important to note that there is a limited amount of 

funding available to spend in a city with many different 

transport requirements. As such, the Chamber believes 

that any proposed scheme must offer both good value for 

money and bring real and measurable benefits to both the 

business and wider community. The LCCI remains 

unconvinced that the West London Tram will be able to 

achieve these objectives. We question the suitability of 

this route for a tram scheme, the impact that it will have 

on local business and whether the scheme really can 

provide value for money" 

"The proposed route of the tram runs along the A4020 

between Uxbridge and Sheperd's Bush, a key transport 

corridor, and there are a large number of businesses sited 

along both sides of the road. The London Chamber is 

extremely concerned that, so far, there has not been a 

study of the impact that the scheme will have on the local 

economy" 

London First 

* 

In view of the proposed route and the funding priorities 

suggested in the London Business Board letter to Alistair 

Darling on 5th April 04, and the subsequent outcome of 

the spending review, London First is unable to support the 

significant investment required for the West London Tram 

project at the present time and as proposed" 




London Forum of Amenity 

and Civic Societies 


TRAM 


"Further to the comments above on the proposed tram 

scheme, the opinion of this organisation is that the tram is 

not an effective and justifiable solution to the transport 

requirements in that corridor and should be abandoned or 

drastically amended" 

London Transport Users 

Committee * 

"LTUC supports the proposal for the introduction of the 

West London Tram as part of a modern integrated 

transport system for West London. The project was 

thought to be the most effective and efficient means of 

meeting the demands of transport along the Shepherds 

Bush - Uxbridge Corridor. The committee also accept that 

the tram would encourage people to switch from their cars 

to public transport - a laudable aim that would bring 

benefits to the environment and to air quality." 

Norland Conservation 

Society * 

"Trams are often perceived as beneficial to the 

environment, but these benefits are dependant on clever 

planning to anticipate potential problems and plan around 

them. From your web site and the leaflets available 

describing plans for the tram, it appears that your 

intention is to introduce the tram regardless of the 

consequences. You do not seem to have thought of any 

solutions to these problems" 





TRAM 


Park Community Group 

* 

"The disbelief in the business case for the tram which is 

based on projected passenger numbers which we do not 

believe will materialise. Moreover, existing tram schemes 

have almost failed to reach forecast passenger numbers" 

RAC Foundation 

* 

Royal Borough of Kensington 

& Chelsea * 

"In our view, however, a fixed tram system is not the best 

solution. It would be expensive and inflexible and would 

reduce available road capacity, already under pressure. 

In UK experience, trams generally have not had great 

success in attracting new users and have not proved 

financial viable, as the recent NAO report has 

demonstrated" 

"The project is very expensive in capital terms and the 

estimated benefit cost ratio is only 1.5:1. There is clearly 

a substantial risk that the ratio could fall below 1, making 

the project economically unviable, if actual costs or 

benefits differ from the estimates by a relatively small 

margin" 

"The Council's formal response therefore is to object to 

any proposal to progress the West London Tram Project" 




Royal Society for the 

Protection of Birds * 


TRAM 


"This development may have impacts on the environment 

due to damage to habits and disturbance. We have noted 

that there is a potential for this scheme to result in the loss 

of trees along the route. These issues should be fully 

addressed in the Environmental Impact Assessment. As 

a minimum, works should be timed so as not to affect 

nesting birds. The RSPB would also wish to see any 

felled trees replaced with native broad-leaf species" 

Save Ealing's Streets 

* 

"The proposals for the tram and traffic to share the same 

roadspace at a number of pinchpoints will inevitably 

cause traffic to back up and encourage displacement on 

to surrounding streets. The flow of traffic entering these 

shared sections is to be restricted and, since the traffic will 

have to wait behind the tram when it stops in these 

sections, impatient drivers will be bound to seek 

alternative routes. Although we are not all convinced 

about them, the findings of the traffic modelling confirm 

these fears. Moreover, some of the accompanying 

restrictions to traffic turning right at junctions along the 

route would compound the problem; for example, the 

restriction on eastbound Uxbridge Road traffic turning 

right into Springfield Road will result in more traffic in the 

residential streets behind the Town Hall" 





TRAM 


Save Ealing's Streets cont. 

"We note that this section picks out just eight sections of 

the route for more detailed information, but while these 

feature what may be some of the trickier problems for the 

engineers, many sections carry implications that should 

be highlighted. For instance, most of the route through 

Hillingdon will mean reducing the width of the existing two 

and three-lane route to single lane traffic. Considering the 

problems that arose recently over a similar reduction of 

the highway through the installation of a bus lane along 

the A312, the consultation should have drawn more 

attention to it" 

Shaa Road Residents 

Association * 

"The tram would be expensive to maintain and under 

used, concern for ever higher Council Taxes to pay for 

what could easily turn out to be a white elephant" 

"People are very concerned that other tram systems in 

England are not achieving the targets they were expected 

to" 

"Many believe that the money would be far better and 

more sensibly spent improving the existing underground 

and bus services" 




South Buckinghamshire 

District Council * 


TRAM 


"The Council is supportive of the tram link from Uxbridge 

into London. However, whilst there is no mention of it in 

the current documentation, the Council vehemently 

opposes any subsequent proposals for the extension of 

the route to Denham or the provision of a park and ride 

facility in the Green Belt in South Bucks" 

St. Augustine's Priory 

* 

From a social point of view, I think there are inherent 

dangers in the scheme. Nationwide, we are now 

recognising the problems of a north-south divide brings to 

the country. It seems lunatic to deliberately and artificially 

impose a north-south divide on West London. I have tried 

hard to think of any benefit this scheme could bring. I 

hope that the suggestion of decreasing the size of Haven 

Green will be recognised for the eco-vandalism that it is, 

and my heart goes out to those many people living in the 

narrow roads on either side of Ealing Broadway who are 

now facing the very real anxiety that their homes will be 

demolished to push through a pointless and ill-thought out 

plan" 





TRAM 


Transport 2000 

* 

We strongly support the proposed West London Tram and 

would be pleased to lend our name in it's favour. The 

Tram would greatly increase the carrying capacity of the 

road and do so in a clean, quiet, accessible and attractive 

way. It would bring other advantages not mentioned in 

the consultation questionnaire including: improved road 

safety, encouraging a shift from the car to other modes, 

boosting regeneration and revitalisation of town centres 

and the entire transport corridor, providing an opportunity 

to remodel the environment of the Uxbridge Road and 

improve facilities for pedestrians and cyclists" 

West Acton Residents 

Association * 

"The introduction of the tram along the Uxbridge Road 

may reduce the demand for private car use. However, the 

projected road traffic densities presented by the 

consultants employed by TfL indicated an overall increase 

in the number of journeys overall in the area, with or 

without the introduction of the tram" 

"The only acceptable option for the tram through Acton 

High Street would be if it had two lanes with a further two 

lanes for other road traffic, even this option requires the 

demolition of a number of existing properties" 



APPENDIX 2 

Tim Finch 

Transport & Works Manager 

West London Tram 

Transport for London Borough of Hillingdon 

Windsor House 

42-50 Victoria Street 

London 

SW1V 1LW 

30 July 2004 

Dear Tim 

DEPOT SITE ALTERNATIVES 

I refer to the drawings you recently left with me, regarding the alternative depot sites. 

I would stress that the views stated below are only initial officer views and are based on the 

assessments made from Faber Maunsell Drgs 2101B and 3051G. As you will no doubt appreciate, 

at some stage, Council Member level views/endorsements of these will need to be made. 

As regards the transport input, Southall Depot site only has merit if the route to Hayes, via 

Coldharbour Lane, is progressed and adopted in the base scheme. Running of non-passengercarrying 

services along Hayes By-pass (A312) is not an attractive proposition. 

My initial view on the site at the junction of Uxbridge Road and Grand Union Canal (Drg 3051G) is 

that in transport terms it is very close to Uxbridge Road and hence obviates the need for lengthy 

journeys form the main route to depot site. Traffic modelling and junction design at this location 

will need to cater for various competing/conflicting road user interests. Views of the adjoining 

landowners would be crucial in determining the acceptability of this site for the depot. 

On the planning side, you should be aware that the site is presently designated as an Industrial and 

Business Area (IBA) in the adopted Hillingdon Unitary Development Plan. Policy LE2 seeks to 

limit uses in such locations to Business, Industrial and Warehousing purposes (Use Classes B1-B8) 

and for Sui Generis Uses appropriate in an IBA. A tram depot is likely to be regarded as a Sui 

Generis use and it is possible that the Council would regard it as an acceptable Sui Generis use in 

an IBA, given the limited range of suitable locations for depots in built up areas and the current 

retail use of the site. 

I would also draw your attention to Policy OEI, which seeks to prevent development where 

associated noise and vibration would have a detrimental effect on the amenities of nearby 

residential properties. It would be necessary to ensure that adequate mitigation of environmental 

impacts be undertaken to safeguard the living conditions of nearby homes. Nevertheless, on the 

basis of the information provided, I would say that there is unlikely to be any in-principle planning 

objection to the sitting of the tram depot on this location at the junction of Uxbridge Road/Grand 

Union Canal. 



I trust the above is helpful, and would stress that these are initial officer views. 

Yours sincerely 

pp 

Janet Rangeley 

Strategy Manager 

cc Chandra Raval – LB Hillingdon 



PERFORMANCE MANAGEMENT AUDIT – ACTION 

PLAN 

ITEM 8 

Contact Officers Tracy Waters 01895 277694 


Audit Commission report - attached 

SUMMARY 

The Audit Commission carried out an Audit of Performance Management as part of 

the Annual Audit Plan for 2005/06 in order to evaluate current performance 

management arrangements. 

The findings of the audit were positive, and led to five recommendations for the 

council to act on. 

The audit took account of the council’s performance management framework, the 

impact of the corporate centre through HIP, and Scrutiny. Through interviews and 

focus groups the audit carried out three detailed probes in services suggested by the 

council as examples of where performance levels had been raised after barriers to 

improved service had been overcome. The three probes investigated performance in 

Social Services and Housing, and Planning in particular: the percentage of adults 

receiving a service who had received a description of their needs, elements of the 

housing benefit service and improvements in determining planning applications. 

The audit commission made five recommendations for the council to implement. 

1. Implement a corporate approach to capturing and sharing notable practice; 

2. Reviews the outcomes from performance clinics and analyses identified 

issues 

3. Reviews and where practicable increases the frequency at which PSA 

performance data is collected. 

4. Undertakes more detailed cost benefit analysis, particularly when outsourcing 

aspects of service: and 

5. Reviews its range of local performance indicators and removes those where 

the cost of data capture outweighs the value of the information provided. 


1. That Cabinet note the outcome of the three probes and note that this 

reflects well upon the Council and the HIP Performance Management Group. 

2. That Cabinet approve the action plan 


It is good practice to consider and act upon the recommendations arising from audits 

carried out by the Audit Commission. 




To add, delete or amend the actions recommended by the report. 

INFORMATION 

1. The main findings of the audit were as follows. 

2. Performance Management is embedded within services from senior 

managers to front line teams and performance is a standing item at weekly and 

monthly management and team meetings where indictors are reviewed and remedial 

action taken within relevant service areas. 

3. Within the 'Probe' service areas where failing performance had been identified 

there has been an increase in capacity to monitor performance and identify 

issues inhibiting service delivery. Examples of interventions to improve performance 

against target are; 

• Restructuring of services to provide improved supervision ratios; 

• The improvement of IT provision 

• Development of more efficient work practices; and 

• Communication and engagement with staff. 

4. At the corporate level there is a focus on key performance targets at 

Management Board and through the H.I.P./CPA Steering Group. Resources have 

been provided to build individual staff capacity and technological and structural 

support. Performance Clinics have been introduced to provide additional support 

and guidance where underperformance has been identified. The findings of these 

Performance Clinics should be analysed to identify common or recurring themes. 

Overview and Scrutiny play a significant role in the overall monitoring of council 

performance. Procedures for identifying and tackling cross cutting issues have been 

developed the Council's own work and the London Borough of Hillingdon 

comparative data contained within the annual Local Authority Overview and Scrutiny 

survey would suggest that there is a capacity issue that warrants further 

investigation. 

5. Performance has improved within the probe areas both in terms of 

performance indicator scores, albeit in some instance only very recently, and through 

the increased focus and use of performance management information to guide 

management action. The true test for Hillingdon, as it is for all Councils, is to ensure 

service improvements are sustained and built upon over the long-term. 

6. Whilst the increased focus on performance has given rise to examples of 

innovative working and notable practice these are not widely known outside of 

individual services and more action could be taken to ensure that these are more 

effectively shared with colleagues. 



7. The capacity to monitor and analyse information is well established within the 

services reviewed but there remains a need to develop more analytical capability at 

the strategic level and also to undertake more detailed cost benefit analysis in some 

service areas. 

8. Performance data for some LPSA targets is collated and reported annually 

which restricts the potential for early intervention. 

9. There was a common belief at all levels within the Council that there were too 

many indicators, especially at a local level with the potential to divert activity away 

from key performance targets. 


10. There are no direct financial implications as a result of this report. 



11. A corporate finance officer has reviewed the report and is satisfied that the 

content and recommendations have no direct financial implications on the 

performance management function or for the Council’s resources in total, since the 

Action Plan will be delivered within existing staff resources. 


12. The Audit Commission has a number of powers under the Audit Commission 

Act 1998 which include the power to carry out an Audit of a local authority's 

Performance Management arrangements. 

13. When carrying out an audit of a local authority, the Audit Commisssion has 

the right to examine whether a local authority's practices are consistent with its 

general duty to secure best value which arises under the Local Government Act 

1999.Therefore,if Cabinet approves the five recommendations made by the 

Commission, which are incorporated in the Action Plan, this will assist the Council in 

demonstrating that it is meeting its duty under the 1999 Act''. 


2005 Report - Audit of Performance Management by Audit Commission 



2005 Performance Management Audit Action Plan 

Recommendations Action Responsible 

officer 

1. Implement a corporate Groups to identify success factors from Directors 

approach to capturing and performance improvements and share JD with 

sharing notable practice. with HIP Performance Management HIP/PMG 

Group 

Deadline 

2 Months 

Action 

Complete 

Case studies of improving 

performance/good customer care 

celebrated and communicated 

Customer 

Care Group 

And 

HIP/PMG 

Quarterly 

2. Review the outcomes of 

performance clinics and 

analyses of identified issues 

3. Review and where 

practicable increase the 

frequency at which PSA 

performance data is 

collected 

4. Undertake more detailed 

cost benefit analysis, 

particularly when 

outsourcing aspects of 

service. 

5. Review the range of local 

performance indicators and 

remove those where the 

Re-launch Customer Care Awards 

Audit of Performance clinics and report to 

HIP/ PMG / Management Board 

Continue to collect PSA data quarterly 

where it can be collected quarterly. 

Continue to collect PSA data monthly 

where quarterly monitoring shows target 

has slipped 

Amend existing project management 

guidance for business case and project 

evaluation. 

SMT’s to review local performance 

indicators to identify local measures 

which relate to the achievement of group 

JD with 

HIP/PMG 

Oct 2005 

Completed 

TW On going PSA will 

end in 

2006 

PSO with P 

Whaymand 

Board in 

preparation 

for Council 

June 2006 



cost of collection outweighs 

the value of the information 

provided. 

and service plans and target a given level 

of performance – targets to be included in 

Group and Team plans 

Plan 

Performance 

Supplement 



Performance Detailed Report 

30/06/2005 

Last saved: 25/08/2005 10:16:00 


Performance 

Management 

London Borough of Hillingdon 

2005-2006

The Audit Commission is an independent body responsible for ensuring that 

public money is spent economically, efficiently and effectively, to achieve 

high-quality local and national services for the public. Our remit covers more than 

15,000 bodies which between them spend nearly £125 billion of public money 

every year. Our work covers local government, housing, health, criminal justice 

and fire and rescue services. 

As an independent watchdog, we provide important information on the quality of 

public services. As a driving force for improvement in those services, we provide 

practical recommendations and spread best practice. As an independent auditor, 

we monitor spending to ensure public services are good value for money. 

Document Control 

Author 

Filename 

Doug West 

Hillingdon Performance Management 

Status of our reports to the Council 

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Auditors and Audited Bodies issued by the Audit Commission. Reports are 

prepared by appointed auditors and addressed to members or officers. They are 

prepared for the sole use of the audited body, and no responsibility is taken by 

auditors to any member or officer in their individual capacity, or to any third party. 

Copies of this report 

If you require further copies of this report, or a copy in large print, in Braille, 

on tape, or in a language other than English, please call 0845 0560566. 

© Audit Commission 2005 

For further information on the work of the Commission please contact: 

Audit Commission, 1st Floor, Millbank Tower, Millbank, London SW1P 4HQ 

Tel: 020 7828 1212 Fax: 020 7976 6187 Textphone (minicom): 020 7630 0421 

www.audit-commission.gov.uk

Hillingdon Performance Management │ Contents 3 

Contents 

Summary Report 4 

Introduction 4 

Background 4 

Audit approach 5 

Main conclusions 5 

Recommendations 6 

Detailed Report 7 

Performance management processes 7 

Corporate issues 8 

Scrutiny 9 

Impact in 'Probe' Services 12 

Areas for Development 15 

The way forward 15 

London Borough of Hillingdon

4 Hillingdon Performance Management │ 

Summary Report 

Introduction 

1 Effective performance management is accepted as being critical to the success of 

a well run local authority. A major contribution of performance management is its 

focus on achieving outcomes. It reminds us that training, strong commitment and 

lots of hard work are not results. The end result of all this activity must be the 

delivery of useful products and services that effectively meets the needs of the 

community. Managing performance is about supporting staff to make a 

difference. 

2 At any level performance management arrangements should: 

• explicitly cite what the organisation’s aims and objectives are 

• detail what needs to be done to achieve the stated objectives 

• ensure individuals who are best placed to ensure the delivery of targets have 

real ownership for doing so 

• detail performance measures to enable progress to be tracked 

• include the means to identify and address areas of poor performance 

3 Performance management is more than establishing the mechanics such as 

setting targets, having plans and measuring indicators which are easier to deal 

with in comparison to getting the right focus, leadership and culture in place. 

Often public bodies have performance management systems in place, but cannot 

make them work well in practice. This suggests that there are wider reasons for 

lack of success, other than the absence of a mechanism or framework. 

Background 

4 The Modernising Government agenda has set challenging new performance 

objectives for councils. The Gershon review of public sector efficiency, for 

example, details central government’s expectation that councils will be able to 

release resources to front line services by successfully meeting specified 

efficiency savings targets. These are to be achieved in essence through 

productivity increases as a result of workforce reform and training, investment in 

ICT and process reform. Performance management is a key tool to enable 

councils to meet these challenges. 

5 Our recent direction of travel summary report produced for the council as part of 

our requirement to assess and annually report continuous improvements included 

an assessment of the council’s performance management arrangements. In brief 

the report found that the reporting arrangements on the Hillingdon Improvement 

Plan had been improved with quarterly reporting and better linking of finance and 

activity data. The staff personal development and performance appraisal system 

(PADA) has been revised and the arrangements for its implementation reviewed. 


Hillingdon Performance Management │ 5 

6 To help the Council to further develop and refine its approach to performance 

management we agreed as part of the 2004/2005 audit plan to undertake a 

review of the current arrangements. 

Audit approach 

7 To evaluate the current performance management arrangements we used probes 

in three services: Environmental Services, Housing and Social Services. The 

services were selected after consultation with the Council as areas where 

underperformance had been identified in terms of; the processing of certain 

planning applications, elements of the housing benefits service and within social 

services the percentage of adults receiving a service who had received a 

description of their needs within relevant time scales 

8 The work involved a desk top review of documentation, interviews with directors, 

senior managers and focus groups with front–line staff and service managers. 

Main conclusions 

9 Performance Management is embedded within services from senior managers to 

front line teams and performance is a standing item at weekly and monthly 

management and team meetings where indictors are reviewed and remedial 

action taken within relevant service areas. 

10 Within the 'Probe' service areas where failing performance had been identified 

there has been an increase in capacity to monitor performance and identify 

issues inhibiting service delivery. Examples of interventions to improve 

performance against targets are; 

• Restructuring of services to provide improved supervision ratios; 

• The improvement of I.T. provision; 

• Development of more efficient work practices; and 

• Communication and engagement with staff. 

11 At the corporate level there is a focus on key performance targets at 

Management Board and through the H.I.P./CPA Steering Group which is a 

member level body chaired by the Leader of the Council and attended by the 

portfolio holder for Performance and senior council officers. Resources have 

been provided to build individual staff capacity and technological and structural 

support. Performance Clinics have been introduced to provide additional support 

and guidance where underperformance has been identified. The findings of these 

Performance Clinics should be analysed to identify common or recurring themes 

or barriers to progress. 

12 Overview and Scrutiny play a significant role in the overall monitoring of council 

performance. Procedures for identifying and tackling cross cutting issues have 

been developed. Whilst a detailed evaluation of officer support for Overview and 

Scrutiny falls outside the scope of this report the Council's own work and the 



comparative data contained within the annual Local Authority Overview and 

Scrutiny survey would suggest that there is a capacity issue that warrants further 


13 Performance has improved within the probe areas both in terms of performance 

indicator scores, albeit in some instance only very recently, and through the 

increased focus and use of performance management information to guide 

management action. The true test for Hillingdon, as it is for all Councils, is to 

ensure service improvements are sustained and built upon over the long-term. 

14 Whilst the increased focus on performance has given rise to examples of 

innovative working and notable practice these are not widely known outside of 

individual services and more action could be taken to ensure that these are more 

effectively shared with colleagues. 

15 The capacity to monitor and analyse information is well established within the 

services reviewed but there remains a need to develop more analytical capability 

at the strategic level and also to undertake more detailed cost benefit analysis in 

some service areas. 

16 Performance data for some LPSA targets is collated and reported annually which 

restricts the potential for early intervention. 

17 There was a common belief at all levels within the Council that there were too 


from the key performance targets. 

Recommendations 

18 We recommend that the Council: 

• Implements a corporate approach to capturing and sharing notable practice; 

• Reviews the outcomes from performance clinics and analyses identified 

issues; 

• Reviews and where practicable increases the frequency at which PSA 

performance data is collected; 

• Undertakes more detailed cost benefit analysis, particularly when outsourcing 

aspects of service; and 

• Reviews its range of local performance indicators and removes those where 




Detailed Report 

Performance management processes 

19 The Council's performance management framework for 2005/06 consists of a 

Council plan, a performance supplement, group and service plans and individual 

plans produced through the use of the Council's Performance and Development 

Agreement (PADA) process. The Council plan for 2005/06 entitled "Making a 

Difference" incorporates the Best Value Performance Plan and includes the 

Leader's Statement that sets out the tasks for the groups for the coming year as 

well as providing an assessment of the progress made against the Council's 

targets and objectives in the preceding year. The Council plan documents how 

the Council is to work with local strategic partners to address the aims detailed 

within the community strategy. However, at the time of our fieldwork the new 

community strategy had not been signed-off by all of the local partners nor 

published. The performance supplement provides a commentary on the Council's 

progress against Best Value performance indicators to meet best value statutory 

requirements. 

20 In interviews with senior and middle managers and focus groups with managers 

and front line staff the focus on performance management was evident. In the 

three service areas subject to detailed probes performance issues were standing 

agenda items at management and team meetings which were held at monthly or 

weekly intervals. Issues affecting performance were routinely identified and 

addressed. 

21 The PADA I process is well understood and embedded within the organisation. All 

staff we spoke to at senior, middle management and operational level stated that 

they had received timely appraisals. Evidence of a 'golden thread;' the consistent 

use of objectives from the Council plan, to Group plans and then finally to 

individual performance plans was provided within the probe areas. Departments 

had individual systems to monitor compliance with PADA processes but there is 

no monitoring at the corporate level. Systems to monitor whether regular 1-2-1s 

were undertaken were less systematic. As identified in the IDeA peer review 

report (2004) it is difficult to demonstrate the ‘golden thread’ running from the 

community strategy through to individual staff targets given the absence of a 

finalised community strategy. The Council needs to ensure that group and 

individual plans tie into the new community strategy as part of the next group and 

individual planning cycle. 

22 Staff are kept informed of performance issues by a range of methods including 

team meetings and briefings, the circulation of minutes, and corporate and 

directorate updates. Staff we spoke to were clear as to their departmental 

objectives and progress in achieving them. There is often a natural reluctance to 

provide critical feedback and systems are needed to overcome this barrier. The 

Council has implemented two notable approaches, for example 'skip' meetings 

I 

Performance and Development Appraisal 



between managers and staff which enable staff to talk directly to their line 

manager's manager and 'diagonal slice' meetings across a range of management 

levels and teams. The design of these meetings should help alleviate some of the 

reluctance staff may feel about being candid about areas where performance is in 

need of improvement. Such initiatives and good practice are shared at the H.I.P. 

Performance Management Group and through the training programme 

undertaken by the newly formed Project Support Office. However, awareness of 

them amongst staff is mixed resulting in lost opportunities to implement notable 

practice. We recommend that the Council implements a corporate approach to 

capturing notable practice and sharing it more widely. 

23 Performance Clinics have been introduced, initially within Housing and Social 

Services. Performance clinics are convened to address identified areas of poor 

performance. Initially a piece of research is undertaken to collate appropriate data 

on the particular service area. A meeting is then held, chaired by the appropriate 

Group Director and attended by service and team managers as well as other 

appropriate personnel. The output from these clinics is an action plan which is 

then monitored. Initially developed within Social Services these are now being 

rolled out across the Council. These workshops are in the relatively early stages 

of implementation and their contribution to service improvement has yet to be 

evaluated and analysis to identify common factors impacting on performance has 

yet to be undertaken. We recommend that the Council reviews the outcomes 

from the performance clinics so that any common issues might be identified and 

shared. 

24 One factor seen as improving the focus on performance is the production of more 

frequent and timely performance indicators which enable managers and staff to 

identify and address underperformance at an earlier stage and we were given 

examples of where early identification of issues had enabled effective 

interventions to take place. However there are areas of performance, including 

approximately 30 per cent of PSA I targets where data is still collected annually 

and we recommend that where practicable the Council reviews and where 

practicable increases the frequency at which PSA performance data is monitored 

and analysed. 

Corporate issues 

25 There are a number of ways in which the corporate centre impacts on 

performance, through the Hillingdon Improvement Programme, the use of 

Scrutiny and by building capacity. For example, by providing resources: to 

develop individual staff capacity, re-design business processes as well as 

through the appropriate investment and implementation of new technologies. 

26 Corporate involvement is seen by senior staff as motivational rather than 'hands 

on' and this includes the visibility of the leader of the Council and Chief Executive 

in holding well publicised quarterly award ceremonies where the contribution of 

staff in delivering improved performance is publicly recognised. 

I 

Public Sector Agreement 



27 The Corporate Centre, through the various H.I.P projects undertakes dip 

sampling and audits to ensure that appropriate systems are in place, for example 

the proportion of staff that have had PADAs and how the sickness absence 

policy is being implemented within departments. 

28 Regular Executive Briefings are provided to Members and senior staff but whilst 

performance trends against a wide range of targets are listed there is no analysis 

as to the reasons for changes in performance. Senior staff we spoke to felt that 

the quality of analysis could be developed to support the strategic decision 

making process. 

29 There are elements of cost benefit analysis in place including the outsourcing of 

residential homes and of comparing the costs of using agency rather than in 

house staff, however the analysis is limited. For instance, it does not provide the 

Council with sufficient data to show whether, for example, Market Factor 

Supplements are set at the levels to deliver the most cost effective mix of 'in 

house' or agency staff. We recommend that the Council undertakes more 

detailed cost benefit analysis, particularly when outsourcing aspects of services. 

Hillingdon Improvement Programme 

30 The Hillingdon Improvement Programme (HIP) was started in April 2003. It was 

established to improve the efficiency and effectiveness of the Council and to 

assist the Council in its endeavours to become an Excellent rated authority as 

determined by the Comprehensive Performance Assessment (CPA) process. 

31 The H.I.P. Steering Group is linked to the CPA continuous improvement 

programme and membership of the Steering Group has now been expanded to 

include all Portfolio Leads. This group considers all performance issues which are 

considered critical to delivery of CPA improvements and 'triggers' performance 

clinics for those key performance indicators where consistent underperformance 

against targets is noted. 

32 Performance Management is itself a H.I.P. project and all departmental Heads of 

Performance participate in regular meetings which oversee the performance 

framework and identify and address issues such as the provision of appropriate 

I.T. and staff training. 

33 There was a wide knowledge and understanding of H.I.P. amongst staff we spoke 

to and CPA and the Council's drive to improve performance were seen as drivers 

to encourage cross departmental working. 

Scrutiny 

34 Overview and Scrutiny play a significant role in the overall monitoring of council 

performance and procedures for identifying and tackling cross cutting issues have 

been developed. Whilst a detailed evaluation of officer support for Overview and 

Scrutiny falls outside the scope of this report the Council's own work and the 

comparative data contained within the annual Local Authority Overview and 



Scrutiny survey would suggest that there is a capacity issue that warrants further 


35 Overview and scrutiny has two key roles to play. Firstly, it is tasked with holding 

the Executive (i.e. the Cabinet) to account for the decisions they make (the 

scrutiny part) and secondly reviewing Council policies and making 

recommendations for future policies (the overview part). An effective Overview 

and Scrutiny (O&S) function can assist in driving up performance, the overview 

element in particular through its on-going monitoring and reviewing role. 

36 In reviewing the role of O&S in terms of performance we looked at; the links 

between the Council’s performance framework and O&S as well as the 

arrangements the O&S function uses itself to monitor and improve its own 

performance. 

Links with the corporate performance framework 

37 Establishing clear and explicit links between an authority’s performance 

framework and the overview and scrutiny function through the provision of regular 

service performance reports can help support the O&S particularly in its overview 

role. 

38 To fulfil the overview role each Committee identifies two or occasionally three 

issues to be reviewed over the course of a given year. The undertaking of 

reviews is complemented by the on-going monitoring of selected areas of Council 

performance. For example, Environment, Housing and Health & Social Care 

Overview and Scrutiny Committees (OSCs) receive quarterly performance 

reports. Some but not all OSCs receive copies of the relevant service plans at the 

outset of each financial year. To achieve a more consistent approach across all of 

the OSCs the Council has agreed to: 

• incorporate regular performance management reports into all OSC work 

programmes for 2005/6 onwards 

• require all Heads of Service to deliver a presentation and provide a copy of 

their Service Plan(s) to the appropriate Overview and Scrutiny Committee at 

the start of each year. 

39 Furthermore, options have been examined as to how resources might be best 

employed to provide a stronger focus on performance. To try and achieve this 

aim the Corporate Services OSC's terms of reference are being amended to give 

the Committee the lead role on overall performance monitoring. 

40 The provision of feedback is a vital element of any performance management 

system as it provides staff with confirmation that their efforts are not going 

unnoticed and how they are contributing to Council priorities. Staff interviewed 

during our inspection cited instances where they had received feedback from 

O&S on performance issues, for example, the positive feedback received by the 

Housing Benefit team in the light of the improvement in their performance in 

processing applications. 



Scrutiny’s performance management arrangements 

41 Monitoring and reporting performance are key steps to enable a service to 

acknowledge how well it is doing and where appropriate take corrective action to 

achieve service improvements. Overview and Scrutiny’s annual report fulfils this 

requirement and details its own achievements. These include the changes that 

Cabinet has made in the light of recommendations made by O&S after their callin. 

Cabinet has, for example, revised its final decision with regard to the 

Modernisation of Learning Disability Services. One of the two recommendations 

referred to Cabinet by O&S requested that the decision to close Bourne Lodge be 

rescinded and that the assessments of the needs of the residents be completed 

and appropriate packages of care be provided before any alternative use of 

Bourne Lodge is decided upon. The Cabinet has decided that no final decision as 

to the future of Bourne lodge is to be made until the following has been provided 

for all the service users: the completion of specialist assessments including risk 

assessments; the identification and implementation of appropriate care packages. 

Cabinet agrees that a report will be brought back before it for a final decision to 

be made in relation to the future of Bourne Lodge. 

42 Services users’ requirements are liable to change over time and consequently 

appropriate arrangements are needed to ensure these changes are captured in a 

timely fashion. The officer team supporting O&S actively seeks input from users. 

This takes the form of a survey of Members and officers as well as feedback 

sought from members of the public who have attended meetings. 

43 Any adopted structure for scrutiny will have strengths and weaknesses. The 

service based committee structure adopted by the Council is unable to facilitate 

cross-cutting reviews to the same extent as thematic based structures. This issue 

was highlighted in the Audit Commission review of Scrutiny published in 2003. 

The Council has now implemented procedures for tackling cross-cutting issues, 

as evidenced by the work undertaken on domestic violence and has addressed 

all other recommendations arising from that review. 

44 Every service must learn to operate with the finite resources at its disposal. 

Developing and applying selection criteria helps to ensure resources are used as 

effectively as possible. In line with this good practice, when OSCs decide which 

two or three reviews to conduct during the year the possible topics are evaluated 

by officers and Members using agreed selection criteria thereby ensuring the 

reviews that are funded are targeted appropriately. 

45 Once a service has been set its objectives, if it is to fulfil its obligations in the set 

timescale the necessary resources to deliver them are needed. The Council has 

acknowledged that a delay in filling an O&S team vacancy, growing Member 

expectations of what O&S can deliver as well as increased workloads has 

delayed the pace of reform. 

Capacity 

46 The Council has recognised its need to increase capacity and is making 

investments in a number of areas to address this issue, for example: 



• Sickness absence has been identified as a significant issue and is being 

addressed through the provision of training, such as the Building Hillingdon's 

Future programme that has resulted in reductions in sickness absence within 

some service areas. However the projected level of 10.1 days per staff 

member exceeds the target of 9 days I ; 

• Provision of additional resources, for example funding for the provision of 

document scanning facilities to speed processing of benefits claims; 

• Departmental restructuring, for example moving Older Peoples Services from 

a geographical to a functional system; 

• 'Away days' and Planning and Performance workshops; 

• Reduced staff supervision ratios and defined quality management roles for 

supervisors; 

• I.T. resources to enable staff to reduce time spent in the office and increase 

time with users; 

• The introduction and resourcing of Quality Assurance posts. 

47 However recruitment and retention are still issues in some services although 

initiatives such as the Benefits Service Trainee Programme are having a positive 

impact. 

48 Whilst managers and staff we spoke to at focus groups were positive as to the 

use of performance indicators there were concerns expressed as to the long term 

potential danger of focussing on quantitative indicators to the detriment of 

delivering a quality service. There was a common belief at all levels within the 

Council that there were too many indicators, especially at a local level where 

value and relevance was limited. Collecting unnecessary information adds to the 

burdens on staff and has the potential to divert attention from the key indicators 

and skew service delivery. We recommend that the Council review the range of 

local performance indicators and remove those where the cost of data capture 

outweighs the value of the information provided. 

Impact in 'Probe' Services 

Planning 

49 The speed of processing planning applications is measured by BVPI 109a-c. The 

indicator differentiates performance in terms of determining major, minor and 

other applications. The government has set a target of 13 weeks for a major 

application to be determined and 8 for minor and other applications. In 2003/04 

43% of the Council's major applications were determined within 13 weeks. This 

has increased to 70% for 2004/05 placing the Council in the top performance 

quartile. The performance in terms of meeting the government's processing time 

targets for Minor and other applications placed the Council in the bottom 

performance quartile for 2003/04. The figures for both minor and other have now 

I 

Making a Difference - Performance Supplement 



increased to 67% and 81% respectively I which placed the Council in the second 

best performance quartile for both of these indicators. A range of interventions 

have been introduced to deliver improvements in processes which had previously 

impeded performance. Whilst it is not possible to quantify which of the following 

procedural changes has had the most impact the cumulative result has been to 

raise performance in all three indicators to above the national targets (based on 

provisional figures) II . Improved process times can be achieved to the detriment of 

quality. BVPI 205 introduced in 2004/05 gives a score derived from an 

assessment made against a "Quality of Service Checklist." Similarly, the new 

indicator on the percentage of appeals allowed against the authority's decision to 

refuse a planning application can be used as a proxy indicator of quality. Both 

these new indicators need to be reviewed to ensure that the progress being 

achieved in terms of the timeliness by which applications are determined does 

not negatively impact on the quality of the service provided. 

50 The range of interventions included; 

• More frequent Planning Committee meetings and prioritising work to match 

committee schedules; 

• Case load monitoring and review meetings, with; 

- use of technology to identify problems at an early stage; 

- Officers held to account for failures in meeting targets; 

- thorough and close management of major applications; 

• Use of digital cameras to reduce the need for on site visits; 

• The introduction of a manual for guidance, use of pro formas and shorter, 

simpler reports; 

• The rigorous application of delegation agreements; and 

• Weekly briefings to the Portfolio Lead Member. 

51 In addition to sustaining performance against national standards the revised 

processes have also enabled the backlog of applications to be substantially 

reduced. 

Housing Benefits 

52 Performance in terms of the timeliness by which new benefits claims and 

notifications of changes in circumstances are processed is measured by BVPI 

78a-b. The Council's performance remains below government targets, and puts 

the Council in the bottom quartile of performance. The Council's performance in 

quarter 4 2004/05 showed an improvement. III Speed of processing improvements 

must be achieved alongside improvements in terms of the quality of the service 

provided. One measure of quality is the percentage of cases for which the 

I 

II 

III 

The most recent performance indicators for Planning and other services discussed in this report are still 

provisional. 

Source - Management Board Performance Report Quarter 4 

Source - Management Board Performance Report Quarter 4 



calculation of the amount of benefit due was correct on the basis of the 

information available for the decision. Performance for 2004/05 in terms of this 

indicator was 92 per cent and represented bottom quartile performance. 

Monitoring of this data for the first quarter of 2005 shows a marked improvement 

with 100 per cent accuracy achieved. New claims are now being processed 

within an average of 27days against the national standard of 36 days. Factors 

identified by staff as contributing to this improvement include; 

• Restructuring of teams to improve the ratio of managers to staff and increase 

supervision; 

• Improved capacity through reductions in sickness absence ; 

• The provision of document scanning facilities; 

• Improved I.T. to enable field staff to work more effectively through the 

provision of more management information that can help target staff to ensure 

target deadlines are met; 

• Increased focus on learning lessons from 'failed' cases and systems to 

identify and address cases at risk of failing; 

• The introduction of an in house trainee scheme which has resulted in 

improved retention of staff; and 

• Learning from other councils through participation in a wide range of forums, 

for example the Council's work to implement an appropriate target setting is in 

part developed upon arrangements established at the London Borough of 

Harrow and reviewed after a site-visit was undertaken. 

Older Peoples Services 

53 An area for improvement identified within Older Peoples Services was that of the 

provision of needs statements (BVPI 58). The Council's performance placed it in 

the bottom quartile for 2001/02, 2002/03 and 2003/04. Improvement can be seen 

in the last two quarters of 2004/5 with quarter 3 achieving 88.6 per cent against a 

target of 91 percent and quarter 4 achieving 93.7 per cent. The final actual 

performance for 2004/05 raised the Council into the 3rd performance quartile with 

an actual performance of 91%. Contributory factors have been identified as; 

• Restructuring of the service from a geographical to functional base; 

• Improved capacity through increasing the number of supervisors; 

• Reduction in sickness absence; 

• Administrative staff undertaking additional functions to improve field staff 

capacity; 

• Improved I.T. to reduce the need for field staff to return to the office; 

• Increased capacity to monitor performance; and 

• Increased training for staff. 



54 The waiting list which previously numbered 1800 cases has now been reduced to 

zero. 

Areas for Development 

55 Whilst there has clearly been progress in building and embedding a performance 

focussed culture within the Council there is still potential to further enhance 

performance management processes. 

56 The increased focus on performance has given rise to examples of innovative 

working and notable practice. However these are not widely known outside of 

individual services and more action could be taken to ensure that these 

innovations are more effectively shared with colleagues. 

57 The findings of Performance Clinics should be analysed to identify common or 

recurring themes or barriers to progress. 

58 The capacity to monitor and analyse information is well established within the 

services reviewed but there remains a need to develop more analytical capability 

at the strategic level and also to undertake more detailed cost benefit analysis in 

some service areas. 

59 Performance data for some LPSA targets is collated and reported annually which 

restricts the potential for early intervention. 

60 There was a common belief at all levels within the Council that there were too 


from the key performance targets. 

The way forward 

Recommendations 

We recommend that the Council: 

R1 Implement a corporate approach to capturing and sharing notable practice. 

R2 Review outcomes from performance clinics and analyse identified issues. 

R3 Reviews and where practicable increases the frequency at which PSA 

performance data is monitored and analysed. 

R4 Undertake more detailed cost benefit analysis, particularly when outsourcing 

aspects of service. 

R5 

Review the range of local performance indicators and remove those where 





DRAFT JOINT MUNICIPAL WASTE MANAGEMENT 

STRATEGY 

ITEM 9 

Contact Officer Duncan Jones 01895 277507 


SUMMARY 

None 

This report presents the Draft Joint Municipal Waste Management Strategy which has been 

compiled by the West London Waste Authority and the Constituent Boroughs of Brent, 

Ealing, Harrow, Hillingdon, Hounslow and Richmond Upon Thames. 

The strategy is intended to lay down the policy framework for the continuing development of 

the local waste management agenda through the setting of appropriate waste minimisation, 

recycling, composting and recovery targets which are designed to comply with the 

requirements of the Waste Emissions Trading Act 2003 and the Government’s new Landfill 

Allowance Trading Scheme. 

This report will examine the strategy and the implications for the Borough’s waste policy from 

both an operational and financial perspective. The report recommends approval of the 

strategy subject to the issues raised in the report. 


That Cabinet: 

1. notes the report. 

2. notes the extensive consultations already carried out as well as the additional 

consultation efforts proposed by Waste Division officers. 

3. gives particular attention to the operational implications of the Draft Joint Waste 

Management Strategy as detailed in paragraphs 22 – 36. 

4. notes the specific areas of concern identified with the draft strategy as detailed in 

paragraphs 46 – 47. 

5. instructs Waste Division officers to report back to the Cabinet with the final 

version of strategy for further consideration and formal adoption as soon as 

possible. 


The draft joint municipal waste management strategy lays down a framework from both an 

operational and policy perspective until 2020. The strategy and the targets contained within 

will have considerable implications for the continuing development of the Borough’s waste 



management services which need to be fully understood by the Authority before agreeing 

the joint strategy. 


Due to Hillingdon’s current recycling performance the Authority is one of the few in the UK 

that are exempt from having to compile a joint municipal waste management strategy. 

However, given the implications for regional waste management operations and policy over 

the next 10 – 15 years clearly Hillingdon needs to be represented to ensure its views are 

considered. As a consequence Waste Division officers have been actively engaged in 

drawing up the strategy since work commenced early in 2004. 

COMMENTS OF OVERVIEW & SCRUTINY COMMITTEE 

Whilst the Overview & Scrutiny Committee have not been given chance to review the draft 

strategy they have previously received and considered reports on various waste disposal 

technologies as well as the Borough’s recycling programme. In turn Waste Division officers 

have ensured that these findings have been fed into the strategy at all key stages. 

INFORMATION 

Background 

1. The compilation of a Joint Municipal Waste Management Strategy, herein referred to 

as the JMWMS, is a statutory requirement. Such a document must have regard to current 

guidance on the preparation of waste strategies as well as the targets and policy objectives 

detailed in national and regional waste strategies. In addition it needs to actively consider 

numerous pieces of waste related legislation such as the Waste Electrical & Electronic 

Equipment Directive, which have either been recently adopted into UK law or are about to. 

2. The document itself is made up of 2 distinct volumes. Volume 1 contains the core 

report which details the background to the need to formulate a JMWMS; a baseline 

assessment of the current stage of development of regional waste management operations; 

a clear identification of where we need to get to in terms of higher levels of recycling and 

waste recovery; a summary of possible options to achieve these objectives; and a detailed 

action plan which lists the type of policy and operational developments that the need to be 

taken in order for the targets laid down in the JMWMS to be achieved. 

3. Volume 2 of the JMWMS contains technical reports and evidence supporting the 

analyses that have been undertaken which have been used to support the findings and 

action plan contained within. 



Key Drivers 

The Landfill Directive 

4. The main legislative instrument which now drives all waste strategies throughout the 

UK and Europe is the EU Landfill Directive (1999/31/EC) which was implemented in the UK 

by The Landfill (England and Wales) Regulations 2002. 

5. As reported previously to the Authority the Landfill Directive is designed to address 

the environmental, social and economic impacts of landfill. It contains a mix of objectives for 

reducing the amount and type of wastes going to landfill. The key issue for local authorities 

throughout the UK is the reduction of biodegradable municipal wastes (BMW) through the 

promotion of alternatives such as waste minimisation, recycling, composting and energy 

recovery from waste. To assess progress with this aim the Directive has the following key 

targets which if not achieved could result in member states being heavily fined :- 

• by 2010 reduce the amount of BMW landfilled to 75% of that produced in 1995; 



Waste Emissions Trading Act 2003 

6. To ensure that the UK meets the targets detailed above the Government, through the 

Waste Emissions Trading Act 2003 is now rationing the use of landfill in the UK by setting 

maximum levels of BMW that can be landfilled from now until 2020. The graph below 

illustrates how this rationing affects the West London Waste Authority until 2020. 

700,000 

600,000 

500,000 

Excess waste 

that must be 

dealt with. 

Tonnes BMW 

400,000 

300,000 

200,000 

100,000 

Waste that 

can be 

landfilled 

- 

2005/06 

2006/07 

2007/08 

2008/09 

2009/10 

2010/11 

2011/12 

2012/13 

2013/14 

2014/15 

2015/16 

2016/17 

2017/18 

2018/19 

2019/20 



7. The Waste Emissions Trading Act 2003 provides a framework for the Landfill 

Allowance Trading Scheme (LATS) a system whereby tradable landfill allowances are 

allocated to WDAs each year. It is for each WDA to decide how best to meet their ‘LATS’ 

obligations through an appropriate mix of recycling, composting, energy recovery and 

allowance trading. 

Financial Incentives - LATS Penalties / Landfill Tax 

8. One of the key mechanisms included in LATS is the penalty for non compliance. The 

Government has confirmed its intention that any WDA who landfills more than its allocation 

(initial allocation plus or minus any allowances purchased or sold under the trading scheme) 

will be fined at the rate of £150 per tonne. In the joint waste disposal authorities such as 

WLWA these fines will end up being paid by the Constituent Boroughs. 

9. As of April 2005 the Government is increasing the landfill tax per tonne by £3 per 

annum. The tax is currently £18 per tonne for mixed municipal wastes, with a medium term 

target of raising the tax element to £35 per tonne to match continental levels. Therefore 

potentially within the next 6 years WDAs landfilling over their allocation could face combined 

charges of £200+ per tonne compared to the current cost of approximately £40 per tonne. 

Main Targets 

10. In brief summary the JMWMS proposes that by 2020 50% of the wastes handled 

within the West London Waste Authority (WLWA) area should recycled or composted. In 

order to monitor progress towards this target the JMWMS proposes the following interim 

targets that the Constituent Borough will be expected to achieve :- 

• 28% recycling and composting by March 2007 



11. In addition recognising the fact that recycling and composting alone cannot achieve 

the necessary overall diversion from landfill required the JMWMS also proposes that up to 

200,000 tonnes of mixed municipal waste by 2020 is diverted each year to some form of 

energy recovery process. 

12. With the implementation of the weekly household recycling service in June this year 

Waste Division officers expect to achieve the 28% target by March 2006. In addition 

proposals are currently being put together for the re-engineering of both the New Years 

Green Lane and South Ruislip Civic Amenity sites. These developments in addition to the 

inclusion of glass bottles and jars into the household recycling service by August 2006 

should see the Borough recycling 40% by March 2010. The 50% recycling target by 2020 is 

very challenging and will only be achieved by further radical changes to the household 

collection services for recyclables, garden wastes and refuse. 



Consultations – Already Completed 

13. The JMWMS was prepared by officers from the Constituent Boroughs, and WLWA 

officers in close cooperation with local residents and key stakeholders. In turn this grouping 

was supported by external consultants Environmental Resources Management Ltd and 

Eunomia Research & Consulting. 

14. Strong working relationships were established between WLWA and the Constituent 

Boroughs through regular meetings to steer the Strategy process. This was reinforced by the 

fact that WLWA’s board is composed of one elected member from each Constituent 

Borough. To further supplement this a Waste Forum, including elected Members, officers 

and community representatives from each of the Constituent Boroughs was established to 

support the development of the JMWMS. Finally separate focus group meetings were also 

convened in each of the Constituent Boroughs to engage local residents and other 

stakeholders. 

Consultations – Proposed 

15. In addition to the consultations already completed in order to ensure the fullest 

possible consultation WLWA will be sending the draft strategy for comment to the following 

organizations for comment :- 

• Greater London Authority 

• Environment Agency 

• Neighbouring Waste Disposal Authorities 

• Various Environmental Interest Groups (Greenpeace, Friends of the Earth etc) 

• 

16. In addition the Waste Division intends to consult with the following organizations and 

stakeholders :- 

• Borough Members 

• Hillingdon Alliance of Residents Associations 

• Waste Division operational partners 

• Local Chambers of Commerce 

• Any additional consultees identified during the course of Cabinet approval 

Environmental Appraisal of Options 

17. The JMWMS includes an appraisal of options for the medium to long term 

management of residual wastes, i.e. those wastes not recycled via household collection 

services or at Civic Amenity sites across the WLWA area. The appraisal is consistent with 

the concept of Best Practical Environmental Option (BPEO) as detailed in Waste Strategy 

2000 and as included in Annex A of the JMWMS. 



18. The Department for the Environment, Food and Rural Affairs (DEFRA) previously 

consulted on proposed changes to waste management decision making principles. As a 

result Sustainability Appraisal (SA), including Strategic Environmental Assessment (SEA) is 

now required for Regional Spatial Strategies and Development Plan Documents which 

identify waste management infrastructure needs. SA will identify the extent to which the 

spatial planning strategy delivers the objectives set by Government for sustainable waste 

management. 

19. Therefore SA incorporates the concepts underpinning the process for determining the 

BPEO, which means there is no longer a need for a separate BPEO process. Nevertheless 

the principles covered by BPEO remain valid and will be addressed by SA/SEA in future 

including :- 

• in taking decisions, there should be consideration of alternative options in a 

systematic way; 

• engagement with the community and key stakeholders should be an important and 

integral part of the decision-making process; 

• environmental impacts of possible options should be assessed by looking at both the 

long and short term; 

• decisions should seek the best environmental outcome taking account of what is 

feasible and what is an acceptable cost. 

20. An SEA must be undertaken for all new strategies as a requirement of the 

Environmental Assessment of Plans & Programmes Regulations 2004. However, an SEA is 

not required where the Strategy development process began before the 21 st July 2004, 

provided that the Strategy is adopted prior to the 21 st July 2006. 

21. The first preparatory act for the JMWMS took place prior to 21 st July 2004. 

Consequently based on the intention to formally adopt the final JMWMS before the 21 st July 

2006 a formal SEA is not required. Nevertheless the appraisal of the options for dealing with 

residual wastes is consistent with a formal SEA as well as the BPEO process. 

Action Plan 

22. Volume 1 of JMWMS contains a comprehensive action plan which in essence is the 

most important part of the document because it details a comprehensive series of service 

developments both at the Borough level and at the regional WLWA level, which if 

undertaken should deliver the necessary increases in performance by the key dates 

specified. 



23. The Action Plan itself runs to many pages and consequently it would be impractical to 

run through and comment on every single action especially when it is recognised that within 

Hillingdon a significant number of the suggested actions and individual pieces of work have 

either been completed or are well under way. Therefore detailed below are the main issues 

which Hillingdon needs to consider with respect to the future development of the Borough’s 

waste management services under the context of the JMWMS :- 

• Recycling / Composting rates of 28%, 40% and 50% by March 2007, March 2010 

and March 2020. 

24. As detailed above with the implementation of the weekly household collection of 

mixed dry recyclables Waste Division officers are confident of achieving the 28% recycling 

target by March 2006 some 12 months ahead of schedule. In turn assuming that current 

negotiations to include glass recycling in the weekly household recycling service are 

successful; and proposed changes to the New Years Green Lane and South Ruislip Civic 

Amenity sites go ahead within the next 2 years Waste Division officers are also confident of 

achieving the 40% recycling target by March 2010. The final target of 50% recycling by 2020 

is far more challenging and will not be met without further radical changes to the household 

collection services for recyclables, compostables and residual wastes. 

• The JMWMS will not be prescriptive as to the collection systems used by the 

Borough’s to achieve the landfill reduction, recycling and composting targets. 

25. The Action Plan contains a number of measures, such as fortnightly refuse collection, 

which will be controversial at best. Therefore one of the key issues that was insisted upon by 

WLWA’s Constituent Borough’s was that the Action Plan was not to be prescriptive. In other 

words if a Borough can reasonably demonstrate that it can achieve the key targets by the 

specified dates through means not necessarily detailed in the Action Plan then such 

Boroughs should be given the freedom to pursue their own course of action rather than 

being tied to the those actions detailed in the JMWMS. Therefore if a Borough can 

reasonably expect to achieve a 50% recycling rate by 2020 without implementing the 

fortnightly collection of residual refuse then it should be allowed to do so. However, in 

considering this principle it should also be remember that like the Mayor for London, WLWA 

also have ‘Powers of Direction’ over the Borough’s waste services which can be used if 

WLWA believe that a Borough’s actions are not conducive to the achievement of the 

JMWMS. 

• All Borough’s to collect cardboard, plastics and compostable kitchen wastes. 

26. Currently Hillingdon already collects cardboard through the Borough’s network of 

recycling sites and via the weekly household collection service for mixed dry recyclables 

which also collects plastic bottles. In addition the Authority is also involved in a small trial at 

the South Ruislip Civic Amenity site which collects all other types of soft and hard plastics 

not collected via the weekly service. 



27. With respect to kitchen waste the contract agreed last year for the processing of the 

Borough’s compostable garden wastes also allows us to add in kitchen wastes at any point. 

However, problems experienced with the processing facility this summer have resulted in 

Waste Division officers suspending further consideration of this issue until such time as the 

problems are resolved or alternative arrangements are made. 

• Participation in Household Recycling Services will be driven up by reducing the 

collection of residual wastes (traditional refuse collection) to fortnightly. 

28. As reported previously to the Authority one of the key features common to the UKs 

top performing Waste Collection Authorities (WCAs) when it comes to recycling and 

composting is the operation of a fortnightly collection service which alternates between 

recycling and composting one week and residual waste collection the next. The London 

Borough of Harrow is currently conducting a trial into alternate weekly collections with a view 

to the change being implemented Borough wide. Whilst this would be a radical departure 

from the norm it is the kind of change necessary if Hillingdon is achieve the 50% recycling 

target by 2020 as detailed in the JMWMS. 

29. Waste Division officers have already conducted preliminary studies into this approach 

and have concluded that there is a better compromise between the current collection 

approach and a full blown alternate weekly service. At this initial stage Waste Division 

officers would recommend putting together proposals for increasing the collection of garden 

wastes (and possibly kitchen wastes subject to issues raised above) to a weekly service 

followed by the reduction of refuse collection to fortnightly. However, such an approach 

would necessitate consideration of different containment methods. 

• Requires that all Civic Amenity sites within the WLWA be re-engineered / redesigned 

to achieve best practice in order to drive site recycling sites up to 60%- 

70%. 

30. As discussed earlier in the report key to achieving the medium term recycling target of 

40% by 2010 is the re-design / re-engineering of each of the Borough’s Civic Amenity sites 

to turn them into proper household waste recycling centres that can deliver the necessary 

step changes in performance to recycle up to 70% of the wastes going through these sites. 

31. To this end Waste Division officers previously secured external funding via the 

2004/05 DEFRA Local Authority Support Unit, (LASU) challenge fund which allowed the 

Borough to employ and work with consultants to come up with a new design for the New 

Years Green Lane Civic Amenity site in Harefield. The results of this work are now being 

analysed by the Planning Department to allow them to identify what additional information 

they require prior to the submission of a full planning application. 

32. Waste Division officers were again successful in the 2005/06 DEFRA LASU challenge 

round and are now actively working with the same team of consultants as well as the West 

London Waste Authority over options to re-design the Victoria Road Civic Amenity site in 

South Ruislip. 



33. Once projected costs for both projects are known Waste Division officers intend to 

report back to the Cabinet detailing the plans as well as a breakdown of the anticipated costs 

and timescales for construction. This will also include an analysis of possible sources of 

external funding that may exist at the time and which may be used to mitigate the costs to 


34. Finally Waste Division officers are also in active discussions with SITA (UK) over the 

long term future of the Civic Amenity site in Rigby Lane in Hayes. This site is more 

problematical than either New Years Green Lane or South Ruislip sites due to being 

severely constricted for space as well as being owned by SITA . Therefore any future 

development of this site will require significant Capital investment from SITA which in turn 

would need to be funded through an appropriate contract with the Borough. 

• The West London Waste Authorities will work together to achieve the aims of the 

strategy and are committed to share equitably the costs and rewards of achieving 

its aims, (Policy No.8). 

35. As a result of the current default waste disposal levy there is no direct link between 

waste disposal costs and tonnages disposed of and reductions in disposal expenditure due 

to recycling and other landfill diversion technologies. 

36. DEFRA is currently consulting with the Joint Waste Disposal Authorities and their 

Constituent Boroughs over changing the default levy basis to one based on tonnage. In turn 

through this consultation Waste Division officers will be looking to influence the final 

outcomes of the consultation such that any changes :- 

• Result in Constituent Borough’s only paying for disposal costs actually incurred, (with the 

sole exception of CA site household wastes costs) 

• That the Joint Waste Disposal Authorities are given the power to target Borough’s directly 

by passing on any fines received under LATS. 

Options for Dealing With Residual Waste 

37. Even though the draft JMWMS includes a target of recycling 50% by 2020 it should 

be recognised that recycling and composting alone will not meet the required diversion from 

landfill if WLWA and the Constituent Borough’s are to fully comply with the LATS 

requirements. Therefore the JMWMS needs to assess and propose an appropriate mix of 

solutions that will be able to divert the necessary tonnage from landfill through some form of 

recovery process. 

38. To be able to carry out an objective assessment of the various technologies available 

for managing residual wastes it was necessary to place them on a common scale for 

comparison. WLWA’s existing waste management contract runs out in 2008 at which point a 



new contract will need to be let. However, the technologies being considered have different 

lead times with Energy from Waste being the longest at an average of 4½ - 8 years. 

Therefore stage 1 of the assessment process was to examine the technological option(s) 

that best meet WLWA’s need to manage residual waste irrespective of the timescales for 

bring any new facilities on line. 

39. The outcomes of stage 1 of the assessment with used to develop integrated options 

for the management of residual wastes from 2005-2020. This represents stage 2 of the 

process. 

Assessment Methodology 

40. A seven stage methodological approach was used to carry out each of the stages 

detailed above :- 

• Set the overall aim of the assessment, subsidiary objectives and the criteria against 

which performance of different options will be measured; 

• Identify all the viable options; 

• Assess the performance of these options against set criteria agreed via the consultation 

process 

• Value performance 

• Balance the different objectives or criteria against one another; 

• Evaluate and rank the different options 

• Analyse how sensitive the results are to variations in the assumptions made or the data 

used. 

41. The overall assessment was strategic in its approach, rather than site-specific, and 

consequently its aim was to identify the type(s) of technology that best fit WLWAs residual 

waste management responsibilities under the LATS regime. 

42. The assessment of possible technologies applicable to the above was carried using a 

criteria based on the Office of the Deputy Prime Minister’s guidance on Strategic Planning 

for Sustainable Waste Management. The criteria was modified as a result of feedback during 

the first stages of the WLWA wide consultation process on the draft JMWMS. The final 

criteria also reflect the Sustainability Criteria developed by the Mayor in the London Plan 

(2004) and that are likely to be used in drafting Sub Regional Development Frameworks, 

local development plan documents, and when considering planning applications. The list of 

criteria used in the assessment process are as follows :- 

• Environmental 

• Resource depletion 

• Air pollution 

• Greenhouse gas emissions 

• Emissions injurious to public health 

• Extent of water pollution 



• Transport: distance and mode 

• Practicability / social 

• Land take 

• Cost 

• Reliability of delivery (likelihood of implementation & flexibility of arrangements) 

• Liability of end product 

• Compliance with waste policy 

43. Using the process outlined above 5 distinct recovery technologies were examined 

with a view to their use in the medium to long phases of the JMWMS and included :- 

• Anaerobic Digestion 

• Mechanical Biological Treatment (MBT) 

• Autoclaving 

• Gasification 

• Energy from Waste (EfW) 

44. The analysis of options for dealing the residual wastes shows that the options that are 

best suited to achieve the necessary reduction in landfill across the period to 2020 are MBT 

and EfW. However, new facilities will take considerable time to implement. It is very unlikely 

that any new plant, of a significant size, could be operational before 2010, and it could be 

2013 or later before capacity to divert residual wastes from landfill comes online. This delay 

beyond the date at which the new contracts are let as significant implications for WLWA 

under the context of the LATS regime. 

45. Options for bridging the gap include the procurement of an interim small scale MBT 

plant, procuring EfW capacity from outside the London area or paying LATS penalties or 

paying for extra permits. 

Key Issues for Consideration 

46. In essence the draft JMWMS as detailed here does not present any challenges that 

cannot be faced by Hillingdon across the medium to long term. Compared to other WLWA 

Constituent Boroughs Hillingdon will probably be the only one to achieve the 28% recycling 

target by March 2007. In turn the vast majority of the necessary changes to services detailed 

in the strategy are issues which Hillingdon is mostly addressing already with the remainder 

being issues that the Authority will need to tackle regardless of whether or not a JMWMS 

had to be produced. 

47. However specifically Hillingdon’s response to the draft JMWMS should highlight the 

following issues which should be addressed in the final version of the JMWMS :- 

• The JMWMS is a long and complex document with significant implications for waste 

management services in the West London area until 2020. With this in mind Hillingdon 

would like to see a clear and concise Executive Summary at the start of Volume 1 which 



details the main services changes / developments being put forward by the JMWMS with 

associated timescales. This in turn will make the document far more ‘user friendly’ which 

should help to broaden its take up among the key stakeholders and wider community. 

• The action plan as currently drafted implies that issues such as the collection of kitchen 

wastes for composting; the reduction of residual refuse collection to fortnightly and the 

inclusion of other materials such as cardboard into household recycling services are all 

issues which can be considered in isolation. However, in Hillingdon future proposals from 

Waste Division officers to make further changes to the collection services for recycling, 

compostables and residual wastes would look to address all of these issues at the same 

time. 

• Although mentioned in the draft JMWMS Waste Division officers would like to see a much 

clearer statement confirming that the Action Plan is not intended to be prescriptive. In 

turn on the basis that Boroughs can reasonably demonstrate their ability to meet the 

agreed targets by the specified dates it should be for the Borough’s themselves to make 

the final decision over how targets are to be achieved without having to automatically 

follow the Action Plan detailed in the JMWMS. 

• If possible Hillingdon would like to see the outcomes of the current DEFRA consultation 

exercise on the default waste disposal levy included in the final version of the JMWMS to 

confirm WLWAs intent to target directly any Borough’s with any fines which it receives 

from Central Government as a result of penalties received under the LATS regime which 

in turn were caused by any Borough(s) not achieving the specified recycling rates by the 

agreed dates. 


48. Previously the Cabinet has received a number of reports from Waste Division officers 

seeking approval for changes to the range of recycling services provided by the Borough as 

well as approval for responses to Government consultations on the Landfill Allowance 

Trading Scheme. 

49. Whilst the projected cost figures for continued landfill use are based on a range of 

assumptions all of which could be debated at some length nevertheless the underlying 

message is clear. The do nothing option whereby the Borough does not continue to develop 

its recycling services or via WLWA does not seek to recover energy from its residual wastes 

is the most expensive long term option. 

50. In turn the draft JMWMS anticipates that through an appropriate mix of MBT and EfW 

technology up to £480m of potential cost in the form of LATS fines can be avoided. As 

previously the levels at which these respective figures are pitched can and will continue to 

be debated. However, it is clear that Hillingdon in partnership with WLWA and the other 

Constituent Boroughs must continue to develop it waste management services across the 



Board with the over-riding aim being to seek every opportunity to recycle, compost and 

recovery energy from wastes where possible. 

51. Further financial analysis can only be carried out when the Authority comes to 

consider additional expenditure requests from Waste Division officers as they continue to 

expand and enhance the services they provide as briefly outlined above. In turn it is 

anticipated that with the current DEFRA consultation on changing the default waste disposal 

levy to one based on actual tonnage that financial considerations when assessing future 

expenditure requests in this area will become much clearer with recycling, composting and 

energy recovery representing the most cost effective option in the long term. 

52. DEFRA is currently consulting on changes to the levy basis for Joint Municipal Waste 

Disposal Authorities in England. This is almost certain to lead to the introduction of a 

tonnage waste disposal levy from 1 April 2006. This leads to a reduction in the WLWA levy 

but a loss of income from Recycling Credits. The estimated impact on this authority over the 

next three years is estimated to be: 

2006/07 

£’000 

2007/08 

£’000 

2008/09 

£’000 

Pressure on Levy -518 -127 +2,000 

Removal of Recycling Credits received. +948 +972 +1,000 

Net Pressure on budget +430 +845 +3,000 

The main reason for the large increase in 2008/09 is due to the estimated position that the 

Council will have to contribute to LATS penalties in that year. 

The above table takes full account of the costs associated with the potential increases 

detailed in paragraph 9 above. 



53. The table presented at paragraph 52 above is based on current trends in waste 

collection and disposal among the constituent West London boroughs (before the step 

change in recycling performance and consequent actions reflected in the draft strategy), and 

is reflected in the draft Medium Term Financial Forecast (MTFF) due to be reported to 

Cabinet on 15 December 2005. Adopting the key targets included in the draft strategy will 

require further investment in waste collection facilities as described at paragraphs 12, 24 and 

30-33 to deliver these targets, and as noted in the report schemes are being developed to 

bring forward proposals to this effect. The business case for such capital investment, as for 

all similar actions by other boroughs reflected in the Action Plan, will have an invest-to-save 

emphasis, based on the financial benefit of delaying the severe impact of LATS penalties 

beyond 2008/09 as projected at paragraph 52 above. 




54. As noted in the report the production of the Joint Municipal Waste Management 

Strategies is statutory requirement for the joint waste disposal authorities and their 

Constituent Boroughs. The only exception to this is for Authorities who have already 

achieved their statutory recycling targets as is the case in Hillingdon. This exception can be 

revoked should we fail to achieve any future statutory targets. 

55. However, as noted in the report, given the considerable implications for waste 

management in the West London area until 2020 Hillingdon’s Waste Division have been 

actively engaged in the formulation of the JMWMS since early 2004. 

56. Based on this work is anticipated that all of the Constituent Borough’s will be able to 

sign up to very challenging but nevertheless achievable targets detailed in the JMWMS. 

However, in the event that one or more Authorities are unable to agree the final strategy is 

currently unclear how Government intends to resolve such problems. 

57. In addition in London there is the added issue of getting the JMWMS agreed by the 

Mayor for London who like WLWA has been giving the power of direction over waste issues 

in London as evidenced by his previous ‘Direction’ which prevented WLWA recently seeking 

to let a contract for the management of up to 150,000 tonnes of waste per annum. Should 

either the Mayor, DEFRA or any of the Constituent Borough’s object to / find themselves 

unable to agree the JMWMS it is unclear how such a situation would be resolved or how 

long it would take. 

58. In any event Waste Division officers have indicated their intention to continue with the 

development of Hillingdon’s waste management services in line with the intention of the 

JMWMS. 


59. No external consultations were carried out with respect to this report. However, as 

noted in paragraphs 13 - 14 extensive external consultations were carried to support the 

formulation of the draft JMWMS. 


Draft Joint Municipal Waste Management Strategy – August 2005 

Cabinet Report, 30 th September 2004 

Cabinet Report, 27 th May 2004 (DEFRA Consultation on Tradable Landfill Allowances) 

The Mayor’s Municipal Waste Management Strategy – September 2003 

DEFRA Landfill Allowance Trading Scheme – 31 st August 2003 

LB Hillingdon Draft Waste (Recycling) Strategy 2001 – 2006 

Waste Strategy 2000 



ACORN YOUTH CLUB DEVELOPMENT ITEM 10 

Contact Officers Tom Murphy – 01895 250648 


Map showing site of Acorn Youth Club 

SUMMARY 

This report is concerned with the development of Acorn Youth Club. Its purpose is 

to secure actions designed to support the organisation in furthering its work with 

young people with learning difficulties and disabilities. 


That Cabinet: 

1. agree that the management of the land marked on the attached plan be 

transferred from Environmental Services Group to Education Youth & 

Leisure Group. 

2. authorise Property Consultancy to demolish the condemned building. 

3. authorise the Asset Management Review (AMR) Project Team to assist 

in an advisory and consultative capacity in connection with the 

construction of the building that will be project managed by an 

appointed person from the Acorn Youth Club. 

4. authorise the AMR Project Team to recharge costs incurred to Acorn 

Youth Club that it has incurred in respect of this project. 


The land edged, black on the attached plan, is currently managed by Environmental 

Services Group. The buildings are managed by Education, Youth & Leisure 

Services. 

To rationalise the management of the land so it may be managed by the same group 

as the building and service provided. 

The former cricket pavilion, cross-hatched on the attached plan, has been 

condemned. It is recommended by Property Services that the building be 

demolished as soon as possible. 

The new premises is being constructed on the direct instructions of Acorn Youth 

Club who have received lottery funding to enable them to carry out this development. 

However, the Acorn Youth Club has requested that support be given by the Asset 

Management Review Project team (AMR) to assist the club with planning 

permission, building regulations, Tree Preservation Orders and other conditions that 

may affect the development. 



Acorn Youth Club have recently employed a planning advisor to provide dedicated 

attention to project development as a number of potential challenges have arisen 

concerning the desired location of the new build and restrictions arising from 

subterranean cabling and tree location. It is still viewed that the project would 

benefit from AMR Project Team support to enable the project to be expedited swiftly, 

particularly given that the Lottery Funding is time limited. 

The AMR Project Team has a very limited budget and has been required to recharge 

officer time to projects to ensure that the service is properly funded. 


Not to transfer the land and to continue with the existing arrangements. The land 

management in future may be unnecessarily complex if this change is not made 

now. 

Not to demolish the Pavilion. This is not recommended. This will not improve 

community safety issues in the area and exposes the Council to risk from claims 

from persons injuring themselves if they enter the building without authorisation. 

Not to provide support from the Asset Management Review Project Team. This 

would mean that the Acorn Youth Club would be solely reliant on professional advice 

from a commercial provider who has not had the benefit of working with the group 

during the initial planning stages of this project. 

INFORMATION 

1. The Acorn Youth Club provides a meeting place for young people between 

the ages of 11-21 who are disabled. Many different types of disability are catered for 

although most of the disabilities are not physical. 

2. The club has met in the two pavilion buildings located on Columbia Open 

Space for many years and lease negotiations for the old cricket pavilion have been 

on-going since 1993 but had not been completed due to the movement of the 

foundations of the building caused by the close proximity of trees, many of these 

being the subject of Tree Preservation Orders. 

3. The old pavilion building was frequently subjected to vandalism and in March 

2003 was damaged so severely that it had to be closed and boarded up. 

4. Property Consultancy condemned the building and advised that it should be 

demolished. 

5. The two pavilions are Council assets and the demolition cost of the 

condemned building is the responsibility of the Council. Property services will 

identify the funds for the cost of demolition of the condemned pavilion and the 

storage building that had been erected by Bellway Homes. 



6. By virtue of an agreement under Section 52 of the Town and Country 

Planning Act 1970 entered in to by the Council in 1978, with the former land owner, 

The Civil Service Sports Association and Bellway Homes Ltd, buildings comprising 

those used by the Acorn Youth Club were transferred to the Council. 

7. The terms of this agreement include 2 requirements. 

1. Not to build any new buildings on the land without the consent of the other 

parties. 

2. 2. To maintain the existing building in good and substantial condition. 

8. Following legal advice, Estates & Valuation Officers have been asked to write 

to the other parties setting out the position and seeking their consent to construction 

of new building and demolition of existing pavilion. 

9. On receipt of a reply, demolition works can proceed without delay. 

10. Discussions have been on-going with the Acorn Youth Club over the past two 

years about the future of the site and various funding sources including possible 

Section 106 funding from a 375-unit housing development on the RAF Eastcote site 

towards construction costs, and Chrysalis funding for landscaping and security works 

have been considered. 

11. The timetable for the development of the RAF Eastcote site has been delayed 

and it is very unlikely that an application for consideration of Section 106 funding 

would be approved and funds made available within the time that the Youth Club 

expects to be able to complete their works. 

12. The Chrysalis fund is available for environmental improvement and it is hoped 

that assistance towards landscaping and security works will be favourably received. 

13. The Youth Club have made strenuous efforts to fund raise and have 

successfully raised £30,000 towards the cost of works. They have also applied for 

funding from the Big Lottery Fund and they have been successful in obtaining grant 

aid in the sum of £144,811. They therefore have a total resource of £174,811. 

14. The land shown on the attached plan is managed by Environment Group, 

Green Spaces. This land would need to transfer to Education Youth and Leisure if 

the building and lease are agreed. Agreement has been reached with Environment 

Group Officers that there is no Environment Group use for these buildings or this 

land. 

15. A new lease of land has been agreed for 25 years, this was a prerequisite for 

the grant of funds from the Big Lottery Fund. 

16. The building construction programme is sponsored by Tom Murphy (Principal 

Youth Officer), the project will be managed by the Acorn Youth Club who will deal 

directly with all construction and planning issues. 




17. Members are being asked to authorise Property Services to demolish the 

condemned pavilion, subject to permission being granted from Bellway Homes Ltd 

and the Civil Service Sports Association, as per the agreement mentioned in the 

report. The cost of this is estimated at £20k and is to be funded from the Property 

Services Capital Contingency. 

18. A condition of the Big Lottery Funding is that a new lease of land be granted 

to the Youth Club for a period of 21 years. Once the lease has been agreed and the 

demolition works completed, The Youth Club can go ahead with the building of the 

new structure on the site. The cost of the new building will be met from the Big 

Lottery Award and from funds raised by the Youth Club. There is no cost expected 

to the Council for these works. This option works well for all sides as the Youth 

Club can now agree the terms of the lease, guaranteeing accommodation for 21 

years. The Council will gain a new asset to replace the old and will be able to fulfil 

their obligations under the terms of the Section 52 agreement. 

19. Members are also being asked to authorise the support of the Asset 

Management Review Project Team (AMR), to assist the Youth Club with technical 

matters as mentioned in the report. The cost of staff time etc., (to be agreed in 

advance), will be recharged in full, directly to the Youth Club and will therefore have 

no impact on the Council’s revenue budget. 



20. Corporate Finance has reviewed this report and the financial implications 

within it. The view of Corporate Finance is that this report and its financial 

implications properly reflect both the direct resource implications on the service 

concerned and any wider implications on Council resources as a whole. 


21. Members should note that the Council has various statutory powers under 

which it can acquire and hold land. As indicated in the body of the report the land 

in question was acquired and held for Environmental Services Group purposes. 

Members are aware that the Council has carried out a restructuring of that group and 

it has now been divided into 2 separate groups. Given the historic leisure use of the 

site it would not fall within the control of the Environment and Consumer Protection 

Group. 

22. It is open to a council to transfer land from one part of its organisation to 

another if it can be shown that this is for operational or management purposes. In 

the present case it has been demonstrated that both for operational and 

management purposes it would be more appropriate that the land in question is 

within the control of Education Youth & Leisure. 



23. As a land owner the Council owes duties to those who enter upon its land. In 

the event that a person is injured on land owned by the Council and they can 

demonstrated that the Council owed them a duty of care and could have reasonably 

foreseen that they could be injured they would succeed in a claim against the 

Council. Officers have established that the existing building is in a dangerous 

condition and it would be advisable that the Council take action to remove the risk 

that the building presents. In this instance demolition of the building would be highly 

advisable. 

24. As indicated in the body of the report the buildings in question were 

transferred to the Council under the provisions of an agreement under section 52 

Town and Country Planning Act 1970. This section was similar to the current 

section 106 Town and Country Planning Act 1990 and it allowed for buildings to be 

transferred to local authorities if they were to serve a community purpose. It was 

common practice for local authorities who received such assets to give a covenant 

that they would the asset the question for the purpose for which it was transferred. 

This was to prevent local authorities abusing such gifts. In the present case it will be 

necessary to seek the consent of the other parties to that original agreement to 

demolish the existing buildings and replace them with a new building. The Council 

may be required to give a new covenant in respect of the new building. 

25. The involvement of the AMR Project Team would be advisable given the 

nature of the project. 

Corporate Property Services Implications 

26. Acorn Youth Club currently occupy the building shown hatched black on the 

attached plan, but have not been prepared to complete the lease on terms that had 

been previously agreed with them. Following discussions regarding the demolition 

of the derelict building and the building of a new structure adjoining the building they 

occupy, terms were agreed for a 25 year lease of the combined site. These terms 

were reported to Cabinet and approved on 18.1.2005 (item 13). The Lottery grant is 

made on the condition that the lease will be granted to Acorn Youth Club, and it is 

recommended that under no circumstances should any new building works 

commence until the Club have entered into the appropriate legal documentation 

regarding the lease. The Club were sent the draft legal documentation some 

months ago and have made no response. Further delay on their part to finalise and 

sign the lease will delay the proposed scheme and may have implications in relation 

to accessing the Lottery Grant. 


Site map attached. 





REFURBISHMENT AND REOPENING OF PUBLIC 

CONVENIENCES IN SHOPPING CENTRES 

ITEM 11 

Contact Officer Gerry Edwards - 018952 50903 


None 

SUMMARY 

As requested by Cabinet at its meeting held on the 12 th October 2005 this report 

informs Cabinet of the programme for the refurbishment and reopening of public 

conveniences at Botwell Lane, Hayes and Manor Farm, Ruislip. 

RECOMMENDATION 

Cabinet is asked to note the programme for the refurbishment and reopening 

of the public conveniences at Botwell Lane, Hayes and Manor Farm, Ruislip. 


To advise Cabinet on further details of the programme for the refurbishment and 

reopening of public conveniences as requested by Cabinet at its meeting held on 

12 th October 2005. 


To ask officers to prepare a different programme for the refurbishment and 

reopening of Botwell Lane and Manor Farm public conveniences. 

INFORMATION 

1. At its meeting held on the 12 th October 2005 Cabinet agreed to the 

refurbishment and reopening of public conveniences at Botwell Lane, Hayes and 

Manor Farm, Ruislip to ensure the earliest possible opening. 

2. Officers have appointed a specialist consultant, Dunlop Haywards to prepare 

specifications for tendering and the management of the refurbishments on site. 

Dunlop Haywards, who are used by Hillingdon Homes as a term consultant, have an 

excellent reputation for this type of refurbishment and will work closely with the 

Council’s Waste Development Manager who will have overall responsibility for the 

management of the public conveniences in operation. Dunlop Haywards propose to 

tender the works on the 28 th November 2005 with tenders being analysed during the 

period immediately before Christmas with a view to starting the works on the 9 th 

January 2006. Under Standing Orders the tender will require the approval of the 

Cabinet Member for Finance, Regeneration and Corporate Services. It is proposed 

that both projects will be organised as one contract of 10 weeks duration. 



3. The programme and method of procurement recommended by Dunlop 

Haywards is regarded by officers as realistic. 


4. The 2005/2006 Capital Programme includes a budget of £250k for disabled 

and older people's priorities. The proposed Public Conveniences mentioned in this 

report for re-opening will be funded from this budget. The revenue consequences of 

re-opening the proposed public conveniences are significant and dependant on the 

opening hours and whether mobile or static workers are used. The costs could be in 

the region of between £125k and £200k and would need to be included in next year’s 

budget setting process. If it is assumed that these premises re-open early in 2006, 

the consequent revenue cost falling within this year’s budget could be in the region 

of between £31k and £50k. The budget for public conveniences in 2005/2006 is fully 

committed. It is therefore anticipated that these additional costs will have to be met 

from the corporate risk contingency. 

5. It is understood that CCTV will be installed outside each of the planned sites. 

The CCTV capital budget of £203k has currently been prioritised of which £89k has 

been committed. The proposals set out within this report could be met from within 

this budget. The revenue monitoring report for month 5 is predicting an overspend of 

£25k for the CCTV service assuming that all projects are installed during this year. 



6. Any tendering exercise undertaken by Dunlop Haywards on behalf of the 

Council will have to be conducted in accordance with existing primary and secondary 

legislation,relevant Guidance and the Council's Procurement and Contract Standing 

Orders and associated Code of Practice. 


7. The main financial implications are set out in the body of the report. The 

revenue growth that the implementation of this project will require has not been 

included in the budget setting process to date, as this is a new initiative. It should 

therefore be regarded as an additional budget pressure that will need to be met from 

further savings or increased council tax. 

8. Should the public conveniences revenue budget overspend as a result of 

opening the facility in the current financial year, there is sufficient funding within the 

corporate risk contingency to meet this cost. 

9. CCTV installation for the exterior of these public conveniences would replace 

existing projects within the CCTV capital programme. The revenue costs associated 

with CCTV expansion have already been identified in the MTFF and so there are no 

new implications arising for budget setting. 



Corporate Property Services Implications 

10. The comments of Corporate Property Services are included within this report. 


Report to Cabinet 12 th October 2005 



PROPOSED CHARGING FOR PRE-APPLICATION 

ADVICE ON MAJOR DEVELOPMENT SCHEMES 

ITEM 12 



Kristina Butler / Geoff Elliott 

01895 277551 / 01895 250556 

Appendix 1 - attached 

SUMMARY 

This report sets out details of and seeks Cabinet approval for the introduction of 

charging for pre-application advice on major development schemes dealt with by the 

Planning and Transportation Group. 


That Cabinet: 

1. Approves the introduction of a charging regime for pre-application advice 

on prospective major applications as defined by BV109 (a) at the rates and on 

the terms and conditions set out in Appendix 1 attached. 

2. Approves the use of any funds received for reinvestment within the preapplication 

advice service without any adjustments to the Planning and 

Transportation Group base budget. 

3. Authorises that the Council’s own development schemes shall be exempt 

from the charging regime for pre-application advice. 

4. Authorises the Director of Planning and Transportation to introduce the 

charging regime for pre-application advice at the rates and on the terms and 

conditions set out in Appendix 1 when she considers it appropriate to do so. 


This report addresses the need for the Cabinet to be appraised of the option of local 

planning authorities charging fees for pre-application advice, and seeks to explain 

why it is considered appropriate to pursue this option within Hillingdon. It proposes 

that the charging regime is only introduced when the Director of Planning and 

Transportation is satisfied all the requisite arrangements are in place. 


The key options are as follows: 

(A) To agree to implement a charging regime for advice on prospective major 

applications, as defined by BV109 (a), on the terms and conditions set out in this 

report. 



(B) To agree to implement a charging regime for advice on prospective major 

applications, as defined by BV109(a), but on terms and conditions at variance 

with the contents of this report. 

(C) To decline to implement a charging regime for prospective major applications, as 

defined by BV109 (a), and for the Planning and Transportation Group to continue 

to provide pre-application advice at no cost to applicants. 

Further options include introducing charging for pre-application advice on 

development falling within the definitions of BPVI 109(b) and/or 109(c) although 

these are not recommended in this report. 

INFORMATION 

Background 

1. The Local Government Act 2000 gives local authorities a general power to 

promote the economic, social and environmental well being of local communities. 

Section 93 of the Local Government Act 2003 confers a general power to charge for 

discretionary services with the intention of allowing local authorities to recover costs, 

though not to generate a general surplus. The Regulatory Impact Assessment 

accompanying the Local Government Act 2003 suggests two potential charging 

options for planning: the first covering pre-application planning and development 

advice and the second concerning the diversion of rights of way. This report 

considers the first option of introducing a charging regime for pre-application advice 

on prospective major applications. 

2. Over and above the context of the Local Governments Acts of 2000 and 

2003, the ODPM, when commenting upon proposed planning application fee 

increases in the latter part of 2004, made it clear that it considers a planning service 

incorporates both public and private benefit and, more particularly, that development 

control, whilst aiming to promote some public good, has clear private benefits to 

applicants and, therefore, they should expect to pay a fee for something which will 

bring a measure of private gain. It was pointed out that the implementation of a 

charging regime is not about generating profit but, rather, spreading the costs of 

services across a wider market, thus creating a civic benefit. As such charging is 

viewed as helping local authorities meet their costs and so provide a better service. 

3. The ODPM has also issued good practice guidance on the need for local 

authorities to carefully consider the availability of and charging for planning 

information 1 . Although this guidance does not address charging for pre-application 

advice specifically, it emphasises how any proposed charging regimes must take 

account of the fact that they could exclude some members of the community from 

___________________________________________________________________ 

___________ 

1 Making the planning system accessible to everyone: Good-practice guidance on access to and 

charging for 

planning information – ODPM Sept 2004 



getting the information and advice they need. This is a central point when 

considering charging for pre-application advice and underpins the recommendation 

of this report to only levy fees for advice on prospective major development schemes 

where it is highly unlikely charging will exclude any user groups. 

Existing pre-application service in Hillingdon 

4. At present the Planning and Transportation Group provides free preapplication 

advice in essentially two different ways: 

5. The first is via a duty officer service which involves a dedicated duty planning 

officer being available between 9.00 am and 5.00 pm from Mondays to Fridays 

(and 9.00 am and 7.30 pm on Thursdays) to provide guidance to prospective 

applicants on small scale development (frequently householder development or 

similar and falling within the definitions of BVPI 109(b) and (c)). This service 

embraces related matters - such as assisting neighbours and others wishing to view 

and comment upon current applications - and has recently been extended by having 

a planning officer available for equivalent guidance and advice at Northwood Hills 

Library on Tuesdays between 10.00 am and 1.00 pm and at Hayes Library between 

the same hours on Thursdays. 

6. As a general comment, although a duty planning officer service is now 

commonplace in nearly all local planning authorities, the service provided by 

Hillingdon exceeds that of most authorities in London and beyond. 

7. The second important area of pre-application advice concerns major 

development schemes, falling within the definition of BVPI 109(a), provided by 

officers in either the Major Applications or the Projects and Implementation Teams 

through what is generally referred to as the development team approach. This 

service is triggered either by a telephone call or a letter from a major developer 

seeking a face-to-face meeting with the relevant officers to ascertain what Council 

policies and standards apply and, on occasion, to seek to explain why their 

proposals merit favourable consideration irrespective of Council policies and 

standards. In responding to such requests a case officer is identified within either 

Team and he/she is charged with liaising with the relevant specialist officers and 

setting up the requisite meeting. It is standard practice to seek details about the 

proposed scheme well in advance of the meeting - to enable officers to respond as 

authoritatively and comprehensively as possible - but this is not always feasible, not 

least when developers are only really ‘sounding out’ the local planning authority. 

8. The pre-application advice provided by officers in either Major 

Applications or Projects and Implementation Teams frequently involves further 

follow-up meetings with developers, as their schemes evolve, as well as detailed 

written responses confirming the nature of discussions at meetings and the key 

issues that need to be addressed. Advice of this nature - and the format in which it 

is provided - is standard to most local planning authorities and accords with 

Government guidance. However, it has a very significant impact upon Major 

Applications and Projects and Implementation Teams and specialist officer 



esources and can occupy up to a fifth of the relevant officers’ time in anyone 

working week. 

Pre-application service charges of other local planning authorities 

9. In spite of the legislative basis for doing so, as set out in paragraph 1 above, 

very few local planning authorities operate a charging regime for pre-application 

advice to prospective applicants. Moreover, there is no formal guidance on charging 

levels for those local planning authorities that levy fees or the administrative 

procedures that need to be put in place in such circumstances. At present only the 

London Boroughs of Westminster, Barnet, Hammersmith and Fulham, and Camden 

are known to be operating charging regimes even though others have expressed an 

interest or intent. No detailed study has yet been undertaken on the impact of 

charging for pre-application advice although those boroughs that have introduced 

charging regimes express the view that it has resulted in a more formalised, ordered 

and professional approach to pre-application discussions which in turn provides 

greater certainty to the development process. Individually or collectively they feel 

there are benefits regarding (i) early discussions of possible Heads of Terms of 

potential planning obligations (including early agreement to meet the local 

authorities’ costs associated with processing such obligations) and (ii) a reduction in 

enquiries which are little more than site valuations but which frequently involve a 

considerable amount of officer time. 

10. Westminster charge a flat rate fee of £2,000 for pre-application advice on 

any prospective major application as defined by BVPI 109(a). The advice consists of 

a meeting with senior officers and relevant specialist officers, with minutes taken as 

a record of discussions. Procedures are strictly adhered to with no guidance given 

without receipt of the relevant fee. 

11. Barnet charge a variable fee depending on the type of prospective application 

(major (BVPI 109(a)) or minor (BVPI 109(b)) and the officers in attendance. The 

standard fees are £1,000 for major developments and £500 for minor developments 

but additional charges are levied for the attendance at meetings of team leaders 

(£170) or section heads (£250) and a fee of £200 is charged for specialist officer 

attendance at site meetings. Additional fees are levied for additional meetings. As 

with Westminster, no guidance is given without receipt of the relevant fee, except in 

respect of prospective householder applications which is free of charge. 

12. Barnet’s pre-application service is publicised on the Council’s website and 

meetings are generally arranged within two weeks of any request for advice being 

received. Charging for pre-application advice was introduced in June 2004 and the 

fees received are used to further improve the pre-application service. 

13. Hammersmith and Fulham charge a variable rate depending on the 

nature of prospective applications. Advice on ‘Medium Scale/Complexity 

Development’ - generally falling within the definition of BVPI 109(b) - necessitates a 

fee of £650 and advice on ‘Major Scale/Complexity Development’ - as defined by 

BVPI 109(a) - necessitates a fee of £1,300. These initial, standard charges cover 

case officer preparation work, the pre-application meeting and written comments 



thereafter. Subsequent work is charged at an hourly rate with an hourly fee of £110 

for the Director and fees of between £44 and £90 per hour for other officers. 

Although, as with both Westminster and Barnet, the initial, standard fee must be paid 

prior to any meeting, additional charges are invoiced within 30 days of ‘final’ 

comment, with settlement within 21 days. Hammersmith and Fulham’s preapplication 

service is also publicised on the Council’s website. 

Pre-application service charging in Hillingdon 

14. Having regard to the legal basis provided by the Local Government Acts of 

2000 and 2003, allied to the ODPM’s view that the exercise of the planning control 

system has clear financial benefits to applicants - that they should pay a fee for 

something which will bring a measure of private gain - there are considered to be no 

objections in principle to Hillingdon charging for pre-application advice. Moreover, 

having regard to the service benefits it appears to have realised in other boroughs 

allied to the significant resource implications of Hillingdon’s current pre-application 

advice service, there are considered to be strong arguments in favour of this Council 

proceeding to introduce a pre-application charging regime. This holds true even 

though it is not possible to anticipate the take-up of advice under a pre-application 

charging regime or, therefore, the fees it would yield. 

15. There is a range of options regarding charging for pre-application guidance. 

These include: 

(A) The type of pre-application guidance that should be the subject of charging 

(B) Whether flat or variable fees should be levied and at what rate 

(C) When should the charging regime should be introduced and what key elements 

must be strictly adhered to. 

16. As regards (A) above, in view of the approach adopted by those boroughs 

with a pre-application charging regime and the call upon the time of Major 

Applications and Projects and Implementation Team and specialist officers in 

providing pre-application advice, it is recommended that a charge is levied for advice 

on prospective major applications falling within the definition of BVPI 109(a). 

Equally, in view of the approach adopted in other boroughs and having regard to the 

spirit of ODPM guidance in seeking to ensure no members of the community are 

excluded from the information and advice they seek, it is recommended that no 

charge is levied for any advice on householder or other small scale development 

falling within the definition of BVPI 109(c). Whilst recognising that scope clearly 

exists to charge for guidance on ‘minor’ development - as is the practice in both 

Barnet and Hammersmith and Fulham - it is recommended that this option is not 

implemented at this stage. Although arguably somewhat cautious, it avoids the 

potential difficulties and confusion as to what guidance should or should not be 

charged for - bearing in mind that some ‘minor’ development is too small to merit any 

charging - and it allows Group staff more opportunity to work through and resolve 

those issues that will inevitably arise from an important shift in operational practices 

in respect of major development proposals. Furthermore, it is not proposed now or 



in the foreseeable future that charging for pre-application advice would apply to this 

Council’s own development schemes. 

17. As regards (B) above, whilst there are clear merits in the single, flat rate 

charge levied by Westminster - not least from an administrative viewpoint - it is 

considered appropriate to charge variable fees that go some way towards reflecting 

the actual costs of providing the service in question. This is not to suggest that 

detailed hourly or even half-hourly charging rates are set and then applied for a wide 

range of officers - this would be difficult to administer - but that standard initial fees 

are levied for particular types of development with additional charges applied by 

virtue of the attendance of senior managers at pre-application meetings. This 

approach would resemble the charging models of Barnet and Hammersmith and 

Fulham and reflect the amount of time spent by the case officer (and specialist 

officers) in researching the history of undertaking a site visit; identifying the relevant 

London Plan and Council policies and standards; assessing proposals against these 

policies and standards; holding a meeting with the prospective applicants; and 

providing a detailed written response in the light of any plans provided and the 

associated discussions. For follow-up meetings the equivalent principles would 

apply, that is the charging of standard fees supplemented by additional charges 

arising from the attendance of senior managers at these meetings. 

18. The recommended charging regime for Hillingdon is as set out in Appendix 1. 

It has been formulated in the context of charges levied by other boroughs as well as 

estimates of staff costs on a selection of recent major development schemes. The 

fees received would be used to further improve the pre-application advice service. 

19. As regards (C) above, it is recommended that charging for pre-application 

advice for major development proposals is introduced at the earliest opportunity but 

only after the Director of Planning and Development is satisfied all the requisite 

guidance is in place, adequate publicity has been given to the new regime and 

staffing resources ensure a wholly professional service. These caveats should not 

give rise to any notable delays since guidance is already in preparation and staffing 

resources are at a level which is considered to be satisfactory. Similarly, it is not 

anticipated that publicity will delay implementation since this is also in preparation 

and it is not proposed to give substantial advance warning of the new regime since 

this may very well trigger a flurry of requests for pre-application advice in advance of 

the commencement date. 

20. It recommended that the guidance notes on the charging regime make it clear 

that fees must always be paid in full prior to any pre-application advice of any 

description being given. This is the practice of other boroughs and it is clearly 

essential if the charging regime is to function as intended. At a more general level - 

over and above specifying the charging rates - it is proposed that the guidance notes 

set out the nature of the service being offered and the information that prospective 

applicants should seek to provide to assist Group officers in providing a 

comprehensive and authoritative response. Crucially, the notes will stress that, 

notwithstanding the introduction of charging, the advice provided cannot be taken to 

prejudice the formal decision of the Council on any subsequent application. This last 

point should not give rise to particular difficulties since all developers know - or 



should know - this is always the case with pre-application discussions. However, 

charging may well result in higher expectations of the advice given as well as greater 

scrutiny - through, for example, the appeal process - when detailed and positive 

discussions do not secure a planning permission. 


21. It is very difficult to specify the sums that would be secured through 

introducing charging for pre-application advice on major development proposals. 

This is because there is no knowing whether prospective applicants would pursue 

their discussions with officers if they were being charged for them. That said, on the 

basis of evidence from boroughs operating a charging regime, most developers 

seriously considering site development tend to use the service on offer and it is only 

really highly speculative development proposals or enquiries emanating from site 

valuation exercises that become less frequent. This evidence, supplemented by the 

fact that charging represents an extremely small proportion of total site 

development costs for major schemes, indicates that the fees levied for preapplication 

advice have no impact on whether a site is developed or not. 

22. With the caveats set out in paragraph 21 above, it is estimated that 

potential income from charging for pre-application advice for major schemes in 

Hillingdon could yield in the order of £15,000 between December 2005 and March 

2006. This estimate, which equates to the cost of providing the service in question, 

is based upon the number of major applications normally received in any one year, 

the nature of these applications and a necessarily subjective view of the proportion 

of them where prospective applicants may wish to obtain pre-application advice. 

This judgement is clouded by the fact that some pre-application discussions are 

already underway - and introducing charging part way through this process may 

prove impractical - and the likelihood that some prospective applicants proposing to 

submit an application similar to one recently refused planning permission may simply 

focus their attention on the reasons for refusal without further reference to officers. 

In this context, more particularly the uncertainty surrounding the take-up of the 

service on offer, it is recommended not only that any fees received are used to 

improve the Group’s pre-application service but also, in this instance, that there is no 

downward adjustment in the Group’s base budget. This accords with the practices 

of other boroughs and the obligations of the relevant enabling legislation. 

23. Section 93(5) of the Local Government Act 2003 provides local 

authorities with discretion to charge only some persons for providing a service or to 

charge different persons different amounts for the provision of a service. In this 

case, it is proposed that the Council seek to exercise this discretion by exempting 

the Council’s own development schemes from the charging regime for preapplication 

advice. 

24. As noted in paragraph 1 above, by virtue of Section 93 of the Local 

Government Act 2003, income must relate to cost recovery of the service provided: 

charging must not be considered to be income generating or a source of revenue. 

This requirement underpins the charging rates set out in Appendix 1 and points up 

the need for careful monitoring and review to ensure continuing compliance. In this 



egard it is anticipated that a further report on the impact of the charging regime 

recommended in this report is presented to Cabinet in 12 months time with interim 

reports presented to the Cabinet Member for Planning and Transportation on a 

quarterly basis. 



25. The recommendation to begin charging for pre-application advice appears to 

be a measured and pro-active response to an opportunity provided by new 

legislation. The information in the body of the report indicates that the requirement 

that income must relate to the cost of the service provided is being fulfilled. This 

does not preclude the Council taking the additional income generated as a budget 

saving, provided that the total generated does not begin to exceed the costs of the 

service. 

26. In situations where the Council is able to generate additional income without 

needing to deliver additional services, there are two broad options available in terms 

of how the income is reflected in the Council’s budget. The default position is 

expected to be that the additional income is used to reduce the net cost of the 

service to the Council Tax payer, by reducing the relevant Group’s cash limit 

accordingly. Alternatively the Group could retain the additional income to direct 

towards the immediate service area, which is the equivalent of agreeing growth for 

the service. This approach is expected to be the exception to the general principle. 

27. Given the relatively small total income currently projected, and the high 

priority given to investing in Planning and Transportation in recent years, the 

recommendation that the income generated is reinvested in the service area, subject 

to subsequent review of the totals involved, is supported by Corporate Finance. 


28. The legal implications are set out in the body of the Report (particularly 

at paragraphs 1-3 and paragraph 23). 


29. No formal, external consultations have been carried out in respect of this 

report. However, informal liaison and consultation has been undertaken with those 

local planning authorities that have introduced charging regimes for pre-application 

advice. 


London Borough of Barnet ‘Charges for Pre-application Advice’ Leaflet 2004 

London Borough of Hammersmith and Fulham ‘Charging for Pre-application Advice’ 

Guidance Note 2005 



The Planning Service: Costs and Fees. ODPM Research Paper November 2003 

Making the planning system accessible to everyone: Good practice guidance on 

access to and charging for planning information. ODPM September 2004 

Changes to the system of Planning Fees in England. ODPM Consultation Paper - 

September 2004 

Further proposed changes to the system of Planning Fees in England. ODPM 

Consultation Paper - December 2004 



PROPOSED CHARGING RATES FOR PRE-APPLICATION ADVICE ON MAJOR 

DEVELOPMENT SCHEMES 

CATEGORY A DEVELOPMENT 

APPENDIX 1 

• Residential schemes of over 50 units 

• Retail, commercial and industrial schemes on sites of 2 hectares or more 

• Educational, hospital, leisure and recreational schemes on sites of 2 hectares 

or more 

• Schemes with 2 or more land uses on sites of 1.5 hectares or more 

• Changes of use of building(s) with a gross floor area of 1,500 sq. ms. or more 

• Any schemes requiring an EIA 

Standard charge for Category A Development: £1500 

Additional hourly charges for the attendance at the pre-application meeting of 

the following officers: 

Director (£250) 

Head of Service or Team Manager (£150) 

Specialist Officers (Highways, Urban Design/Conservation, 

Trees/Landscape, Section 106, Planning Policy) (£100 each) 

CATEGORY B DEVELOPMENT 

• Residential schemes of between 10 and 49 units 

• Retail, commercial and industrial schemes on sites of between 1 hectare and 

1.999 hectares 

• Educational, hospital, leisure and recreational schemes on sites of between 1 

hectare and 1.999 hectares 

• Schemes with 2 or more land uses on sites of between 1 hectare and 1.499 

hectares 

• Changes of use of building(s) with a gross floor area of between 1,000 sq. 

ms and 1,499 sq. ms. 

Standard charge for Category B Development: £800 

Additional hourly charges for the attendance at the pre-application meeting of 

the following officers: 

Director (£250) 

Head of Service or Team Manager (£150) 

Specialist Officers (Highways, Urban Design/ Conservation, 

Trees/Landscape, Section 106, Planning Policy) (£100 each) 



Standard charge for each follow-up meeting: 

£750 (for Category A Development) and £400 (for Category B Development) 

Additional hourly charges for the attendance of particular senior and specialist 

officers at follow-up meetings as specified above. 

TERMS AND CONDITIONS 

• All of the above charges would be exclusive of VAT. VAT would be 

chargeable at the standard rate of 17.5%. 

• Standard fees plus VAT would be paid prior to any meeting 

• Additional charges arising from the attendance of senior and specialist 

officers at pre-application meetings would be invoiced within 30 days of the 

meeting. Invoices would have to be settled within 21 days 

• Cheques would be made payable to the London Borough of Hillingdon 

SERVICE PROVIDED 

• Prospective applicants seeking pre-application advice would be required to 

complete a ‘Request for Pre-application Advice’ form that would form part of 

a ‘pack’ setting out the terms and conditions and other details of the service 

on offer 

• ‘Request for Pre-application Advice’ forms, and the information pack of which 

they would form part, would be available in Group reception as well as 

accessible for downloading from the Council’s website 

• On receipt of a fully completed form and the requisite fee a case officer from 

the Major Applications or Projects and Implementation Teams would be 

identified and given the task of co-ordinating the provision of the preapplication 

advice service for the scheme in question 

• The case officer would 

- research the history of the site 

- undertake a site visit 

- identify and assess the prospective application against Council policies 

and standards 

- arrange and attend a meeting with the prospective applicants 

- provide a detailed written response in the context of the plans provided 

and meeting discussions 

QUALIFICATION 

Prospective applicants would be advised that the pre-application advice would 

not prejudice the formal decision of the Council on any subsequent planning 

application submitted in respect of the site. 



BUDGET – MONTH 6 2005/6 REVENUE & CAPITAL 

MONITORING 

ITEM 13 

Contact Officer Paul Whaymand 01895 556074 


None 

INTRODUCTION 

1 This report sets out the overall 2005/6 revenue and capital position of the authority. 

The revenue forecast at the end of month 6 (September) is that net expenditure will be £27k 

more than budgeted, which is an adverse movement of £1,259k compared to month 5. 

2 The £27k forecast overspend assumes that the £1,154k uncommitted development & 

risk contingency and £584k salaries contingency are used to mitigate currently identified and 

quantified pressures rather than be used to fund new or increased pressures. There are 

further risks and assumptions contained in the report that could generate adverse variances 

during the second half of the financial year. 

3 Budgeted capital expenditure is currently £19.4m lower than budgeted capital 

resources in 2005/06, but £8.3m higher over the three years covered by the programme. 

4 The net variance of £4.4m for the combination of capital expenditure (£6.2m 

favourable) and resources (£10.6m adverse) reduces the budgeted surplus for 2005/06 from 

£19.5m to £15.1m. Over the three years covered by the programme the net combined 

expenditure and resource variances are £2.1m adverse at present. When this is added to 

the £8.3m excess of previously budgeted expenditure over budgeted resources, there is an 

estimated programme shortfall of £10.4m to be remedied or funded. 

SUMMARY 

Revenue 

5 The report on revenue monitoring as at Month 6, September 2005, shows that 

forecast net expenditure for the year 2005/6 is £27k more than the budget. This is an 

adverse movement of £1,259k on the month 5 position. This change is due worsening 

projections from both Social Services & Housing, and Education, Youth & Leisure. 

6 The Social Services and Housing net overall forecast for Period 6 has moved 

adversely by £910k primarily due to significant demand pressures in Housing Benefit 

services, Looked After Children and in Social Care packages for vulnerable people. There is 

also continuing concern that LBH will be unable to recover all costs incurred in supporting 

UASC Asylum spend. 

7 EYL is projecting an overspend of £458k, an adverse movement of £370k on the 

£88k reported in month 5. This adverse movement is primarily due to net forecast pressure 

within Special Education Needs (SEN) on home to school transport. The gross pressure on 

home to school transport is £900k, but other offsetting underspends within the service 

including unspent contingency reduce the overall pressure within SEN to £470k. 



8 Environment and Consumer Protection are still projecting a small underspend of 

£10k. A £60k pressure has been identified relating to graffiti removal but this has been 

funded by a £30k increase in the projected licence fee income and a £30k windfall income 

from a contractor on Parkway car park. 

9 Planning and Transportation are projecting a small overspend of £5k mainly due to 

pressures on legal costs offset by increased development control income. 

10 The forecast overspend for the Central Departments has reduced from £35k to £20k 

due to an improved forecast position for the Chief Executives Office. 

11 The latest projections for financing costs indicate that in total there is a forecast net 

pressure of £372k, unchanged from month 5. 

12 £339k of the £2,000k Development and Risk Contingency has already been allocated 

by Cabinet so far this year. As part of this report there are recommendations to apply a 

further £7k to cover a further payment to NOTRAG and additional costs of the festive lights 

programme. In addition it is forecast that £500k will need to be allocated in relation to 

uninsured claims during the course of the year. The assumption built into the month 6 

forecast is that the £1,154k remaining balance on the contingency fund will be utilised to 

mitigate overspends elsewhere. 

13 All Groups are now actively working on delivering their vacancy targets. The 

assumption built into monitoring is that the £1,584k target will ultimately be delivered so the 

£584k salaries contingency held corporately will not be called upon and will therefore be 

used to mitigate pressures currently identified. 

14 The balances carried forward at the 31 March 2006 (excluding the provision for 

uninsured claims of £2,020k) are now forecast at £8,172k. 

Capital 

15 Council approved the three-year capital programme for 2005/06 to 2007/08 as 

£241m in total, of which £98.5m was programmed for 2005/06. A review of project 

expenditure has reduced the total to £240m. As a result of the Capital Investment Strategy 

Group’s (CISG) exercise to reprofile expenditure into later years (-£5.1m) and changes to 

specific resources (+£1.2m), there has been a net decrease in the 2005/06 budget of £3.9m, 

making the current budget £94.6m. 

16 The report sets out the overall 2005/06 to 2007/08 capital expenditure forecast, at the 

end of month 6 (September), as being £10.4m higher than estimated resources. The £1.0m 

increase since Month 3 is mainly due to the following: 

• £1.5m reduction of the Heritage lottery fund grant, 

• £2m increase in estimated outturn for Hillingdon House Farm 

• £2m increase in expenditure for Botwell Green Hayes Stadium awaiting 

formal approval of budget at Full Council in Feb 2006, 

partly offset by: 

• £1.8m estimated outturn deferred to 2008/09 following the MTFF 

recommendation that the Local Authority Social Housing Grant 

Programme (LASHGP) is deferred by 1 year, 



• £1.7m capital programme contingency not allocated yet, and 

• £1.1m decrease in estimated outturn for Disabled Facilities Grants 

(DFG). 

17 The projected £10.4m deficit is due to estimated expenditure rising by £17.1m, while 

estimated resources have only increased by £6.7m. This risk is already being managed 

through a combination of deferred spending and increased disposals. However, in order to 

bring spending fully into line with resources across the three years of the programme, 

projects will need to be reprioritised in alignment with the council’s strategic objectives. This 

work is already underway and will form part of the budget setting process that is coordinated 

through the Medium Term Financial Forecast (MTFF). 


Revenue 

18 Directors provide Cabinet Members with options to ensure any forecast 

overspend on revenue budgets for the current year is reduced to bring it back in line 

with the approved budget. 

19 That the following allocations be agreed to be made from contingency: 

• £5k to cover a further payment to NOTRAG in support of their campaign 

against the third runway at Heathrow. 

• £2k to cover additional costs of the festive lights programme. 

Capital 

20 Cabinet note that the estimated outturn for the HHF Uxbridge Lido project is 

expected to exceed resources by £3.5m. This is because estimated resources have 

decreased by £1.5m (the HLF grant is now anticipated to be £0.5m instead of £2m), 

and the projected cost of the project is now £2m higher. 

21 Cabinet agrees the reprofiling of the HRA expenditure (£886K increase in 

2005/06, £369K increase in 2006/07 and £1,255K decrease in 2007/08). This is already 

reflected in the budget above. 

22 Cabinet agrees the £1.1m decrease in expenditure for Disabled Facilities 

Grants (DFG). This is already reflected in the budget above. 

23 Cabinet agrees the MTFF recommendation that the Local Authority Social 

Housing Grant Programme (LASHGP) is deferred by 1 year, so that £2.48m is deferred 

from 2005/06 to 2006/07, £3.54m from 2006/07 to 2007/08 and £1.78m from 2007/08 to 

2008/09. 

24 The Social Services 2005/06 budget is reduced by £250K following the 

rescoping of the Homecare Monitoring Software project. 

25 The Social Services 2005/06 budget is reduced by £78K following the 

cancellation of the Modernisation of Vacant Property project. 



26 £20K budget for the works to the contaminated land at Park Lodge Farm be 

transferred from the Programme Contingency budget. 

27 Officers continue to investigate options for deferring (or rephasing into 

2009/10) and reducing the scope of those projects funded from general resources to 

rebalance the capital programme. 


Revenue 

28 The reason for the revenue monitoring recommendation is to ensure the Council 

achieves its budgetary objectives. The report informs Cabinet of the latest forecast revenue 

position for the current year 2005/6. 

Capital 

29 The Council is already committed to implementing the HHF project and while it is 

possible that costs may be contained within budget, it is likely that the projected overspend 

will significantly affect the rest of the capital programme. 

30 This decision matches HRA resources to forecast HRA expenditure. 

31 The change in the ratio of council resources to grant to 60:40 in 2006/07 and then 

50:50 in 2007/08 will move towards a combination of resources that reflects the match 

funding cap level. 

32 Reprofiling LASHG expenditure positively affects the capital financing costs in the 

MTFF. This action will bring those costs into line with proposals in the current budget 

strategy. 

33 The budgets for the Homecare Monitoring Software and Modernisation of Vacant 

Property projects are no longer required and this decision will free up resources to support 

the rest of the Capital Programme. 

34 The works at Park Lodge Farm are a condition of sale. The asset was sold in the last 

financial year. 

35 The current capital funding gap needs to be resolved as part of the MTFF so that any 

requirement for additional revenue resources to meet capital financing costs can be included 

in the budget setting for 2006/07. In order to minimise the impact on services and council 

tax, options for containing the cost within the capital programme must be considered. 


36 There are no other options proposed for consideration. 


37 There are no comments at this stage. 



REVENUE MONITORING MONTH 6 

Directorates’ Forecast Expenditure 

38 Table 1 below shows Budget, Forecast and Variance at Directorate level now 

reported and the total position on the Directorates’ budgets. 

Table 1 

2005/06 

Original 

Budget 

Budget 

changes 

(Note 1) 

2005/06 

Current 

Budget (as 

at Month 6) 

Directorate 2005/06 

Forecast 

Variances (+=Extra 

spend or Less Income / 

(as at Month 6) - = less costs or greater 

income) 

Variance Variance (As 

(As at month 

6) 

at Month 

5) 

£000 £000 £000 £000 £000 £000 

174,147 5,318 179,465 Education Youth & 179,923 +458 +88 

Leisure 

95,826 5,226 101,052 Social Services & 101,972 +920 +10 

Housing 

40,525 1,172 41,697 Environment and 41,687 -10 -10 

Consumer 

Protection 

3,439 160 3,599 Planning & 

3,604 +5 +18 

Transportation 

13,762 916 14,678 Central Services 14,698 +20 +35 

327,699 12,792 340,491 Directorates' 

Expenditure 

Note 1 

341,884 +1,393 +141 

“Budget Changes” incorporates allocations from the inflation provision and allocation of development and risk 

contingency, which are further detailed later in the report. 

39 The budgetary position for each Directorate is as follows: 

Education Youth & Leisure £458k overspend (£370k adverse) 

40 Education, Youth & Leisure has identified the actions to be taken to address the 

budget issues referred to earlier in the year. The main change for this month is the shortfall 

in the Home to School Transport budget. 

41 The main risks reported in previous months regarding John Penrose’s budget deficit 

have been resolved (see comments under school below). 

42 The projected variances at present are summarised on the following table. 



Division of Service 

Projected 

variance at 

Month 6 

£’000 

Change 

from 

month 5 

£’000 

Schools -100 -100 

Finance & Resources +180 0 

Lifelong Learning (including Youth) 0 0 

Standards and Inclusion +327 +470 

Libraries and other Cultural Services +21 0 

Director’s Services +30 0 

Total +458 +370 

Schools: £100k underspend (£100k improvement) 

43 In previous months, it was identified that there was a deficit of £0.150m when the 

school closed in August 2005, but that it was expected that the pupil count in September 

2005 would probably generate sufficient claw back of budget from other schools to cover this 

deficit. The pupil count has taken place and there has been an overestimation of pupil 

numbers by a sufficient margin to cover the £0.150m deficit, as intended. 

44 The full amount of claw back from schools has been, subject to further detailed 

checking, in the region of £0.250m. After taking account of the deficit of £0.150m at John 

Penrose, this leaves £0.100m left. It is possible that this could be retained and not 

redistributed to schools. The effect of this would be that there would be an under spend in 

this area, which would offset other budget pressures within the Group, in particular, the one 

relating to Home-School Transport, which is being quantified for the first time this month. 

Finance & Resources: £180k overspend (No change) 

45 This represents no change on the reported position for month 5. The Finance Team 

has operated with agency staff for a longer period than anticipated this financial year. 

Moreover, the capacity problems in delivering the team’s responsibilities in managing the 

implementation of the new school funding arrangements and a backlog of financial 

accounting issues have resulted in two additional temporary posts being recruited. 

Lifelong Learning: Nil (No change) 

46 The Adult Education Service has been working on strategies for producing a 

balanced budget for 2005/06 financial year. The service experienced a major overspend in 

2004/05 academic year, but the adverse impact affected 2004/05 financial year only, rather 

than also affecting 2005/06 financial year. So, the service has been able to work on plans to 

reach a balanced position by taking action with effect from September 2005. 

47 The service expects to break even during 2005/06 with the approach that was 

explained in the commentary for month 5. 



48 Officers are still pressing the local Learning and Skills Council to make a contribution 

to the overachievement of learner numbers for 2004/05 academic year. A budget clinic will 

be held to agree how the action plan developed by the service will be monitored. 

Standards and Inclusion: £327k Overspend (£470k Adverse) 

49 The service is showing an overspend of £327k for the year, a change from £143k 

underspend on Month 5. The main reason for the change is the £470k net pressure in the 

Home to School Transport budget. 

50 The existence of a gross pressure of £900k, before mitigating action, is being 

investigated through a series of performance clinics. This pressure has been identified using 

two budget forecasting models and, therefore, can be verified as a pressure. The gross 

pressure is accounted by the following: 

a Ongoing pressure arising in 2004/05 £305k 

b No Easter holiday at all in 2005/6 leading to 10 extra transport days. £201k 

c Reduction in budget in 2005/06 that has proved unachievable. £100k 

d Additional price inflation from 3% to 5% £120k 

e Further price & volume increases £174k 

(This includes full year effect of overspending in the previous year and is being 

analysed at present for any further explanations) 

TOTAL £900k 

51 This gross pressure of £900k is planned to be reduced to a lower net figure through 

the following measures: 

• A saving of £50k has been identified from a more rigorous application of the 

letter of the Transport Policy, 

• £180k from use of free bus passes for children under 16 

• £200k from the SEN contingency fund. 

52 It is likely that after this offset a budget pressure of around £470k may remain. 

Officers are continuing to consider further savings in this area, principally through: 

• Consideration of the entitlements of individual pupils to home-school transport 

and how the practice can adhere more strictly to the policy; 

• Consideration of how procurement can generate some further efficiencies, 

such as in the area of how we manage the taxi firms who provide much of the 

transport, and how we engage escorts. 

53 The risk of not being able to resolve the budget issue on an ongoing basis has been 

included in the current MTFF. 

54 The two other components of the section budget position were included in the report 

for Month 5 and they are: 

• Personnel team reporting an under spend on the staffing and premature 

retirement compensation budget (-£180k); and 

• The Music Service’s requirement to comply with the national agreement on 

teachers having time for Planning, Preparation and Assessment time (+£37k). 



Libraries & Cultural Services: £21k overspend (no change) 

55 There have been a number of smaller items that were identified by managers within 

Cultural Services earlier in the year and managers have been asked to absorb those costs. 

Within the Leisure Facilities Team, this includes being able to absorb pressures because the 

trend in income across the service is up and it is currently expected to break even. There 

remains a risk, however, that the trend will not be sustained and this will be monitored in 

future months. 

56 The £21k pressure in One-Stop services remains due to potential difficulties with the 

receipt of income from a single user. 

Directors Services: £30k overspend (no change) 

57 The forecast overspends are £30k for Directorate Support Team costs arising from 

the work supporting Joint Area Review, Children’s Services reorganisation plans and Annual 

Performance Assessment. 

Social Services and Housing Department £920k overspend (£910k adverse) 

58 The Social Services and Housing net overall forecast for Period 6 has moved 

adversely by £910k primarily due to significant demand pressures in Housing Benefit 

services, Looked After Children, and in Social Care packages for vulnerable people. There 

is also continuing concern that LBH will be unable to recover all costs incurred in supporting 

UASC Asylum spend. 

59 The Housing forecast has moved adversely by £236k (Housing Benefits) due to a 

revised projection of costs following an increase in the Benefits caseload and consequent 

Benefit payments to claimants. 

60 The forecasts reflect the action plan reported to Cabinet on 8th September which 

totalled £1.17m of management action, and the individual Service projections now reflect the 

full achievement of these savings with the exception of Learning disability which is detailed 

below. The remainder of the £1.17m is being covered by use of a contingency sum of £950k 

set aside for the Housing Benefit Subsidy claim. The M5 report set out the risks of this 

strategy. 

61 The pressures on Social Services reflects the national pressures on both children 

services and services to vulnerable adults as evidenced in national research jointly 

undertaken by ADSS, LGA and Local Government Treasurers Association. Officers 

continue to explore further options for spending reduction building on the progress to date on 

delivery of the current action plan. The impact of this will be factored into the M7 forecast 

and reported to the December cabinet. 

62 The pressure on Housing benefits is as a result of a number of factors, e.g. since 

2003/04 Benefit payments have increased from £90m to the current forecast of £108m. In 

common with other Authorities the cost for individual claims has risen due to rent increases 

in the private and public sector, Council Tax increases, and changes in Benefit Regulations 

which have increased personal allowances, premiums and disregards taken into 

consideration when calculating HB & CTB. In addition there has been an increase in the 

numbers of benefit claimants: from 18,310 (2001) to 19,823 (2005). The national take-up 



campaign by Government to ensure all those entitled to Housing and Council Tax Benefit 

are claiming this benefit appears to have had an impact on this pressure along with joint 

working initiatives with the DWP. 

63 This increasing pressure is expected to continue due to the introduction of the 'Single 

Gateway' initiative. This involves joint working with the Pensions Service (currently going 

live) and Job Centre Plus (live date Feb 06) which enables a claimant to complete one form 

for all forms of benefit, including HB and CTB. 

Social Services: 

64 The Social Services net overall projection for Period 6 is an overspend of £1,688k, an 

adverse movement of £674k from Period 5. The table below sets out the position at Period 

6 and change from month 5: 

Forecast 

Variance Month 

6 

£000 


Change from 

Month 5 

£000 


Children & Families Division +1,260 +133 

Asylum Seeker Services 0 0 

Older Peoples Services +343 +210 

Physical & Sensory Disability Services +465 +203 

Learning Disability Services -210 +134 

Mental Health Services -82 -21 

Other Adult Services -13 -0 

Supported Employment Services +29 +9 

Concessionary Fares 0 0 

SSR & Directors Office +1 -3 

Support Services -205 +9 

Corporate and Capital Recharges +100 0 

Social Services TOTAL +1,688 +674 

Children & Families: £1,260k overspend (£133k adverse) 

Forecast 


6 

£000 

Change from 

Month 5 

£000 


Social Services +1,688 +674 

Housing +182 +236 

Sub Total +1,870 +910 

Housing Subsidy Adjustment -950 0 

Group Total +920 +910 

65 This adverse movement results primarily from an increase in placements for Looked 

After Children and there are concerns that this trend will continue resulting in further adverse 

movements over the remainder of this financial year. In addition there remains continued 


pressure from Heathrow for non-UASC work which continues to have an adverse financial 

impact estimated at over £100k so far this year. To illustrate, in the first 6 months of this 

calendar year alone, we have needed to look after 75 children arriving at Heathrow. 

66 We are currently caring for 37 non-UASC children on an ongoing basis who arrived 

via Heathrow. To put this within the Hillingdon context, our local Looked After population 

currently stands at 327 children, the non-UASC Heathrow cases therefore inflate this 

number by more than 10%. The Council is lobbying Government on this issue to secure 

appropriate levels of funding. 

67 We have recently been advised that the Immigration and MPS Ports Safeguarding 

Team at Heathrow, funded by the Home Office, will be launching the “Kingston Pilot” at the 

end of this month. This pilot will scrutinise the adequacy arrangements for every child 

arriving from Jamaica unaccompanied or otherwise. We are in no doubt this will lead to a 

further rise in Heathrow children coming into this authority’s care, as will the intention to rollout 

the pilot further to many other countries. None of this work receives any recognition or 

funding from government. 

Asylum Seekers £0k breakeven 

68 Current assumptions are that this service will be fully funded from the grants 

available. 

69 However, the ongoing development of the service in line with requirements following 

the Judicial Review coupled with the inadequacy of the funding formula, particularly in 

relation to care leavers, is causing increasing pressure on the service. The financial risk to 

the Council in this service area continues to be evaluated and our initial conclusions are that 

it will be increasingly difficult to meet our statutory responsibilities within the ASG regime. 

The Council is lobbying Government on this issue to secure appropriate levels of funding. 

Older Peoples Services: £343k overspend (£210k adverse) 

70 The adverse movement reflects continued demographic pressure on this vulnerable 

group and particularly, significant pressure is being experienced on the Nursing Home 

budget this service is expected to continue to experience increasing demand pressures over 

the remainder of the year. 

Physical Disabilities: £465k overspend (£203k adverse) 

71 This adverse movement reflects increasing demand, complexity of care needs and 

demographic pressures on services that help people with multiple disabilities to live at home. 

The pressure on the Direct Payments service continues to rise due to additional service 

users. The Homecare service has experienced an increase in demand, which, while lower 

than last year, has resulted in increased average costs as a direct result of the higher 

dependency levels of service users. 

72 Pressure from vulnerable people arriving at Heathrow for which the Council is 

required by statute to provide a service continues and is already £50k above the level of 

spend in 2004/05. The Council is lobbying Government on this issue to secure appropriate 

levels of funding. 



Learning Disabilities & Supported Employment: £181k underspend (£143k adverse) 

73 This adverse movement is due to the slippage of the action plan to bring service 

users placed in residential care outside of the Borough and whose reviews have identified 

this as the preferred option back into Hillingdon. Although we continue to progress this 

action it is taking longer than expected to implement. Unfortunately placements previously 

identified for this purpose have been utilised for unplanned emergencies. 

Mental Health: £82k underspend (£21k improvement) 

74 There has been no significant movement from last month. 

Support Services: £205k underspend (£9k adverse) 


Corporate Recharges: £100k overspend (no change) 


Housing £182k overspend (£236k adverse) 

77 The Housing net overall projection for Period 6 is showing an overspend of £182k, an 

adverse movement of £236k from Period 5. The adverse movement is due to a revised 

projection of costs following an increase in the Benefits caseload and consequent Benefit 

payments to claimants. The table below sets out the position at Period 6. 

Forecast 


6 £000 

Change from 

Month 5 £000 


Benefits +568 +247 

Homelessness -332 +58 

Caravan Sites +11 +4 

Other Housing Services -65 -73 

Housing TOTAL +182 +236 

Housing and Council Tax Benefit: £568k overspend (£247k adverse) 

78 In month 5 an overspend of £321k was projected and reported and this was broadly 

in-line with the month 4 projection. The reason for the projected overspend was mainly 

increased administration costs incurred in order to improve the Benefits performance. Much 

of this additional cost is staff related. 

79 There were also other factors that contributed towards the extra cost including lower 

overpayment recovery and higher Benefit payments. The latest projections have recognised 

the continuing increase in caseload and projected this trend throughout the remainder of the 

year. Higher rent levels have also been used. The greater certainty about the impact of the 

new subsidy system has now enabled a more realistic projection which forecasts an 

additional net spend on Benefits payments of £247k in this year. 



80 This increases the total overspend on Benefits to £568k. The gross budget for 

benefits this year is some £108m. This includes benefit payments to claimants, subsidy 

income from government recovery of overpayments and costs of processing benefit claims. 

There are a number of risks with this budget that is demand led and the net cost to the 

council is very dependent upon the levels of subsidy and effective recovery of 

overpayments. 

Homelessness: £332k underspend (£58k adverse) 

81 A key factor in monitoring the homelessness budget is forecasting income levels with 

the movements in the size and mix of the temporary accommodation portfolio. The level of 

income is dependent upon the mix of properties procured, the associated rent and 

minimising the period that the properties are void. A reduction in the number of properties in 

line with demand has led to higher than average void levels. 

82 While it is forecast that the net budget will be £332k underspent, there are a number 

of risks to be managed. These include: 

• Maintaining the procurement programme for temporary accommodation; 

• Control of void periods, to maintain budgeted levels of rent income; 

• Ensuring that suitable properties are procured to match the demand for 

temporary accommodation; 

• Continue with the substantial reduction in homelessness acceptance levels. 

Caravan Site: £11k overspend (£4k adverse) 

83 Ongoing additional staffing cost to cover sickness and an increase in utility costs. 

Housing Services: £65k underspend (£73k improvement) 

84 This favourable movement is as a result of additional income following a review of 

income levels; ongoing vacancies and additional capitalisation to Public Service Agreement 

(PSA) resources. 

Planning & Transportation £5k overspend (£13k improvement) 

85 A projected overspend of £5k is forecast for month 6, a £13k improvement on month 

5. The position is summarised in the table below: 


Forecast 

Variance 

Month 6 

£’000 

Change 

From 

Month 5 

£’000 

Development Control -75 0 

Support Services – Legal Services +80 -13 

TOTAL +5 -13 

Development Control: £75k underspend (no change) 

86 Currently the income from Development Control is above the budget. The regular 

monitoring of the weekly income from planning fees would indicate that this level of income 



above budget is likely to be maintained for at least another quarter of the year. From 1 st 

April 2005, a new increased planning fee regime was introduced by the ODPM. The Head of 

Planning and Transportation has prepared a Cabinet Member report on the implications of 

the increased fees for the service and this will be considered by Cabinet at the meeting on 

15 December 2005. 

Support Services: £80k overspend (£13k improvement) 

87 At the end of the financial year 2004/05, the budget for Legal services was reduced 

down to reflect actual chargeable hours for legal officers. As a result of this budget reduction, 

the P&T group overspent by £50k, which was able to be absorbed within the P&T budget 

due to the rigorous budget monitoring that had occurred during 2004/05. Based on Legal 

Services estimates for work being requested by the department for 2005/06 it was identified 

that against current budget provision there would be an overspend at year end of £69k. 

Based on current level of charges and on a straight-line forecast that overspend is likely to 

increase to £80k a reduction of £13k from month 5. Discussions are continuing with Legal 

Services to ensure costs are contained within a cash limited budget. 

Local Land Charges: breakeven 

88 At month 6, Land Charges is underachieving on the income budget by £24k, an 

increase of £11k from month 5. It is expected that this shortfall will reduce and that by year 

end income will be on budget. However, as in previous years due to market fluctuation this 

area requires close monitoring of its budget. 

Environment & Consumer Protection £10k underspend (no change) 

89 A projected underspend of £10k is forecast for month 6. The position is 

summarised in the table below: 


Forecast 

Variance 

Month 6 

£’000 

Change 

From 

Month 5 

£’000 

Public Health & Environmental Services -80 0 

Licensing -115 -30 

Highways & Transport Services -75 0 

Open Spaces -30 -30 

Car Parking - Revised Charges +80 0 

Car Parking - Staff Based Costs +50 0 

CCTV Service +25 0 

Support Services – Legal Services +75 0 

Street Cleansing +60 +60 

TOTAL -10 0 

Public Health & Environmental Services: £80k underspend (no change) 

90 A further £50K growth was allocated to this budget head in respect of 4 additional 

superloos in 2005/06 in addition to the £125,000 allocated in 2004/05. Two units damaged in 

transit from France will have to be made to order again and are unlikely to be available for 



installation until January 2006. Officers are therefore forecasting that there will be an 

underspend of £80k this year. This saving will not occur in 2006/07. 

Licensing Income: £115k underspend (£30k improvement) 

91 Additional income is being received in respect of the new licensing regulations and 

the need for all licensed premises to re-apply this year. This increased income will not occur 

in 2006/07. 

Highways and Transport Services: £75k underspend (no change) 

92 The review of Car Park income trends indicates a sustained increased level of 

income in some areas of the Borough after taking account of seasonal trends a surplus of 

£100K offset by the shortfall of income arising from the pilot ‘free parking’ scheme operating 

in the Ruislip area (£25k). 

Open Spaces: £30k underspend (£30k improvement) 

93 Windfall income of £42k has been received for the Parkway car park for the use by 

the contractor. Of this sum £12k is required for mitigation work leaving a balance of £30k. It 

is proposed that this £30k is used to create a Green Spaces Graffiti Removal Budget. This 

will offset the budget pressure identified in the Street Cleansing paragraph below. This sum 

will only be available this year. 

Car Parking - Revised Charges: £80k overspend (no change) 

94 Cabinet considered a report on the September Agenda in respect of High Street 

Ruislip – Parking Scheme Review, Parking Fees and Charges in shopping areas. Cabinet 

decided to implement revised car parking fees and charges from December 2005. The 

reduced income in 2005/06 is estimated to be £80k. A growth pressure bid for £120k is 

included in the E&CP MTFF for 2006/07 and future years. 

Car Parking – Staff Based Costs: £50k overspend (no change) 

95 Staff are to be based in the Cedars and Grainges car parks to undertake regular 

patrols, assist the public and improve standards of cleaning and graffiti removal. This is 

estimated to cost £50k in the current year and will be funded from the additional licensing 

income. As this income will only occur in the current year a growth bid for £90k is included in 

the E&CP MTFF for 2006/07 and future years. 

CCTV Service: £25k overspend (no change) 

96 This service is forecasting a total overspend of £25K which comprises of the 

unfunded costs of monitoring the CCTV cameras in and around the Civic Centre complex 

and providing the 24-hour out of hours service for all Council Groups. These costs have 

been contained within the service area in previous years however it will not be possible to 

continue this situation due to rising operational costs. The projected overspend also 

includes the additional revenue costs associated with the introduction of new CCTV 

schemes during the year which have been funded from the Council’s capital resources. 



Support Services – Legal Services: £75k overspend (no change) 

97 There has been a significant increase in the costs and volume of work commissioned 

through the internal legal service. If actual costs for 2005/06 are consistent with the 2004/05 

charges an overspend of £75K will occur. Discussions are continuing with Legal Services to 

ensure costs are contained within a cash limited budget. 

Street Cleansing: £60k overspend (£60k adverse) 

98 In comparison with previous years, there has been an increase in instances of graffiti 

over the summer period, which has continued into the autumn. In previous years the number 

of instances has reduced in the late autumn/winter period. On the assumption that this trend 

will happen this year there will be an overspend this year of £60k. If the current level does 

not reduce there will be further pressure on this budget. The situation is being monitored 

and, if necessary, further reports will be submitted. It is likely that an MTFF bid will be 

required for 2006/07. This bid will include the continuation of the Green Spaces Graffiti 

Removal budget identified in the Open Spaces paragraph above. 

Central Services £20k overspend (£15k improvement) 

99 Central Services budgets are projecting an overspend of £20k, an improvement of 

£15k on month 5. Finance and Property Services are still projecting an overspend of £55k 

due to not being able to fully absorb abnormal increases in utility costs (for the Civic centre) 

over the amounts budgeted to be recharged to Groups, although some significant 

movements have taken place within the individual service budgets. The Chief Executives’ 

Service is reporting an underspend of £35k, which is an improvement of £15k on the figures 

reported in month 5. An analysis of the forecast for month 6 is summarised in the following 

table: 


Forecast 

Month 6 

Change 

from 

Month 5 

£’000 

£’000 

IT Services +15 0 

Personnel Service 0 -15 

Legal Services -20 0 

Democratic Services -30 0 

Chief Executive’s Total -35 -15 

Corporate Property Services -8 +82 

Facilities Management +90 -2 

Finance Services +70 -30 

Savings Proposals -97 -50 

Finance and Property Services Total +55 0 

Total Central Services +20 -15 



Legal Services: £20k underspend (no change) 

100 As reported last month, the growth item of £20k to appoint a part time lawyer will not 

be required. It is anticipated that the workload can be covered within existing resources (this 

has also been built into the MTFF). 

Democratic Services: £30k underspend (no change) 

101 As reported last month only £85k of the £115k growth for Remedial Work with 14 – 

17 year olds will be required in this financial year due to a delay in its implementation. 

However, next year, the full balance will be required and transferred to Social Services. 

Corporate Property Services: £8k underspend (£82k adverse) 

102 A number of pressures have resulted in a deterioration of £82k in the projected 

position for Corporate Property Services although it is still projecting an underspend of £8k. 

103 There is a forecast pressure of £24k on the Uxbridge Industrial Estate, which has a 

history of short term tenancies, resulting in some difficulties in maximising commercial 

properties income, which is expected to result in a shortfall in income of £12k. The further 

£12k relates to costs associated with the re-opening of the car park on this site. 

104 There is a £20k pressure relating to the abortive auction costs of farm machinery, 

which were previously planned to be sold. 

105 An £88k budget pressure is projected due to the underrecovery of projected income, 

relating to service contracts (£30k), fee income from Council projects (£28k) and private 

income from Schools (£30k). 

106 These pressures are offset by an estimated £140k saving from the capitalisation of 

staff time spent on asset disposals. 

Facilities Management: £90k overspend (£2k improvement) 

107 Facilities Management are forecasting a net £90k budget pressure. As reported last 

month there is still a continuing pressure on the Civic Centre utility costs (£116k) and 

premises insurance (£15k). The contract for electricity is due to be updated in November 

2005, where it has been assumed that a price increase of 50% will be applied. Gas prices 

increased by 50% in November 2004 and the full year effect of this increase is apparent in 

2005/06, and the latest forecast anticipates that the cost will exceed the budget by £16k. 

Along with the increase in the price of electricity, the useage within the civic centre is also 

going up as the occupancy of the building increases, and it is anticipated that this will result 

in a budget pressure of £100k. Some steps are being taken to reduce electricity and gas 

consumption but the full pressure is unlikely to be absorbed. 

108 A further budget pressure exists in Catering Services of £56k, due to a reduction in 

volumes of Community and Dining Centre meals, which is anticipated to result in an 

overspend of £33k. The balance relates to a one off redundancy cost of £23k. 

109 These overspends can be offset by savings totalling £97k, which are currently 

anticipated within the cleaning services budget (£30k), due to a review and realignment of 



the cleaning services budget and charging mechanism, the Office Services budget (£21k), 

where proactive management of staff vacancies and non-employee costs will deliver the 

projected saving, and by agreeing to charge staff time to the Civic Centre restack 

programme resulting in a transfer of £46k to the capital programme. 

Finance Services: £70k overspend (£30k improvement) 

110 A number of steps have been taken to address previous pressures reported on 

salaries and in most instances the budget pressures within services are being contained 

within budget. 

111 However, there is a forecast pressure of £90k in Internal Audit where the 

restructuring of the team to deliver critical service improvements has resulted in a budget 

pressure. In particular, difficulties have been experienced with recruiting to the Chief 

Internal Auditor post which has meant that the vacant post has been covered for an 

extended period of time. An appointment has recently been made but the anticipated start 

date is not until February 2006. Keeping this post filled is essential to delivering 

improvements to nternal Control. Further difficulties have also been experienced in 

appointing a computer auditor, which has led to the decision to contract this service out to a 

private company. Both of these actions are linked to the CPA Use of Resources and 

comments made within the external auditor’s management letter, which makes this action 

essential. 

112 The pressure in Internal Audit is partly offset by a net saving of £20k on the External 

Audit Fees, relating to savings in the audit of grant claims. 

Finance and Property Services savings proposals: £97k underspend (£50k 

improvement) 

113 A number of savings measures have already been implemented to absorb some of 

the pressures identified during the course of the year. However, despite this there are still 

significant pressure remaining within these services. In an attempt to bring the budget back 

in line, a further exercise is currently underway to list all vacant posts and consider again the 

remaining agency staff employed with a view to prioritising them against the needs of the 

service and draw a line to achieve the required £97k saving. 

Corporate Budgets’ Forecasts 

114 Table 2 shows budget, forecast and variance now reported on corporate budgets i.e. 

inflation provision, external interest earned, capital financing costs and the Development & 

Risk Contingency. 



Table 2 

2005/06 

Original 

Budget 

Budget 

changes 

2005/06 

Current 

Budget 

(as at 

Month 

5) 

Corporate Budgets 

2005/06 Variances 

Forecast (as (+=Extra spend or 

at Month 6) Less Income) / - = 

indicate less 

costs or greater 

income 

Variance Variance 

(as at (as at 

Month 6) Month 5) 

£000 £000 £000 £000 £000 £000 

12,792 -12,792 0 Inflation Provision 0 0 0 

2,000 0 

Developments 

2,000 Contingency 846 (1,154) (1,161) 

584 0 584 Salaries Contingency 0 (584) (584) 

(703) 0 (703) HIP Savings (703) 0 0 

(405) 0 (405) Interest on Balances (405) 0 0 

8,306 0 8,306 Financing Costs 8,678 +372 +372 

(44,311) 0 (44,311) Asset Management A/c (44,311) 0 0 

(21,737) 0 (34,529) Corporate Budgets (35,895) (1,366) (1,373) 

Corporate Budget Variance:- £1,366k underspend (£7k adverse) 

115 The inflation provision has been fully allocated out to services. This allocation was in 

line with the base budget as the inflation rates for salaries and levies were known in advance 

of budget setting. 

116 The latest projections for financing costs indicate that in total there is a forecast net 

pressure of £372k. This net pressure comprises a £349k pressure on external interest costs 

and a £23k pressure on the Item 8 credit apportionment (apportionment of interest received 

between the General Fund and the HRA). This forecast has not changed from month 5. 

117 £2,000k was set aside in the Developments and Risk Contingency for 2005/6. The 

following table shows the items that were identified in budget setting as being potential calls 

on contingency and also shows what has already been allocated or committed. 

2005/06 

Budget 

Allocated 

or 

committed 

2005/06 allocations: £’000 £’000 

Uninsured Claims 500 (500) 

Demand led service pressures 500 0 

Local Development Framework 

150 0 

consultancy / legal fees 

Homelessness 300 0 

Benefits 180 0 

Provision for unachieved savings 300 0 

Hillingdon Improvement programme 400 (295) 



(HIP) 

Heathrow Third Runway costs 100 (15) 

Unexpected items & risk management 

issues 

570 (36) 

Total Potential Calls 3,000 846 

Total Contingency Available 2,000 2,000 

Likely balance at year end 1,154 

118 £270k of HIP contingency allocations were forwarded for agreement by Council at 

the June Cabinet meeting (£110k for the Customer Access Project, £30k for the 

development of a team based bonus scheme, £39k for the recruitment to Head of 

Communications, £15k for People Management and £76k to fund costs of the central HIP 

team). 

119 The September Cabinet agreed a further £25k from the HIP contingency for the 

Management of Contractors project, £10k to NOTRAG in support of the campaign against 

the Third runway at Heathrow, £5k to fund the Council’s contribution to the current legal 

challenge against night flights, £5k for one-off ceremonial expenditure in the Mayor’s Office 

and £24k towards the cost of festive decorations in town centres in Hillingdon. 

120 The recommendations in this report are for a further £5k to be released to fund a 

further payment to NOTRAG and £2k for additional costs of the festive lights programme. 

121 Projections indicate that the £500k uninsured claims figure earmarked in contingency 

will be required in full. The assumption built into the month 6 forecast is that the remaining 

balance on the contingency fund of £1,154k will be utilised to mitigate overspends 

elsewhere. 

122 The Salaries Contingency of £584k was generated at Council Tax setting by cutting 

the staffing budget by £1,584k by introducing a 2% corporate vacancy factor but only taking 

£1,000k as a saving. The remaining £584k forms a Corporate Contingency against nonachievement 

of the vacancy factor. The month 6 position assumes that this contingency will 

not be called upon as Groups are working towards delivering their vacancy targets. 

OVERALL FINANCIAL POSITION 

123 Table 3 indicates the overall impact of the expenditure forecasts now reported on the 

approved budget and the resulting balances position. The balances carried forward at the 

year-end are forecast at £8,172k, £27k less than that assumed in the 2005/6 budget after 

including unallocated Development & Risk contingency of £1,154k and unallocated Salaries 

Contingency of £584k. 



Table 3 

2005/06 

Original 

Budget 

Budget 

changes 

2005/06 

(As at Month 6) 

Current 

Budget 

Forecast 

Variances (+=Extra 

spend or Less Income 

)/- = less costs or 

greater income 

Variance 

(as at 

Month 6) 

Variance 

(as at 

Month 5) 

£000 £000 £000 £000 £000 

327,699 12,792Directorates’ 340,491 341,884 +1,393 +141 

Expenditure 

(21,737) (12,792)Corporate Budgets (34,529) (35,895) (1,366) (1,373) 

305,962 0Total Net 

Expenditure 305,962 305,989 +27 (1,232) 

306,602 0Budget 

Requirement 306,602 306,602 0 0 

(640) 0Deficit / (Surplus) (640) (613) +27 (1,232) 

(7,559) 0Balances b/f 1/4/05 (7,559) (7,559) 0 0 

(8,199) 0Balances c/f 

31/3/06 

(8,199) (8,172) +27 (1,232) 

CAPITAL PROGRAMME 

Table C1: Current 3 Year Capital Programme 

Group 

05-06 3 Years 05-06 to 07-08 

Budget Estimated 

Outturn 

Variance Budget Estimated 

Outturn 

Variance 

£000 £000 £000 £000 £000 £000 

- Housing Revenue Account 32,356 32,356 0 86,408 86,408 0 

- Housing General Fund 5,806 3,327 -2,479 17,090 15,318 -1,772 

- Social Services 2,275 1,648 -627 4,949 4,621 -328 

Subtotal SSH 40,437 37,331 -3,106 108,447 106,347 -2,100 

Education, Youth & 

34,569 32,274 -2,295 87,213 92,547 +5,334 

Leisure 

Environment & Consumer 11,699 11,589 -110 23,635 23,525 -110 

Protection / Planning & 

Transportation 

Finance & Property 3,178 2,887 -291 6,464 6,240 -224 

Chief Executive's office 4,098 4,098 0 9,640 9,640 0 

Programme Contingency 388 0 -388 2,061 0 -2,061 

Risks 252 252 0 1,202 2,252 +1,050 

Total 94,621 88,431 -6,190 238,662 240,551 +1,889 

Resources 114,066 103,514 +10,552 230,318 230,148 +170 

+Risks / -Opportunities -19,445 -15,083 +4,362 +8,344 +10,403 +2,059 



SUMMARY 

124 The report sets out the overall 2005/06 to 2007/08 capital expenditure forecast at the 

end of month 6 (September), as being £10.4m higher than estimated resources. The £1.0m 

increase since Month 3 is mainly due to the following: 

• £1.5m reduction of the Heritage lottery fund grant, 

• £2m increase in estimated outturn for Hillingdon House Farm 

• £2m increase in expenditure for Botwell Green Hayes Stadium awaiting 

formal approval of budget at Full Council in Feb 2006, 

partly offset by: 

• £1.8m estimated outturn deferred to 2008/09 following the MTFF 

recommendation that the Local Authority Social Housing Grant 

Programme (LASHGP) is deferred by 1 year, 

• £1.7m capital programme contingency not allocated yet, and 

• £1.1m decrease in estimated outturn for Disabled Facilities Grants 

(DFG). 

125 The projected £10.4m overspend is due to changes in estimated expenditure and 

resources that are detailed in Table C13. This risk is already being managed through a 

combination of deferred spending and increased disposals. However, in order to bring 

spending fully into line with resources across the three years of the programme, projects will 

need to be reprioritised in alignment with the council’s strategic objectives. This work is 

already underway and will form part of the budget setting process that is co-ordinated 

through the Medium Term Financial Forecast (MTFF). 

Table C2: 2005/06 and total programme variance 

Reason for variance 2005/06 

LASHGP deferred by 1 year, so that the work due to 

take place in 05/06 to 07/08 will now end in 2008/09. It is 

recommended that the budget is also deferred by 1 year. 

Social Services - £0.33m spend is no longer required for 

the cancelled Modernisation of Vacant Property project 

(£78K) and the re-scoped Homecare Monitoring 

Software project (£250K). It is recommended that the 

Social Services budget is reduced by this amount. A 

further £0.3m 2005/06 spend is expected to be deferred 

to 2006/07. 

Education, Youth & Leisure (EYL) - 

£2.3m predicted underspend in 2005/06 due to: 

• School Improvement Programme (NDS Condition and 

Modernisation) rephased to 06/07 

• Replacement of Library Computer System rephased 

to 06/07 and 07/08 

• Manor Farm heritage project deferred spend 

• Primary expansions 

• Expansions Post 16 brought forward from 2006/07 

• Devolved Formula Capital brought forward from 06/07 

• Other smaller variances totalling £0.03m 

£000 

3 Years 

05/06-07/08 

£000 

-2,479 -1,772 

-627 -328 

-3,480 

-200 

-100 

-140 

+1,000 

+600 

+25 



Reason for variance 2005/06 

£5.3m overall additional spend due to: 

• £1.5M reduction in the HLF grant for Hillingdon House 

Farm and a further £2m predicted overspend. 

• Awaiting formal approval of additional £2m budget for 

Botwell Green Hayes Stadium by full Council (Feb 06) 

• Primary expansions 

• Seed Challenge Standards fund to Devolved Schools 

• Other smaller variances 

• Finance and property - reduction in capital 

maintenance contingency in 2005/06. 

• Other increases in estimated expenditure in 2005/06. 

£000 

-273 

-18 

3 Years 

05/06-07/08 

£000 

+3,500 

+2,000 

-140 

-170 

+144 

-273 

+49 

Programme Contingency not yet committed -388 -2,061 

ECP - Reduction in ECP estimated expenditure in 

2005/06 - £66K for Goulds Green toucan crossing, and 

£31K for Highways Maintenance Programme. Other 

-110 -110 

£13K. 

Risk re outstanding legal claims in 2006/07 0 +1,050 

Total -6,190 +1,889 

126 Although the estimated resources are expected to exceed estimated expenditure by 

£15.1m in 2005/06, there are net predicted shortfalls in resources of £17.1m in 2006/07 and 

£8.4m in 2007/08 (net programme total of £10.4m). The prediction of resources available for 

financing in 2005/06 assumes that a further £20m of capital receipts will be achieved. This 

represents officers’ best estimate, but there is always the risk that sales will not be 

completed in the anticipated timescale. Given that a large proportion of the receipts are 

predicated on the sale of one site, it is prudent to allow sufficient resource capacity so that 

projects can continue even if the planned sale is not achieved within the current financial 

year. 

127 Funding for the £10.4m programme risk has not yet been identified, so maintaining 

current spending plans would require additional prudential borrowing. This is illustrated by 

the growth of the capital financing requirement (see Prudential Indicators at paragraph 141) 

in each of the three years of the programme. This reflects the additional borrowing that 

would be required to fund the programme and is the driver for finance costs. These revenue 

costs would exceed those forecast in the current MTFF as illustrated in the table below. 

Table C3: revenue impact of funding gap through unsupported borrowing 

2006/07 

£000 

2007/08 

£000 

2008/09 

£000 

Current MTFF 2,139 4,700 6,558 

Growth required 807 1,160 1,436 

128 The additional finance costs would be unavoidable and displace any competing 

pressures for service growth. However, officers anticipate that the actions outlined at the end 

of paragraph 17 will resolve this problem with no impact beyond that in the current MTFF. 



129 The table below summarises the 2005/06 budgetary changes that have occurred as 

a result of reprogramming and funding changes after June 2005. 

Table C4: Changes to 2005/06 Capital Budget 

Group 

Budget per 

June 

Cabinet: 

Reprogram 

ming 

Additional 

funding: 

Revised 

Budget: 

(£000's) (£000's) (£000's) (£000's) 

Housing Revenue Account 31,470 886 32,356 

Housing General Fund 5,740 66 5,806 

Social Services 3,546 -1,271 2,275 

Subtotal SSH 40,756 -385 66 40,437 

Education, Youth & Leisure 37,529 -3,300 340 34,569 

Environment & Consumer Protection / 12,000 -252 -49 11,699 

Planning & Transportation 

Finance & Property 3,402 -204 3,198 

Chief Executive's office 4,425 -327 4,098 

Programme Contingency 388 -20 368 

Risks 0 252 252 

Total 98,500 -4,236 357 94,621 

130 Changes to the capital budget comprise reprogramming £5.1m from 2005/06 to 

future years partly offset by £0.9m HRA spend bought forward from 2006/07 and £0.4m of 

additional funding. These changes have decreased the capital budget from £98.5m to 

£94.6m. 

Table C5: Month 6 Expenditure Vs Profiled Budget 

Group YTD budget YTD actual YTD variance (actualbudget) 

£000 £000 £000 % 

Housing Revenue Account 14,929 13,277 -1,652 -11% 

Housing General Fund 1,644 1,172 -472 -29% 

Social Services 490 185 -305 -62% 

Subtotal SSH 17,063 14,634 -2,429 

Education, Youth & Leisure 13,325 13,027 -298 -2% 

Environment & Consumer Protection 2,363 2,585 +222 9% 

Finance & Property 795 668 -127 -16% 

Chief Executive's office 744 978 +234 31% 

Total 34,290 31,892 -2,398 

131 The month 6 actual expenditure of £31.9m represents 36% of the total estimated 

outturn for 2005/06. Although we are midway through the year this should not cause 

concern as some projects are expected to start during the year. The £1.7m favourable HRA 

variance is mainly due to works to existing stock deferred until later in the year. 



Key Projects 

132 Management Board chose 19 projects that it considered to be vital to the delivery of 

the council’s priorities, which are listed below. 

Table C7: Traffic lights for key capital projects 

Group Project Time Cost Quality 

Business 

Benefits 

P&T Environmental Improvements Programme G G G G 

(Chrysalis) 

EYL Botwell Green Leisure Centre G G G 

EYL School Improvement Programme New not on register yet 

SSH Learning Disability Modernisation G A G G 

CEO HIP Customer Access G G G G 

EYL Hillingdon House Farm: Uxbridge Lido G R G 

EYL Frays/Brookfield G G G 

EYL Ruislip High School G G G G 

EYL School Places New not on register yet 

EYL Schools Access Initiative A G G G 

EYL Formula Capital Developed to Schools New not on register yet 

EYL Expansions Post-16 A A G A 

EYL Abbotsfield Targeted Capital Funding G G G G 

EYL Hayes Manor Targeted Capital Funding G G G G 

SSH Decent Homes (not started yet) G G G G 

SSH HRA New Build/Purchases: Garages & 5 A G G G 

Small Sites 

SSH Replacement Children’s Respite Care Home Not on register yet 

CEO HIP Flexible Working G G G G 

CEO HIP E-Delivery G G G A 

133 A number of projects have some of their project management delivery criteria traffic 

lit amber. It is normal that at some stage projects will encounter difficulties that the project 

manager will resolve, returning the traffic light to green. Where projects have traffic lights 

that are persistently amber or red, the relevant Group Project Board, or in more serious 

cases the Corporate Project Board, will provide additional support to resolve the problem. 

Any such actions will be featured in the Exception Reporting section below. The status 

reports for the HHF and Frays/Brookfield projects have not identified if they are on track to 

deliver their business benefits. The PSO will contact the project sponsors to provide this 

information. 

134 The scope of the Replacement Children’s Respite Care Home project has changed, 

so the deliverables agreed in the original Project Initiation Document (PID) are no longer 

appropriate for measuring progress. A revised PID with new deliverables and a revised 

timescale is currently being prepared and progress against this will subsequently be 

reported. 



135 The principal variances in Table C8 below are explained in Table C2 above. 

Table C8: financial information for top 19 capital projects 

Group Project 

05-06 3 Years (05-06 to 07-08) 

Budget Estimated 

Outturn 

Budget Estimated Variance 

Outturn (+=Extra 

Spend/ - 

= Less 

Spend) 

Variance 

(+=Extra 

Spend/ - = 

Less Spend) 

(£000's) (£000's) (£000's) (£000's) (£000's) (£000's) 

P&T Chrysalis 1,055 1,050 -5 2,821 2,821 0 

EYL 

Botwell Green Leisure 

500 500 0 12,004 12,004 0 

Centre 

EYL 

School Improvement 

4,908 1,429 -3,479 10,323 10,323 0 

Programme 

SSH 

Learning Disability 

250 52 -198 1,906 1,906 0 

Modernisation 

CEO HIP Customer Access 687 687 0 1,991 1,991 0 

Subtotal Top Five Projects 7,400 3,718 -3,682 29,045 29,045 0 

EYL 

Hillingdon House Farm: 

Uxbridge Lido 5,000 5,000 +0 19,633 23,133 +3,500 

EYL 

EYL 

EYL 

EYL 

EYL 

EYL 

EYL 

EYL 

SSH 

SSH 

SSH 

Frays/Brookfield AEC 

Ruislip High School 

School Places 

1,847 1,847 +0 2,207 2,207 +0 

7,342 7,342 -0 20,746 20,746 0 

1988 2004 +16 2,264 2,280 +16 

Schools Access Initiative 

Programme 191 276 +85 798 798 -0 

Formula Capital 

Developed to Schools 

2,550 3,168 +618 4,416 4,410 -6 

Expansions Post-16 

635 1,641 +1,006 2,885 2,885 0 

Targeted Capital Funding 

03/4 expansion post 16 - 

Abbotsfield 1,249 1,152 -97 1,249 1,249 0 

Targetted Capital Funding 

03/4 - Hayes Manor 

enhanced learning 

environment 2,996 2,996 +0 2,996 2,996 +0 

Works to Existing Stock 

(incl Decent Homes) 28,723 28,723 0 78,476 78,476 0 

HRA New 

Build/Purchases: Garages 

& 5 Small Sites 3,075 3,075 0 6,274 6,274 0 

Replacement Children’s 

Respite Care Home 

(Copperfield) 351 351 0 1,170 1,170 0 



CEO 

HIP Flexible Working 

969 969 0 1,573 1,573 0 

CEO HIP E-Delivery 

121 121 0 223 223 0 

Total Key Projects 64,437 62,384 -2,053 173,955 177,466 +3,511 

Other Projects 30,184 26,047 -4,137 64,707 63,085 -1,622 

Total 94,621 88,431 -6,190 238,662 240,551 +1,889 

Exception Reporting 

136 No projects have been flagged as persistently red (red for three successive months 

for any indicator) so there are no comments from the Project Support Office. 

137 Consequently, there is no feedback from the Corporate Project Board (CPB) on 

corrective action it is taking or recommendations for Capital Investment Strategy Group 

(CISG). 

Table C10: Change in 2005/06 capital resources 

Resource Type 

05-06 

Original Rephasing/ 

Budgeted slippage 

Resources from 2004/05 

change to 

specific 

resources 

Current 

Budgeted 

Resources 

(£000's) (£000's) (£000's) (£000's) 

Capital Receipts -GF 30,431 4273 34,704 

Capital Receipts - HRA 3,605 3,605 

Single Capital Pot 5,501 5,501 

Prudential Borrowing 8,650 540 9,190 

General Fund Revenue 0 114 114 

Subtotal General Resources 48,187 4,813 114 53,114 

Supported Borrowing 26,046 348 26,394 

Capital Grants 9,190 6,584 15,774 

Third Party Contributions 1,938 321 2,259 

HRA (including MRA) 16,619 886 (980) 16,525 

Subtotal Specific Resources 53,793 886 6,273 60,952 

Total Resources 101,980 5,699 6,387 114,066 

138 Changes to capital resources comprise additional capital receipts and prudential 

borrowing carried forward from 2004/05, £4.2m primarily as a result of slippage at year end, 

£0.5m additional prudential borrowing, £0.9m additional HRA funding bought forward from 

2007/08, and additional funding of £6.4m. These changes have increased the budgeted 

resources from £101.98m to £114.1m. The £6.4m additional funding has arisen as follows: 

• +£2.8m additional grants for schools 

• +£2.9m additional Borough Spending Plan (‘BSP’, funded by Transport for 

London) grant 

• +£0.7m PSA grant 

• +£0.85m other grants 

• -£1m HRA funding 



• +£0.1m other 

• +£6.4m net increase. 

Table C11: Analysis of 2005/06 capital resources 

Resource Type 

Current 

Budgeted 

Resources 

Resources 

available 

now 

05-06 

Further 

Resources 

likely to be 

obtained 

Total 

Estimated 

Outturn 

Resources 

Estimated 

Outturn 

Expenditure 

Variance 

(+=Resource 

deficit/ - = 

Resource 

surplus) 

£000 £000 £000 £000 £000 £000 

Capital Receipts -GF 34,704 9,154 20,194 29,348 12,579 -16,769 

Capital Receipts - HRA 3,605 1,272 633 1,905 3,605 +1,700 

Single Capital Pot 5,501 5,501 - 5,501 5,501 0 

Prudential Borrowing 9,190 9,190 - 9,190 9,190 0 

General Fund Revenue 114 114 114 100 -14 

Subtotal General 

Resources 53,114 25,231 20,827 46,058 30,975 -15,083 

Supported Borrowing 26,394 26,394 - 26,222 26,222 0 

Capital Grants 15,774 12,450 12,450 12,450 0 

Third Party Contributions 2,259 2,259 - 2,259 2,259 0 

HRA (including MRA) 16,525 16,525 16,525 16,525 0 

Subtotal Specific 

Resources 60,952 57,628 - 57,456 57,456 0 

Total Resources 114,066 82,859 20,827 103,514 88,431 -15,083 

139 Estimated outturn expenditure is only shown as a variance against Capital Receipts 

as all of the other expenditure is limited to the actual resources. General Fund capital 

expenditure receipts in 2005/06 are £5.4m lower than budget. However, the capital 

expenditure is estimated to be a further £16.8m lower than estimated receipts. There has 

been no change in HRA receipts since last quarter. Nevertheless this forecast is subject to a 

degree of volatility as the council tenants who have exercised their right to buy have over a 

year in which to decide whether to take up their offers, which makes completion dates 

difficult to predict. 



Table C12: Estimated capital resources 2005/06 to 2007/08 

Resource Type 

Estimated Outturn Resources 

05-06 06-07 07-08 

3 yr Estimated 

Outturn 

Resources 

3yr Estimated 

Outturn 

Expenditure 

Variance 

(+=Resource 

deficit/ - = 

Resource 

surplus) 

£000 £000 £000 £000 £000 £000 

Capital Receipts -GF 29,348 23,050 7,810 60,208 68,761 +8,553 

Capital Receipts - HRA 1,905 1,148 773 3,826 5,690 +1,864 

Single Capital Pot 5,501 3,996 4,089 13,586 13,586 0 

Prudential Borrowing 9,190 9,500 7,500 26,190 26,190 0 

General Fund Revenue 114 - - 114 100 -14 

Subtotal General 

Resources 46,058 37,694 20,172 103,924 114,327 +10,403 

Supported Borrowing 26,222 15,741 11,300 53,263 53,263 0 

Capital Grants 12,450 11,140 3,576 27,166 27,166 0 

Third Party Contributions 2,259 - - 2,259 2,259 0 

HRA (including MRA) 16,525 15,146 11,865 43,536 43,536 0 

Subtotal Specific 

Resources 57,456 42,027 26,741 126,224 126,224 0 

Total Resources 103,514 79,721 46,913 230,148 240,551 +10,403 

140 The table above shows that the net gap on capital widens to a £10.4m deficit across 

the programme as a whole as shown in the table below. This is due to a combination of 

lower sale values for assets, rising costs for a few projects, and some additional unbudgeted 

capital expenditure being undertaken at the end of 2004/05. 

Table C13: 2004/05 – 2007/08 expenditure and funding changes 

Change to 2004/05 – 2007/08 Budget £000 

Funding capital expenditure in holding accounts 

- Hillingdon House Farm: Uxbridge Lido 1,061 

- Brookfield AEC 282 

- Victoria Hall 200 

1,543 

Capitalisation 709 

Sub total: additional 2004/05 expenditure 2,252 



Change to 2004/05 – 2007/08 Budget £000 

Increase in estimated expenditure outturn of £2m and £1.5m decrease in grant 3,500 

from HLF for HHF Uxbridge Lido in 2006/07 

Increase in estimated outturn for Botwell Green Leisure Centre awaiting formal 2,000 

approval of additional £2m budget at Full Council in Feb 2006 

Reduction in estimated HRA capital receipts 1,864 

Decrease in other grants 1,652 

Increase in projected expenditure on Schools net of increase in grants 1,512 

Risk re outstanding legal claims 1,050 

Increase in projected expenditure on Manor Farm heritage restoration project 

565 

net of increase in grants 

Decrease in projected GF capital receipts 563 

Estimated outturn for LASHGP is deferred by 1 year -1,772 

Programme Contingency not allocated yet -1,673 

Decrease in estimated outturn for project Improvement Grants (DFG) -1,140 

Other - mainly increase in capital receipts for actual sales 30 

Sub total: changes to 2005/06 - 2007/08 expenditure / resources 8,151 

Total Risk - Increase in Estimated Outturn Expenditure less increase in 

resources 

10,403 

141 Hillingdon is required to set a prudent, sustainable and affordable capital programme. 

It is not prudent to assume that the gap can be addressed through slippage, as this would 

require underspends of 5% on the part of the programme funded from general resources in 

2006/07, and an underspend of 42% in 2007/08. The percentage underspend in 2007/08 

has increased significantly since that reported in the June report as a result of reprofiling 

expenditure from 2005/06. This has deferred the balance of the risk of exceeding resources 

into 2007/08. While this mitigates the effect of this risk on the current revenue budget setting 

process (as additional funding would be provided through prudential borrowing), it is still 

significant and will be addressed through the MTFF. 

Prudential Indicators 

142 A selection of prudential indicators is shown for 2004/05 and the three years of the 

programme in the table below. 



Table C14: Prudential Indicators 

2004/05 

Actual 

£000 

2005/06 

Estimate 

£000 

2006/07 

Estimate 

£000 

2007/08 

Estimate 

£000 

Capital Financing Requirement (CFR) 

General Fund 115,936 135,983 147,048 159,177 

HRA 20,319 35,978 50,684 60,745 

Total 136,255 171,961 197,732 219,922 

Ratio of financing costs to net 

revenue stream 

General Fund 2.42% 2.82% 3.12% 3.63% 

HRA 0.02% 1.80% 3.39% 4.26% 

Operational Boundary 

External debt 128,100 156,700 184,800 203,800 

Other long term liabilities 5,878 8,839 8,839 8,839 

Total 133,978 165,539 193,639 212,639 

143 The year on year increase in the CFR indicates the continuing need to borrow to fund 

the capital programme. The HRA continues to share an increasingly large proportion of this 

debt because government funding for the ALMO Hillingdon Homes is provided via revenue 

support for borrowing. The total CFR for Hillingdon reflects the fact that capital spending 

plans over the period are not yet fully funded, which automatically increases the underlying 

need to borrow. In turn, this will result in higher statutory charges to revenue for the 

repayment of debt and higher external interest costs for the actual debt. Higher voluntary 

charges will also be required if Hillingdon is to demonstrate its statutory requirement to set a 

sustainable capital programme that has regard to long term asset management. These are 

the additional finance costs illustrated in the summary section at the beginning of the report. 

However, the capital financing requirement has reduced since last quarter in line with a 

lower estimated outturn. 

144 The ratio of financing costs to net revenue stream illustrates the increasing proportion 

of the net revenue budget that capital financing costs will come to represent. It is important 

to note that these costs represent a long-term commitment for the authority that will not be 

diminished by reducing capital expenditure in future years. 

145 The operational boundary for external debt represents the likely maximum value of 

borrowing for the given year assuming debt is only incurred for long term investment (i.e. 

capital expenditure) and short term cash flow movements plus an allowance for the principal 

element of any finance leases (Hillingdon has two sets: one for Ealing Family Housing 

Association, and another for its vehicle fleet). Again, the steady rise in external debt reflects 

the continuing need to borrow to finance the capital programme. The change in other longterm 

liabilities is due to the inclusion of the PFI contract for Barnhill secondary school within 

long term liabilities. 





The finance comments are contained in the body of the report. 

Legal 

There are no legal implications arising from this report. 

Background Documents 

Monitoring reports 



THE GREAT BARN, MANOR COURT, 

HARMONDSWORTH 

ITEM 14 

Contact Officer P. Holmes 01895 250933 


Plan- attached 

Condition report – attached in Part 2 of the agenda 

SUMMARY 

The Great Barn at Harmondsworth is a Grade I Listed Building and a Scheduled 

Ancient Monument (1 of only 5 in the Borough) located within the Harmondsworth 

Village Conservation Area and also within a designated Archaeological Priority Area. 

The private owners of The Barn went into liquidation and then receivership in 

October 2004. Deloitte & Touche, the Receivers, are administrators of The Barn and 

their property agent responsible for disposal has offered it to the Council to purchase 

at nil cost. 

Following the decision of the Cabinet Meeting held on 12 th October 2005 the report 

on the property procured from the specialist conservation surveyor has now been 

received, and the advice and repair and maintenance works costs require a report 

back to Cabinet. This survey was necessary as there was no such specialist 

expertise within the Council and it was required to establish the viability of any 

potential acquisition of The Barn. English Heritage have agreed to contribute over 

40% of the consultant specialist’s fees. The headlines and detailed findings are 

contained in this report and the entire report is in Part 2 of the agenda. 

The site has always been of great public interest because of its historic importance 

and because of its use within the local and extended community. The 

Harmondsworth and Sipson Residents Association (HASRA) and No Third Runway 

Action Group (NoTRAG) have both written to officers to lodge their support for the 

Council taking on the ownership of The Barn. Whilst the Council would be able to 

acquire the building for nil consideration (with legal costs as applicable), the funding 

for longer term liabilities which are very significant is of fundamental importance to 

making a decision on whether to acquire or not. There is no doubt that this is a very 

important building for the Harmondsworth area, the Borough, and nationally. 


1. Cabinet advises whether the Council should acquire The Great Barn and 

if so on what basis and whether and to what extent conditional upon external 

funding being secured, and whether it authorises bids being made for external 

funding. 

2. If Cabinet proposes that the Council should purchase The Great Barn 

then it also agrees to propose to Council to agree to meet the maintenance 

costs associated with The Great Barn after taking into account any financial 



contributions made from third parties as well as the costs of purchase and for 

immediate works, and to refer to full Council to identify and agree funding. 


In view of the level of estimated costs for repairs and maintenance Cabinet is asked 

for instructions on whether the Council should acquire The Great Barn or to decline 

the offer. The deadline set by the owner’s liquidator, Deloitte and Touche, of 

30 th November 2005 for completion of legal documentation for the purchase requires 

an urgent decision of Cabinet. If Cabinet authorises pursuance of a purchase 

subject to external funding being obtained then an extension of the deadline will be 

sought whilst applications are made. 

Under the Constitution’s Financial Rules the relevant budget will have to be referred 

to full Council for a decision as there is no budget presently identified. 


1. Not proceed to purchase The Great Barn on the current basis. 

2. To purchase The Great Barn taking into account the capital and revenue 

costs as identified in the report, at a value of £1, with completion on 30 th November 

2005 or thereabouts. 

3. To instruct officers to ascertain whether any further external funding could be 

obtained and make the acquisition conditional upon this and there being no or a 

limited cost for the Council through purchase. 

INFORMATION 

1. The Great Barn (The Barn) is the most important historic building in the 

Borough. Built in 1426 for farm storage purposes it is of cathedral-like proportions 

approximately 60m long, about 12m wide and 12m high. Internally it has a 12 bay 

nave and side aisles and was built for the Bishops of Winchester (it is said that the 

12 bays mirror the 12 bays of Winchester Cathedral). It is the second longest timber 

framed barn in England. Whilst it is believed that almost the entire frame is original, 

the northern cill plate has been replaced and other restorations were carried out in 

the early 1990’s by the owners including underpinning of foundations, rebuilding the 

southern end (due to fire damage) and restoring the plinth walls. 

2. The Great Barn was used for farming purposes until the 1970’s (the fire 

damage took place in the 1970’s) but with no farming activities and poor state it is 

not suitable for modern use. The surrounding Manor Court site has been 

redeveloped with converted and new buildings grouped around The Barn leaving the 

historic building in a pleasant setting. 

3. During its previous ownership The Great Barn was used (limited to 18 days 

per year under a Section 52 Agreement) for various community activities including:- 



• Use by local schools for history and art work, 

• By the community for carol services, 

• For floral displays, 

• By local artists displaying their work, 

• For visits for architectural interest from all over the country 

It has also been one of the highlights of previous ‘Open House’ Weekends (an 

annual National event promoting architecture and historic buildings). 

Within the above list, which is by no means exhaustive, many of the activities are 

educational. Ownership of The Barn would ensure that Hillingdon was providing a 

local attraction that has local significance that will encourage learning. As such 

Hillingdon would be considered to be meeting its corporate objectives of being a 

Borough of Culture and Learning as well as a Clean and Attractive Borough. 

4. In October 2004 a site meeting was held between Planning officers, English 

Heritage, McCurdy and Co. (timber conservation experts) and the owner’s 

representative regarding the future ownership of the Harmondsworth Barn. English 

Heritage confirmed that they are supportive of the Council’s proposed action but are 

unable to give long-tem guarantees re financial support but particularly with local 

authorities try to give as much positive advice and support as they can. They have 

offered a contribution of approximately £1,000 each year towards annual 

maintenance through a Maintenance Agreement but this would need to be renewed 

every 3 years and there is no guarantee of further support. To show the high level of 

support that English Heritage has for securing the future of The Barn they have 

agreed to pay just over 40% of the cost of the condition survey. 

5. The Great Barn was the subject of a Section 52 Agreement in 1987 when 

planning consent was granted for the development of the adjoining office space. This 

detailed a schedule of works because at that time The Barn was seen to be in poor 

repair and the owners were required to repair the building against this schedule. 

Also included was the condition that the building was to be open for access by 

interested bodies on 18 days per year. The specialist confirms (as he was involved 

in the procurement of these repairs) that two of the three phases of works were 

carried out but the owner ran out of funding and so the third phase was not started. 

The third phase included repairs to the weatherboarding, doors, floor surface, 

external ground finishes and provision for surface water drainage. 

6. The following extract has been taken directly from the consultant’s report 

(October 2005) as to their conclusions : 

‘ 36.0 The Great Barn at Manor Court, Harmondsworth is an architectural and 

cultural monument of national significance and its future must be secured for the 

public good. 

37.0 It is vital that the future ownership of the barn is clearly established as soon 

as is practically possible and that a managed and fully resourced programme of 

repair, maintenance and conservation is undertaken. 



38.0 This report has established that the structure of the barn is sound and that 

there is no apparent danger of immediate serious failure. This however will not 

remain the case indefinitely and a programme of works is necessary leading up to a 

major re-roofing within a 5 to 10 year period. 

39.0 The report has identified a programme of works to be undertaken in three 

distinct phases; within 2 years, within 5 years and within 10 years. If, however, 

financial circumstances were favourable and that bringing forward the works was 

expedient Phases Two and Three could be merged and implemented within possibly 

a five to seven year period. 

40.0 At today’s prices these direct works would cost in the region of £1.2million 

and be spread over 10 years. This figure does not include any costs associated with 

acquisition, main contractor’s preliminaries and overheads, professional fees, the 

Borough’s internal costs or any VAT which may be payable. 

41.0 The report recommends that the Borough as potential new owner of the 

barn, should seek an early meeting with senior representatives of the Heritage 

Lottery Fund to establish the principle of the building’s significance and 

eligibility for lottery grant aid. The Borough should therefore set aside the 

necessary survey costs, as noted in Phase One, to establish the specification and 

detailed costings required to take a grant application forward in time to contribute 

to Phases Two and Three.’ 

7. The specialist report (reproduced in full in Part 2 of the agenda) from McCurdy 

and Co., upon which officers are relying, clearly sets out the state of the building and 

recommendations, with costs. Whilst the building has no immediate structural 

defects that require instant remediation there are a number of repairs that officers 

consider necessary to provide effective security and health and safety for public use. 

The costs of these works are in addition to those presented in the McCurdy report 

and these are set out below. 

Those items marked * are recommended by McCurdy and 

Co 

CAPITAL £ 

Acquisition cost 1 

Legal costs say 1,500 

Immediate works necessary upon purchase 

Security alarm 5,000 

Fire alarm 3,000 

Lightning conductor 3,500 

New light / power circuits + BT line 2,500 

Clearance of vegetation 2,500 

Boundary repairs 2,000 

Safety fencing around building 10,000 

DDA and access works 10,000 

Internal floor surface 10,000 

Internal safety netting 10,000 

Repairs to weatherboarding, say 10,000 



Heritage Lottery Application / consultants fees, etc 40,000 

Contingency 10,000 

TOTAL say 120,000 

Up to 2 years 

Survey and specification * 40,000 

Patch repairs to roof and weatherboarding * 25,000 

Repairs and painting to barn doors * 5,000 

Studies and Heritage Lottery application * 80,000 

Improvements inside for use, say 30,000 


Up to 5 years 

Patch repairs to roof tiles * 28,000 

Reclad southern end * 75,000 

Repair/reclad weatherboarding * 30,000 

? Additional improvements to inside for use ? 


Up to 10 years 

Re-roof * 400,000 

Structural repairs to frame etc * 350,000 

Consultants fees etc 200,000 

Repairs / refixing to weatherboarding * 30,000 

Contingency say 200,000 

TOTAL say 1,180,000 

GRAND TOTAL SAY 1,620,000 

8. The Borough of Hillingdon has approximately 410 Listed Buildings of which 

only 7 are Grade I Listed Buildings and the significance of The Barn is considerably 

increased because it is also a Scheduled Ancient Monument of which there are only 

5 in the Borough, with no other having the dual status. This high level status gives 

The Barn a high priority in terms of favourable consideration from external agencies 

particularly Heritage Lottery Funding (HLF). 

As the preferred intended use of The Barn would involve public access there needs 

to be a rigorous maintenance programme. From the table above this programme is 

likely to require significant funding and therefore it is envisaged that HLF and other 

external funding sources such as Hillingdon Community Trust would contribute to 

these costs. Acquisition of The Barn would require ring fenced funding so that it 

would not have to compete against higher priority bids and effectively becomes “top 

of the list”. 

9. If the Council were to acquire The Barn immediate works would need to be 

undertaken to comply with Health and Safety and security requirements. These 

works may take a period of 6 - 9 months to plan, obtain approval ( as a Listed 

Building and Scheduled Ancient Monument status) and complete. Due to the quiet 

location with no other adjoining occupied property, security will be an issue and 

CCTV may be required. Anything stored there from the start will be at risk of 

vandalism, theft or destruction, although an adjacent property is currently occupied 



y Honeywell who may afford some daytime security. Previously a caretaker for the 

adjacent offices complex ensured The Barn was secure but he has now gone. 

10. If the Council were to acquire The Great Barn then the Client Service to hold 

the property will be Education, Youth and Leisure Services. It is proposed that it 

comes under the remit of the Cultural Services Division. 

11. The Council would be acquiring Registered Title NGL 572578 with no 

title guarantee. This is shown on plan attached as an appendix. The sellers are 

Ballast Wiltshier Investments Limited (in Liquidation). The property comprises The 

Great Barn and land to the east and western sides of the building. Access is via a 

shared roadway and courtyard. 

12. A deadline had been set by the Liquidators, Deloitte and Touche LLP, of 

the 31 st October 2005. In view of the delay in receiving the consultant’s report and 

subsequent need to report the matter to Cabinet, Deloittes have agreed to extend 

the deadline for completion of the purchase to 30 th November 2005. They state that 

if the deal is not concluded by that date the Great Barn will be handed to the 

Treasury Solicitor. It is believed that the Treasury Solicitor will seek to sell the 

property on the open market but enquiries are being made and the answer is not 

available in time for this report. 


13. Officers have identified a number of estimated revenue costs that are likely to 

arise should the Council acquire this property. These are illustrated in the table 

below. 

Revenue Costs 2006/07 £ 2007/08 

£ 

2008/09 

£ 

2009/10 

£ 

2010/11 - 

2014/15 £ 

2015/16 

£ 

Minor repairs 10,000 10,000 10,000 10,000 10,000 10,000 

Insurance premium 9,000 9,000 9,000 9,000 9,000 9,000 

Rates 6,000 6,000 6,000 6,000 6,000 6,000 

Alarms 1,000 1,000 1,000 1,000 1,000 1,000 

Lightning protection 500 500 500 500 500 500 

Power 500 500 500 500 500 500 

Telephone 200 200 200 200 200 200 

English Heritage grant ,000 -1,000 -1,000 

Capital financing 10,800 10,800 27,000 27,000 38,970 145,170 

Total 37,000 37,000 53,200 54,200 66,170 172,370 

14. The costs illustrated above are also at current prices and assume that an 

agreement is reached with English Heritage to provide £1,000 of funding per annum 

for three years. The rates cost has not been confirmed and is only illustrative at this 

stage. The capital financing costs arise because the capital would be unsupported 

borrowing for which revenue provision would have to be made and are based on the 

cost profile illustrated in the preceding table. 

15. None of these costs are reflected in the Council’s current financial strategy 

and so would need to be included in the MTFF as growth where there is already 

significant pressure on both the revenue and capital budgets. Acquiring The Barn will 

add to the savings target that officers are currently working towards, and so the 



acquisition of The Barn should be considered alongside the other growth bids for 

revenue in the MTFF and not in isolation. 

16. The full financial impact of the acquisition does not arise until later years when 

the effect of the final stage of the conservation works is implemented. The financial 

implications are not therefore limited to the £37k of growth that will be required in the 

2006/07 budget, but increase to £172k to maintain the site if the suggested works 

are implemented. 


Education, Youth and Leisure Services 

17. The Harmondsworth Barn is of national and local significance and this is 

reflected in its being both a Grade 1 Listed Building and a Scheduled Ancient 

Monument. This recognition will in turn place obligations on the Council and also 

require very careful consideration of the future uses of the building. 

18. In Ruislip, the Council is currently progressing the restoration of the Great 

Barn that is part of the unique grouping of medieval buildings on the Manor Farm 

site. The Great Barn is a Grade 2 star Listed Building built in the late thirteenth 

century. A separate area of the Manor Farm site (Motte and Bailey) is also one of the 

borough's five Scheduled Ancient Monuments. Both sites are also designated as 

“Archaeological Priority Areas”. 

19. The restoration of Manor Farm Barn is being achieved with funding from the 

Heritage Lottery Fund and an allocation of council capital. The building itself is in a 

relatively sound condition and, apart from a repairs schedule, the funded works are 

focussed on improved public access, the interpretation of the history and past uses 

of the building and enabling a wider range of use appropriate to the site. These last 

points have been crucial in securing HLF funding for this particular project. 

20. It is generally recognised that the best way of securing the upkeep and 

maintenance of heritage buildings is closely linked to them being in use. Options for 

use sympathetic and appropriate to the building and its history will need careful 

consideration. It has been suggested that the collection of agricultural artefacts 

currently stored at Park Lodge Farm should be moved to the Harmondsworth Barn. 

Future use as an agricultural ‘museum’ might be deemed to be appropriate, 

developed through professional interpretation and display that in turn supports a 

community learning outreach programme that includes work with schools. It is also 

important that the Barn retains its role for community events. 

21. Officers will need to approach the Heritage Lottery Fund to establish the 

viability of securing grant in the first place to enable the development phase of a 

restoration project on The Barn itself and its future possible use. If the agricultural 

artefact collection is to be stored in The Barn, this will require the initial schedule of 

works for security and health and safety as identified in the report as well as the 

necessary prior consents via English Heritage. This is because of the designation of 

the building as a Scheduled Ancient Monument . If an access route to the site from 



the west is now a possibility in the medium term, this presents a better option than 

access solely through the shared courtyard as at present. However, the impact of 

the third runway on the viability of the site is impossible to assess. 

Planning and Transportation Group 

22. The best way of securing the upkeep and maintenance of historic buildings is 

generally dependent on them being in active use (PPG15 1994 para 3.8). It is, 

therefore, vital that The Barn is put to an appropriate use. As a Scheduled Ancient 

Monument and a Grade I Listed Building The Barn will require a sympathetic use 

appropriate for such a national monument. Some restriction is likely to occur 

because of these designations but this must not hinder the overall approach to 

finding an appropriate use. In consultation with English Heritage it is expected that 

uses which will limit intervention to the historic fabric will be favourable as well as 

those that will help keep the historic context. Any change of use or development of 

the site will require Scheduled Ancient Monument (SAM) Consent, which takes 

priority over the Listed Building designation so that Listed Building Consent does not 

apply (PPG 15 1994 para 6.34). In addition to the designation of the building, The 

Barn is situated in the Green Belt. In accordance with government planning policy 

guidance there are restrictions on some use of the buildings. Officers consider that 

the following options would not compromise this policy. Use as an agricultural 

museum, a display centre and / or an environmental education centre for local 

schools are strong possibilities that would meet the Council’s objective of a Borough 

of Learning and Culture as well as contributing to the Council’s strategic vision to 

retain and improve the character of the Borough. This would also complement the 

original context of The Barn. The Upminster Tithe Barn in Havering is an example of 

a historic barn being used as a museum of agriculture (officers can provide further 

details if required). 

23. Members should be aware that one of the current constrains to having a large 

volume of visitors to The Barn is the existing limited access and parking. However, it 

is understood that if The Barn was to be acquired it may be possible to review the 

access and parking arrangements in the medium to long term. Officers are of the 

view that this would enable greater flexibility on the number using The Barn and the 

frequency. Nevertheless any future changes would need to be mindful of the historic 

fabric of the building, which should not be prejudiced. 

24. If Hillingdon does not acquire the property and it is bought on the open market 

any future purchaser will consider “hope value” of the property, such value which will 

not take account of the heritage and Green Belt constraints. A scenario where 

planning permission is being sought for unacceptable uses would be long and drawn 

out and is likely to mean that the maintenance is compromised. The Council has 

responsibility of serving potential enforcement notices and liasing with English 

Heritage to ensure The Barn is properly maintained which could be costly to the 

Council. Repair costs would be higher should maintenance works not be carried out 

for several years, and then the Council may be accused of contributing to the neglect 

of a nationally important monument. The national importance of The Barn and the 

public support for Hillingdon’s acquisition must be a major consideration and the 



huge benefits of public access and the education opportunities cannot easily be 

dismissed. 

Corporate Finance Services 

25. The capital cost of purchasing The Barn is likely to rise to the £1.6m identified 

by the consultants in their condition report in the medium term, with further costs 

arising over the long term. In addition, revenue costs of maintaining the site are 

projected to rise to £172k by 2015/16. Both of these growth items should be 

considered in the context of the severe constraints on both revenue and capital 

resources. Additionally, the HIP Asset Management Strategy is attempting to reduce 

the authority’s property maintenance backlog of £18m (which excludes the Civic 

Centre). Reducing the number of expensive to maintain buildings is a significant part 

of this strategy. This purchase without at the same time securing the relevant 

external funding would increase both the maintenance backlog and the number of 

expensive to maintain buildings. In this context the purchase of the barn would not 

appear to be a prudent use of resources. However, this financial case needs to be 

weighed against the benefits to the community that might result from its purchase. 

26. The report prepared by consultants McCurdy & Co identifies the capital 

resources that will be required for a fully resourced programme of repair, 

maintenance and conservation. In addition, Corporate Property officers have 

identified further capital and revenue costs that are likely to arise if the council takes 

ownership. The capital costs are listed in the table in the section above at current 

prices. The works would be in four phases: immediate, within 2 years, 5 years and 

10 years. The table below illustrates how these costs would fall across financial 

years if expenditure were incurred at the end of each of the recommended periods. 

Capital Costs 005/06 £ 006/07 £ 007/08 £ 008/09 £ 009/10 £ 2010/11 - Total £ 

2014/15 

£ 

Year 1 2 3 4 5 - 10 6 - 10 

Acquisition 1,501 1,501 

Immediate works 118,500 118,500 

Works req’d within 2 yrs 180,000 180,000 

Works req’d within 5 yrs 133,000 133,000 

Works req’d within 10 yrs 1,180,000 1,180,000 

Total 120,001 0 180,000 0 133,000 1,180,000 1,613,001 

27. No allowance has been made for inflation in the cost profile shown above. 

28. The full financial impact of the acquisition does not arise until later years when 

the effect of the final stage of the conservation works is implemented. The financial 

implications are not therefore limited to the £37k of growth that will be required in the 

2006/07 budget, but increase to £172k to maintain the site if the suggested works 

are implemented. 

29. External funding from the Heritage Lottery Fund (HLF) may be available to 

meet up to 75% of the capital costs. At this stage it is too early to place confidence in 

receiving funding from the HLF, so the full cost should be regarded as falling to the 

Council. In addition, the Hillingdon Community Trust may be able to provide some 



funding, but this is both uncertain and likely to be relatively small when compared 

with the scale of works required. This is discussed in greater detail below. 

30. The Hillingdon Community Trust have been contacted on an informal basis. 

There has not been time to make detailed investigations with them as to likely 

source of funding. The Trust Administrator has advised that the Trust may give 

consideration where the Council has received some match funding from another 

source (English Heritage) and may provide some part share that the Council has to 

meet. Their funding requirements and objectives will mean that the Council’s 

application would have to “tick all the boxes”. There is a risk that if the Council were 

to buy this property that the expectation of HCT funds may not materialise 

subsequently, and, there would also be no long term commitments for ongoing 

capital works needed. 

31. The Council is currently progressing the restoration of the Great Barn at 

Manor Farm, Ruislip, a Grade 2 star Listed building built in the thirteenth century. 

The Manor Farm Barn is a much sounder building and apart from the repair 

schedule the funded works are focussed on improved public access, wider use and 

interpretation. These last points have been crucial in securing financial support from 

the Heritage Lottery Fund. 

32. A significant level of public use will be required in order to add weight to any 

grant applications for shared funding, as beneficial and community use is paramount 

in such cases. 

Legal Services 

33. The Council has the legal power to acquire The Barn. This power is 

contained in Section 120 of the Local Government Act 1972 which provides that a 

local authority may acquire land by agreement for any of its statutory functions or for 

the benefit, improvement or development of its area. 

34. The Council can also use the well-being power, as set out in the Local 

Government Act 2000, to complement the Section 120 power as the acquisition of 

The Barn will prove to be a local attraction which will have local significance and 

which will in turn encourage learning and will also exist for the benefit of the 

community generally. 

35. The well-being power may be exercised in relation to or for the benefit of the 

whole or any part of a local authority's area or all or any persons resident or present 

in that area. 

36. In view of the potential extent of the maintenance costs, the value of The Barn 

has now become such that it falls on the Cabinet to decide as to whether or not the 

Council should acquire it. The Council's Financial Rules, as set out in the 

Constitution, also provide that ''No Officer or Cabinet Member may enter into 

expenditure commitments [or approve reductions in income] for future years, either 

on revenue or capital, that are likely to exceed the relevant budget provision, except 

with the agreement of the Cabinet''. 



37. If Cabinet agrees that such expenditure should be incurred the matter will 

then have to be referred to full Council for ratification. 

38. Clearly, in view of the projected maintenance costs, the decision as to 

whether the Council should acquire The Barn is not straightforward. The Cabinet is 

required to make a 'Wednesbury reasonable' decision and it has to balance the fact 

that The Barn is a building of national importance with much public support for its 

acquisition, together with the huge benefits of public access and the education 

opportunities which it affords, against the Council's fiduciary duty. 

39. The well-being power referred to above enables the Council to incur 

expenditure. No limit on this expenditure is prescribed by the 2000 Act but the 

Council owes a fiduciary duty to all the Council Tax payers in the Borough and 

therefore it has to decide, inter alia, what would be a reasonable level of 

maintenance costs and identify what works are to be a priority. In this respect the 

Cabinet should have regard to the advice of the Director of Finance and the Head of 

Corporate Property. 

40. However, it should be noted that if a decision is made to acquire The Barn, 

immediate works would need to be undertaken to The Barn to ensure that the 

Council meets its obligations under the Health and Safety at Work Act 1974 and 

Regulations made pursuant to it. 

41. The Cabinet, in making its decision, should also have regard to any likely 

financial contributions which the Council is likely to receive. An offer of financial 

support has been made by English Heritage. It has agreed to pay just over 40% of 

the cost of the condition survey together with a contribution of approximately £1,000 

per annum towards the maintenance costs. A Maintenance Agreement would 

accordingly have to be drawn up between the Council and English Heritage. 

42. The possibility of receiving a funding contribution from Hillingdon Community 

Trust is also referred to in the body of the report and the Cabinet will need to weigh 

up whether such a contribution is to be made, and if so, the extent of it before 

making a decision. 

43. Finally, the Borough Solicitor's Department has already undertaken some 

preliminary legal work in connection with the possible acquisition of The Barn and in 

the event that Cabinet decides that the Council should acquire this building, every 

effort will be made to ensure that the conveyancing process meets the Receiver's 

deadlines but, at the same time, the necessary steps will be taken to ensure that the 

Council's interests are sufficiently protected. 

Corporate Property Services 

44. The projected costs as set out in the consultant’s report clearly identify the 

future liability that the Council would need to take on board. Even if Heritage Lottery 

Funding was to contribute 50% of the costs (there may even be a possibility of 

receiving 75% contribution), the commitment is still substantial both in the short and 

medium term. Harmondsworth Barn has Scheduled Ancient Monument status. This 



is higher than Grade 1 Listed Building status. All works required to The Barn will 

need to be agreed in advance with English Heritage. This process is slow and will 

require both Council officer time and expert advice from specialist consultants such 

as McCurdy & Co. The majority of the works will need to be undertaken by 

approved specialist contractors. The costs for all works will be substantially more 

than for similar works to buildings of more recent construction. 

45. Hillingdon already has some Listed Buildings but none of the importance of 

Harmondsworth Barn. With the exception of the Manor Farm Heritage site at Ruislip, 

which has received Heritage Lottery Funding, the majority of the other buildings rate 

fairly low down in priority when funding for future maintenance works is being 

considered. In some cases this is because the building may not be open to the 

public, or only open on a limited basis. Approval of the necessary maintenance 

works does not rate so highly as those competing bids that, if not funded, would 

require other building (or parts) to close. Acquisition of The Barn would require an 

element of ring fenced funding so that it would not have to compete against higher 

priority bids. 

46. If the Council were to acquire The Barn then immediate works would be 

required to make it suitable for public use. The cost of works are detailed in the 

body of the report and it is highlighted that the building would have to remain closed 

for a period of 6 – 9 months whilst these works are completed. To meet projected 

use of the building further work would also need to be commenced and any works of 

improvement to make it suitable would need to be consulted upon and costed. 

47. Access to The Barn from the west across adjoining “Potter’s Field” has been 

an issue in the past. Confirmation has recently been received that Hillingdon now 

has a Compulsory Purchase Order (“Harmondsworth Moor CPO”) for the field (and 

other land including to the north of The Barn). Once ownership is transferred the 

Council will pass this land to BAA, as arranged as part of a Section 106 agreement, 

where BAA must allow public access to the land. Apart from landscaping this will 

also enable public (pedestrian) access from Prospect Park (further west) through 

Potter’s Field all the way to western boundary of The Barn. This should have 

positive implications for the future use of The Barn, as it will be seen / experienced in 

a wider context than is currently possible. Access by vehicle should however be 

examined from Moor Lane, as a means of having singular controlled access rather 

than through a shared courtyard. 

48. The Barn is a one-off opportunity and/or liability. Clearly it does not fit well 

with the Council’s asset management plan/strategy. Here the broad strategy is to 

have buildings that are in a good or improving maintenance condition and that are 

both suitable and sufficient for purpose. Where there are buildings with a high 

maintenance backlog (or future commitment) the aim is to either reduce the backlog 

by disposing of the building and re-providing a facility to the current requirements, or 

to seek external funding from potential partner groups. If The Barn was not of such 

historical interest, appraisal of the costs and benefits to the Council or local 

community would probably conclude that it is not in the Council’s interest to 

continue. The question is therefore whether the Council considers being the 



custodian of The Barn is worthy of the financial commitment, or is willing to pursue 

being its custodian on the basis of being provided with adequate external funds. 

49. The potential damage likely to be caused by Runway 3 is difficult to assess. 

The Barn is blighted by this proposal and if it is to be acquired by BAA it is possible 

that it could be relocated at their expense. If The Barn is not acquired there may be 

difficulties over the damage (pressure waves and vibration) from aircraft using this 

runway. If the Council (or any other owner) considers there to be a claim it would be 

necessary to obtain a specialist condition survey prior to the new flight path usage 

and proof that damage is being, or has been, caused (pressure waves could affect 

the tiles and boarding). This would require officer time and more specialist reports 

even if these costs are recoverable. If the outcome, in the future interests of The 

Barn, is that it should be relocated further time and costs would need to be 

expended in determining where a suitable alternative location might be found. It has 

to be presumed that the relocation and reconstruction would be funded in full. 

50. This is an exceptional building which for the local area and nationally should 

be preserved for the future. However in purely financial terms it is hard to justify the 

Council being the owner if it has to fund the costs itself. The potential drain on public 

resources from maintenance and repair costs which have been identified could lead 

to additional costs which have not been seen or come to light as yet. There is 

potential for escalating costs in the future and the Council currently has severe 

problems in maintaining older buildings whether or not heritage or listed buildings. It 

is current policy that the Council seeks to close and dispose of “expensive to 

maintain” buildings and therefore to acquire such an old building with evident repair 

and future maintenance obligations would be against current asset strategy. 

51. A purchase price without also external funding for the maintenance liabilities 

and condition of the building does not seem reasonable. In view of the planning 

position with ancient monuments it is extremely unlikely that planning consent could 

be obtained for conversion or any form of commercial use. 


Cabinet Report 12 th October 2005 (item 16)

Report - London Borough of Hillingdon

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