cumbria county council strategic property asset management

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2010 and beyond

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Contents Executive Summary Introduction Strategic Asset Management Cumbria’s Priorities Asset Management Planning in Cumbria County Council Statement of Current Portfolio Key Areas of Change Further Service Led Changes Capital Strategy Appendices Appendix A: Asset Management Group Terms of Reference Appendix B: Maps – Illustrating the distribution of property assets Appendix C: Schedule of Property and Indicative Asset Strategies

Property Unit Resources

18 Portland Square Carlisle Cumbria CA1 1PE

Cumbria County Council Strategic Asset Management Plan

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CUMBRIA COUNTY COUNCIL STRATEGIC ASSET MANAGEMENT PLAN

2009/2010 EXECUTIVE SUMMARY Strategic Asset Management Planning is the activity that seeks to align the asset base with the organisation’s corporate goals and objectives. It aims to ensure that the land and buildings asset base of the organisation is optimally structured in the best corporate interest of the organisation concerned. Cumbria County Council’s Asset Management Plan supports the delivery of the Council’s corporate priorities. It sets out the Council’s plan for the use of its property assets in the delivery of high quality, efficient, value for money services that are easily accessible by our communities. The Plan highlights the various programmes of change that are underway that involve property and identifies areas where further review is required. Property is the Council’s second most valuable and expensive asset and it is vital for service delivery. Decisions made about the level of investment in property the Council occupies need to take account of current and future service needs, as well as legislation governing the use and occupation of property. It is also important to look ahead and so an effective mechanism needs to be in place to plan for future property requirements and make decisions about investment, acquisition and disposal. This strategic plan sets out the Council’s policy for its property portfolio and outlines the asset management priorities for the next 5 to 10 years. The document details how the Council is organised to make strategic property decisions to deliver these priorities and the key actions required to inform this decision making process. The use of property assets underpins the Council’s aim to be a modern efficient Council and can facilitate, as well as hinder change, especially when property takes time to plan and construct and when market conditions do not favour disposal of surplus property. The Asset Management Plan demonstrates the Council’s approach to managing its property assets is in line with the Audit Commission key line of enquiry; “does the organisation manage its assets effectively to help deliver its strategic priorities and service needs?” The County Council has a diverse portfolio of property that is already undergoing a significant amount of change and will need to change further if strategic priorities and service needs are to be delivered.


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The County Council’s property stock is made up of a range of property types with different, age profiles, condition, value, sufficiency, suitability, cost in use, sustainability and tenure. Some property is fit for purpose, some is not and needs to change and some requires more detailed review and challenge as to whether or not it is making an appropriate contribution to the business, service delivery and communities. The main programmes of change are associated with the School estate, the Council’s office portfolio (through the Better Places for Work Programme), the Local Links (Customer access programme) and the shared services and facilities agenda. There are a number of Asset Programmes currently underway across the County and at various stages of development and delivery, including;

� Local Links - (Customer Access Programme) have been created in 12 locations across the County including; Alston Town Hall in collaboration with Eden District Council and Alston Town Council, Wigton Market Hall in conjunction with Allerdale Borough Council and other stakeholders and Cleator Moor Library in conjunction with Copeland Borough Council;

� Better Places for Work Programme - Office Accommodation Strategy. A Short, Medium and Long Term Strategy for County Council offices (potential Corporate Headquarters, Front Office locations/Local Links, supported by key back office locations and more effective use of other County Council accommodation);

� Schools Organisation Programme - Secondary Schools and Academies (Lochinvar, St Aidans, NCTC, Morton, Wyndham, Ehenside, Thorncliffe, Park View, Alfred Barrow schools), resulting in 4 new Academies;

� Schools Organisation Programme - Primary School Strategy development - Junior and Infant Schools (eg Belah, Brampton Junior/Infants schools);

� Fire And Rescue Service PFI - 5 New Fire Stations and Community facilities, with a further 2 new stations at feasibility stage;

� Library and Archive Service - in conjunction with Customer Access (Local Links);

� Cumbria Archive Project - Lady Gillford House, Carlisle, which will allow the relocation of the Archive Service from various locations that are not fit for purpose, including Carlisle Castle.

� Pilot Service and Property Reviews - Longtown and Brampton in conjunction with Carlisle City Council, PCT, Parish Councils, et al;


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� Community Asset Transfer - Development Trusts Association - Asset Transfer Demonstration Projects (Quirk Review) and other asset transfer projects;

� Affordable Housing - The role of County Council land and property in facilitating the delivery of affordable housing in the County.

� Cumbria Care Review - Phase 1 Consultation on Care Homes at Alston, Brampton, Keswick, Millom, Penrith, Wigton in conjunction with the Primary Care Trusts Closer to Home Programme and consultation on a new care home for Barrow;

� Children’s Centres - throughout Cumbria (new build, refurbishment and by acquisition);

� Depots Review - New depots at Lillyhall and Brampton and the disposal of former depots at Cockermouth and Brampton. Further reviews required in conjunction with service review;

� Waste Management Programme - Procurement of new service provider and facilities;

� Carlisle Northern Development Route - Land acquisition and depots;

Further work is required on the opportunities presented by Community Asset Transfer, maximizing the use of assets through shared services and collaboration with other organisations and the disposal of surplus property. Transforming the property portfolio can facilitate the change required in service delivery and can help the Council to reduce its carbon footprint, increase efficiency and effectiveness and reduce costs and therefore deliver value for money. This transformation will, however, continue to require investment in the portfolio, in order to help realise the benefits. Looking forward, by implementing the programmes of change already identified or underway, the County Council’s property portfolio will look significantly different in five years and even more so by 2020.


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1.0 INTRODUCTION 1.1 Cumbria is the second largest county by area in England extending to

around 6,770 sq km. Cumbria is a predominantly rural county, with a population of just under 500,000 and a population density of 73 people per square kilometre across the county, compared with a national average of 380 people per square kilometre. Just over half of the population live in rural communities. Cumbria benefits from areas of outstanding natural beauty and affluence through to areas of industrial dereliction and significant deprivation.

1.2 Cumbria is home to the Lake District National Park and part of the

Yorkshire Dales National Park and is bounded by the Irish Sea to the west, Scotland to the north, Lancashire to the south, North Yorkshire to the south east and Northumberland and County Durham to the east. The population is primarily distributed outside the National Park in the primary centres of population of Carlisle (103,000) and Barrow (72,000), with other centres of population being Penrith, Kendal, Ulverston, Whitehaven and Workington. Within the National Park the primary centres of population are Keswick, Ambleside and Windermere.

1.3 Cumbria is governed via a traditional two tier Council structure, with 6

districts, Allerdale Borough Council, Barrow Borough Council, Carlisle City Council, Copeland Borough and South Lakeland District Council. The Council operates a Cabinet style governance model and the Cabinet Member for Resources has responsibility for Property and Asset Management within his portfolio.

1.4 Cumbria County Council has an extensive and varied property portfolio

that supports a wide range of service delivery throughout the county. The portfolio was established in 1974 with the merger of assets from Cumberland, Westmorland and part of Lancashire and has grown organically since then. The portfolio, excluding the rural estate, consists of 781 properties.

1.5 A largest proportion of the portfolio is accounted for by schools totalling

326 individual properties (including all types of school). The school estate extends to approximately 82% of the total gross internal floor area. In addition the County Council provides Libraries (48), Fire Stations (38), Care Homes (33), Offices (78) and a variety of other properties that support service delivery or are held for sale, development or as community assets.

1.6 The rural estate extends to approximately 620 hectares and consists of

19 farm steadings and miscellaneous land. 1.7 The total asset value for the County Council’s land and buildings was

£695 million as at March 2009.


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1.8 The Asset Management Plan supports the delivery of the Council’s strategic priorities as set out in the Council Plan 2009 – 2012 and includes our medium to long term vision or asset strategy for the use and development of property assets in supporting service delivery and achieving the outcomes desired. The plan also confirms the Capital Strategy, ie the capital requirements of the Asset Strategy and the sources of funding.

1.9 The plan aims to support our objective to ensure that the Council’s

assets are fit for purpose and provide value for money and identifies how we are working with partners and community groups to maximise the contribution property assets can make in local communities.


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2.0 Strategic Asset Management 2.1 Asset Management Planning is not a new phenomenon, it has its roots

in strategic business planning and specific reference to Local Authority property dates back to the Audit Commission review – ‘Local Authority Property, A Management Overview’ in 1988.

2.2 The Audit Commission report – ‘Hot Property, Getting the most out of

Local Authority Assets’ in 2000 led to Asset Management Planning becoming an essential plank of local authority business.

2.3 The Comprehensive Spending Review 2007 had, as one of its key

themes, the need for strategic asset management. The implementation of a strategic approach to asset management is intended to change the asset base of the public sector so that it is fit for purpose and so supports the improvements required in service. It is also intended to help secure the significant savings needed to balance the books.

2.4 The latest guidance on Strategic Asset Management produced by the

Royal Institution of Chartered Surveyors (RICS) entitled ‘Public Sector Asset Management Guidelines – A guide to best practice’ was published in January 2008 and was followed by the publication of ‘Building on Strong Foundations – A Framework for Local Authority Asset Management’ by the Department for Communities and Local Government (DCLG), February 2008.

2.5 The latter suggested that the requirement for Local Authorities to

submit their capital strategies and asset management plans to the Government Office was removed because the standard of such work began to rise, however, it acknowledged that there is a gap between those Local Authorities that have fully embraced Asset Management Planning and others. The document states that;

‘Over the next three years, I want to see local authorities build on their earlier work to ensure they secure better value for money, whilst making more effective use of their asset base as the foundation for delivering high performing public services.’

2.6 The document also refers to the challenges of modernising service

delivery and getting the most from resources and states that; ‘By prioritising asset management, removing silos within the authority, working with a variety of partners, aligning assets to priorities and assessing whether the asset base is performing at its optimum, local authorities will be more able to use their assets to meet these challenges. 2.7 This Corporate Asset Management Plan and the Asset Management

Planning Process that supports it, is guided by the DCLG Framework and RICS guidance.


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2.8 The DCLG Framework suggests; “Strategic asset management is the activity that seeks to align the

asset base with the organisation’s corporate goals and objectives. It ensures that the land and buildings asset base of an organization is optimally structured in the best corporate interest of the organisation concerned.”

2.9 It goes on to state that; “There are many benefits for a local authority, both financial and non

financial, of good asset management. The following list sets out some of the benefits of good asset management, although it is worth recognizing that at times these benefits may conflict with each other. The list is based on a recent study into asset management and feedback from the consultation on this document. Good asset management can;

� deliver exceptional services for citizens, aligned with locally

agreed priorities, whilst focusing investment clearly on need; � empower communities and stimulate debate; � improve the economic well-being of an area; � ensure that, once built, assets are correctly maintained; � introduce new working practices and trigger cultural

organisational changes; � reduce carbon emissions and improve environmental

sustainability; � increase co-location, partnership working and sharing of

knowledge; � improve the accessibility of services and ensure compliance with

the Disability Discrimination Act (DDA) 2005; � generate efficiency gains, capital receipts, or an income stream;

and � improve the quality of the public realm.”

2.10 The Asset Management Planning process helps to develop an Asset

Strategy (the organisations vision for its asset base), an Asset Management Plan (the guide to the governance of the process, the resources required to support it, how its performance will be monitored and how this will inform ongoing development of the plan) and a Capital Strategy (the capital requirements of the Asset Strategy and the sources of funding).

2.11 The Framework document sets out what good Asset Management

Planning looks like. This can be found on page 11 and Annex C of the document, but is reproduced below for ease of reference;


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Figure 2.1: What Good Asset Management Planning Looks Like

Step 1: Asset Management Processes within the Local Authority

• Prioritise asset management at a senior level

• Ensure that asset management is adequately resourced

• Think corporately about asset management

• Involve elected members and designate a member of the Cabinet to hold the asset portfolio

• Ensure there is a project management system in place

• Ensure that formal mechanisms are in place to engage with citizens and to collect, analyse and store the relevant property data

Step 2: Aligning assets with visions

• Ensure that the asset management plan is a medium to long term plan

• Link asset management with all other strategies

• Link the asset management plan to the corporate vision and statutory requirements

• Clearly outline the objectives for each asset

• Consider all options for all assets

• Work across boundaries to align asset management strategies

Step 3: Implementation of the Asset Management Plan

• Establish clear strategic approaches to the utilisation of space and flexible working and co-location with partners and stakeholders

• Consider options for under-utilised assets

• Consider options for financing of new assets

• Maintain and adapt existing assets as needed

Step 4: Review and monitor process

• Periodically review corporate management arrangements for capital asset planning to ensure they are fit for purpose

• Conduct post implementation review of all capital projects that are undertaken

• Review processes following the Comprehensive (Performance/Area) Assessment

• Engage with other organisations and share learning to drive a process of continuous improvement

2.12 In 2008 the Comprehensive Performance Assessment for Councils

was replaced with a new Comprehensive Area Assessment, which focuses on local authorities’ ability to deliver outcomes for their communities. Within this new framework local authorities are assessed as part of the Organisational Assessment (Use of Resources)


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specifically against the key line of enquiry, “does the organisation manage its assets effectively to help deliver its strategic priorities and service needs?” This specific focus on Local Authority asset management, in addition to the approach to wider Area Assessment helps to inform and support the development of Cumbria’s strategies and our approach to managing our assets. One of the aims of the County Council’s Asset Management Plan ids to demonstrate that it;

� Has a strategic approach to asset management based on analysis of need to deliver strategic priorities, service needs and intended outcomes;

� Manages its asset base to ensure that assets are fit for purpose and provide value for money;

� Works with partners and community groups to maximise the use of assets for the benefit of the local community.

2.13 Cumbria continues to develop its Asset Management Planning processes and capability based on the principles set out in the guidance above and recognizes the positive impact a strategic approach to Asset Management Planning can have on its communities.


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3.0 Cumbria’s Priorities 3.1 Cumbria’s priorities are set out in the Cumbria Strategic Partnerships’ Community Strategy 2008 – 2028 and are;

� Safe, strong and inclusive communities; � Health and well being throughout life; � A sustainable and prosperous economy � Effective connections between people and places � World class environmental quality.

3.2 The County Council’s Council Plan 2009 – 2012 sets out a vision for a

County that is;

� Wealthier… with a sustainable and prosperous economy � Healthier…where we are improving the health and well-being of

adults � Happier… where we are improving life chances and well being

of children and young people � Safer… with stronger and inclusive communities � Greener… with a world class environmental quality and

effective connections between people and places � Better… where council services are connected to people and

places. 3.3 These themes are expanded below to show how they translate into

actions; Wealthier

� Supporting the effective development of the nuclear sector. � Deliver against our anti poverty strategy. � Support sustainable communities. � Deliver the Carlisle Northern Development route on budget and

on time. � Improve our highways. � Review our transport.

Safer � Delivering a modern Fire and Rescue Service that

meets Cumbria’s needs. � Protecting children and vulnerable people from harm.

Better

� Working with other organisations to save money and improve services.

� Review our charges and the cost of our services to be more efficient and effective.


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� Improve access to our services making them more efficient and easier to use.

� Create a modern council with the right accommodation and modern ways of working.

� Improve consultation, communication and engagement. Healthier

� Putting older and vulnerable people in control of their own care requirements.

� Promote independence – helping people live safely in their own homes for longer.

� Tackle health inequalities and transform the market for social care.

Greener

� Reducing Cumbria’s carbon footprint. � Reducing Cumbria’s rubbish and disposing of it more

effectively. � Protecting our environment and making the most of Cumbria’s

outstanding natural beauty.

Happier

� Transforming our secondary and primary schools giving children of all ages the best education possible.

3.4 The Council’s property portfolio directly or indirectly contributes to the

delivery of all of these priority areas and the Council’s Asset Strategy adopted in 2007/2008 outlines the general direction that the asset base is to take over the next 5 to 10 years. It provides;

� A platform for structured and rigorous forward thinking; � A basis for corporate and consultative strategy development; � An explicit description of the direction that the organisation

wishes to take with its assets; � A clear statement for communicating the strategy to the

organisation; and � A basis for future decision making.

3.5 The County Council has adopted the following policies and principles in

relation to property;

� Joint customer access and the streamlining of property assets to facilitate joint working, shared services and efficiency savings. These principles will be explored with other District/Borough Councils and other public sector partners such as the Police, Primary Care Trust and National Park Authority, with a view to


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ensuring Local Government and public sector property requirements in Cumbria are coordinated;

� There will be a presumption in favour of modernising the County’s local government property portfolio, through modernising ICT links and ways of working and through rationalisation of the stock and reinvestment in more modern, purpose built and where appropriate, shared accommodation;

3.6 The County Council’s future property requirements are, therefore, framed within the following policies and principles;

3.7 Customer Access

� Provision of at least one County Council presence in each of the main service centres of Cumbria; these ‘hubs’ to be linked to specific ‘spokes’ in smaller communities;

� the presence could be a primary school, secondary school,

library, fire station, office or other public sector facility, on the basis that more than one County Council service could be delivered from the same property;

� co-location with public and voluntary sector partners wherever possible, so that the public do not have to navigate many separate public service buildings and reception areas in the same town or village;

� examination as to whether activities without a direct customer focus, eg support services or “back office” services, need to be located in expensive town centre locations rather than other less expensive locations.

3.8 Types and Style of Properties

� A presumption in favour of modernising the County Council’s property portfolio through rationalisation of functionally and economically obsolete stock and reinvestment in more modern, purpose-built and, where appropriate, shared accommodation; the strategy is to change the portfolio by reducing the number of properties, amount of space and age profile (subject to Heritage considerations), in order to create a portfolio that supports service delivery, is flexible and costs less to run;

� a more modern link with ICT facilities and ways of working, such as open-plan offices, common reception areas, greater use of hot-desking, home-working and video conferencing and storage with the overall aim of reducing the number and extent of the County Council’s office portfolio by at least 25% in the next 5 years;


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� a series of office accommodation standards will be developed including a space standard per office employee;

� a review of back-office functions to avoid duplication of similar functions across many Directorates and to create centres of support activity (centralised filing could then lead on to greater use of electronic storage, filing and document management);

� a review of the size, form and location of the County Council’s strategic centre and core;

� readiness to consider options other than freehold ownership (leases, PFI deals) where appropriate;

� to utilise the County Council’s property portfolio as a catalyst for or enabler of change in the public sector estate across Cumbria and to use it to help promote regeneration;

� to endeavour to achieve agreement with other public sector organisations to the principles set out above so that public property can be utilised as a Cumbrian corporate resource, which will facilitate joint working and Shared Services;

3.9 Implicit within the delivery of ‘Fit for purpose’ accommodation is compliance with statutory regulations for example Disability Discrimination Act, Health & Safety at Work Act and so on. Furthermore the aim is to adopt sustainability as a key driver in the Council’s property portfolio life cycle, from construction, through use to demolition and redevelopment.

3.10 The end result will be improved and more flexible accommodation; rationalisation of space with greater efficiency in design and energy use; consolidation onto a smaller number of sites and a consistent corporate standard and appearance or brand. This strategy will support service delivery improvements, aims to reduce the cost in use of property and will assist in achieving and maintaining statutory compliance and sustainability. This will not happen overnight and will rely on a series of Asset Programmes over a 5 to 10 year period. 3.11 A key element of good Asset Management Planning is to challenge the

use of land and buildings held by the Council in support of service delivery and our communities. This involves keeping the property portfolio under review, as well as implementing a range of programmes of change.

3.12 Other issues that affect Asset Management Planning include; the

Comprehensive Area Assessment and the Audit Commission Key Lines of Enquiry for Use of Resources, the opportunities for Community Asset Transfer following the Quirk Report, the Pitt Review on flooding and the opportunities and risks associated with planning agreements Act (“developer contributions”).under section 106 of the Town and


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Country Planning towards the provision of public infrastructure necessitated by new developments.

3.13 In 2008 the Audit Commission replaced the Comprehensive

Performance Assessment for Councils with a new Comprehensive Area Assessment, which focuses local authorities’ ability to deliver outcomes for their communities. Within this new framework local authorities are assessed as part of the Organisational Assessment (Use of Resources) specifically against the key line of enquiry – “does the organisation manage its assets effectively to help deliver its strategic priorities and service needs?” This specific focus on Councils’ asset management in addition to the wider Area Assessment is helping continue to inform and support the development of Cumbria’s asset strategies and approach to managing our assets.

3.14 In September 2006, the Secretary of State for Communities and Local

Government commissioned Barry Quirk, the Chief Executive of Lewisham Council, to review the barriers and incentives affecting the transfer of public assets to community management and ownership.

3.15 The Quirk Review team’s report, ‘Making Assets Work’ was published

in May 2007, and set out three firm conclusions:

� Any sale or transfer of public assets to community ownership and management needs to realise social or community benefits without risking wider public interest concerns and without community purposes becoming overly burdened by operational considerations.

� The benefits of community management and ownership of public assets can outweigh the risks and opportunity costs. There are no substantive impediments to the transfer of public assets to communities provided these risks and opportunity costs are considered thoroughly.

� There are risks but they can be minimised and managed if all parties work together. This needs political will, managerial imagination and a more business focused approach from the public and community sectors.

3.16 The government, through its response to the Quirk Report ‘Opening the

Transfer Window’, accepted in full the recommendations of the Quirk Report in May 2007.

3.17 Cumbria County Council has a track record in transferring assets into

community ownership or management using ‘The Well-Being Provisions’ contained in the ODPM Circular 06/2003 Local Government Act 1972: General Disposal Consent (England) 2003, where there is a desire for transfer of assets at less than market value.


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3.18 The guidance provided by the Pitt Report is most significant to Cumbria as the county has suffered from severe flooding in the last five years, most recently in Keswick, Cockermouth and Workington where the effects were catastrophic. Notwithstanding the tragic loss of life resulting from the floods of November 2009, the unprecedented impact associated with the loss of road bridges most notably in Workington but also across the County and the extensive damage to residential, commercial and agricultural property, the impact on County Council property was relatively minor in comparison, however, the County will continue to take account of the impact of flooding on its property and how its property can impact on the frequency and severity of flooding.

3.19 The County Council is developing its approach to securing public

infrastructure required as a result of new development and in particular is working with Local Planning Authorities and developers in order to ensure that the impact of new development on existing and new infrastructure is managed. This approach includes for example the negotiation of developer contributions towards the provision of new school capacity at existing schools by way of extensions or alternatively the provision of that capacity as part of the new development. When considering the need for developer contributions an assessment is undertaken of the existing capacity and the ability of the existing schools to sustain further pupils. Where appropriate County Council funding and developer contributions are combined to provide the best solution for the delivery of education and Children’s Services.

3.20 Further work in this sphere will be required, in order to ensure that the

County Council plays an effective role in the proposed Community Infrastructure Levy and the assessment of the infrastructure required to service proposed development.


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4.0 Asset Management Planning in Cumbria County Council 4.1 Cumbria County Council’s Asset Management Planning process

underpins the development of the Council’s Corporate Strategy by linking into the Corporate Planning process at strategic and service levels, including through Team or Unit plans, Service planning and Directorate Planning. This is achieved via the Council’s Heads of Service Asset Management Planning Group and ensures that service, directorate, strategic and cross-cutting issues are linked.

4.2 The diagram below shows how national outcomes and local priorities

come together in the Cumbria community strategy this is then developed into the Council Plan, which through Directorate planning and servicing planning runs through to the teams and Units and appraisals of individual members of staff.

Figure 4.1: Cumbria County Council Corporate Planning Process

4.3 The Asset Management Planning process and its role as part of the

Councils overall business planning process is illustrated in figure below. This diagram illustrates that Asset Management Planning is not just the domain of the Council’s Property Unit, but also requires input from a variety of stakeholders. Furthermore, it shows that this is a process which is aligned with the Councils overall business planning processes.


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Figure 4.2: Asset Management Planning Process

CORPORATE STRATEGY

Asset Strategy

Asset Category Reviews

Asset Area

Reviews

Business Cases and

Programmes

ICT Strategy

Workforce Development

Plan

Capital Strategy

Implementation

Investment Plan for

Property

Current Expenditure Programme

Capital Expenditure Programme

Partners Financial Context

Corporate Operations and

Governance

External Environment

Directorate Strategies

Outcomes


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4.4 The Heads of Service Asset Management Group terms of reference

are set out in Appendix A and illustrates the Asset Management Planning Process adopted. The group aims to ensure that a corporate strategic approach is taken on property asset management to assist in the delivery of service priorities. This enables the Property Unit’s Asset Management team to facilitate the Asset Management Planning process throughout the Council with substantial input from the Directorates ensuring the Asset Management Planning process reflects all corporate requirements.

4.5 This Group will be adjusted following completion of the Heads of

Service review and will link with the new Strategic Investment Group that oversees the development of the Capital Strategy and the implementation of the capital programme.

4.6 The major capital programmes (over £1m) are now monitored via the

Corporate Management Team Programme Board, chaired by the Chief Executive. This board monitors programmes such as the Academies, Fire and Rescue Service PFI and the Council’s office transformation programme; Better Places for Work.

4.7 Asset management is not something that is developed and delivered in

isolation; rather it is at the heart of the Cumbria County Council’s strategic resource planning, with input from all Directorates through a range of mechanisms including the Heads of Service Asset Management Planning Group and the Council’s service planning process.

4.8 The County Council’s governance structure incorporates a Leader,

Cabinet and Scrutiny function. The Cabinet Member for Resources has the portfolio responsibility for Asset Management within the Council.

4.9 The Council’s property service is delivered by the Property Unit, part of

the Resources Directorate and is led by the Head of Property and Asset Management (the Corporate Property Officer), and comprises of 4 teams, Maintenance, Property Strategy, Building Programmes (including Energy Management), Land & Property. The service provides corporate property and asset management services to the council, ensuring our property portfolio is fit for purpose, compliant, represents value for money and is sustainable. The Property Unit commissions and delivers property services via our strategic service delivery partner Capita. The Property Unit has recently merged with the Children’s Service Asset Management Team in order to ensure construction and property related services are delivered corporately.

4.10 A Property Strategy Manager was appointed in December 2008 and is

responsible for clienting the formulation, delivery and review of the


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Asset Strategy and Asset Management Plan. In addition an Asset Information Officer has been appointed to coordinate the collation, maintenance and reporting of asset information, which is the cornerstone of sound asset management planning.

4.11 In order to develop the asset management planning service further, the

Council has commissioned the procurement of an Asset Management System and this will enable us to bring all asset information together in one location to support strategic decision making on the use of property assets.

4.12 The new system will ensure accurate property information is readily

available to the Property Unit, Council Directorates, Capita (and future service delivery organisations), Members and in due course core information will be made available to the public via the internet. The new system will compliment the Energy Management System (Systems Link), that is already in place and provides comprehensive information on the use of energy and other utilities in Council property.

4.13 It is intended that the asset information system will be integrated, with

other key systems such as e5 (Finance), Planning, Geographic Information Systems and service delivery partner(s) systems. The system will be a web based so that access to and hence use of property data can be maximised.

4.14 In recent years there have been a number of significant developments

in or affecting the property service including, a fundamental review of how property and construction related activities are delivered in the County Council (December 2006), a Cumbria-wide Property Review (October 2007), a Cumbria Care Review, output from the Schools Reorganisation Process, a Library Review, a Waste Management review, development of Academies, and a Fire and Rescue Service PFI project. These and other more recent programmes of change are considered in detail later in this plan.

4.15 Collaboration with strategic partners is a key element of Asset

Management Planning in Cumbria with the County Council leading the Cumbrian Asset Management Forum (comprising Heads of Asset and Estate Management from the full range of public and third sector organisations in Cumbria) to encourage and develop a strategic approach to Asset Management at District Council, Police, Primary Care Trust, Mental Health Trust, Lake District National Park and Cumbria Voluntary Services level. Strategic approaches to property are, therefore, encouraged across the County with solutions to service delivery issues being generated by and with a number of different strategic partners.


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5.0 STATEMENT OF CURRENT PROPERTY PORTFOLIO 5.1 This section provides an overview of the current property portfolio.

This overview is given in order to help illustrate the extent of the change required in the estate, in light of the various issues that affect asset management.

5.2 Cumbria County Council has an extensive and varied property portfolio

that supports a wide range of service delivery throughout the county. The portfolio was established in 1974 with the merger of assets from Cumberland, Westmorland and part of Lancashire and has grown organically since then. The portfolio, excluding the rural estate, consists of 800 properties, but also includes a myriad of different parcels of land across the county.

5.3 The largest proportion of the portfolio is accounted for by schools

totalling 326 individual properties. The school estate extends to approximately 82% of the total gross internal floor area. In addition the County Council provides Libraries (48), Fire Stations (40), Care Homes (33), Offices (78) and a variety of other properties that support service delivery or are held for sale, development or as community assets.

5.4 The rural estate extends to approximately 620 hectares and consists of

19 farm steadings and miscellaneous land. 5.5 The total asset value for the County Council’s land and buildings was

£695 million as at March 2009. 5.6 The tables and figures below illustrate the current portfolio and the

maps attached at Appendix B illustrate the distribution of property assets across the County, excluding land.


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Figure 5.1 Number of Properties by Service Area

Number of Properties

(By Service Area)

6

275

3733316

3

49

38

5

78

42

21 19

Nursery Schools

Primary Schools

Secondary Schools

Pupil Referral Units

Elderly Persons Home

Disability Mental HealthHomesOutdoor EducationCentresLibraries

Fire Stations

Special Schools

Offices

Adult Education Centres

Highway Depots

Rural Properties

* includes all schools, community, voluntary controlled, voluntary aided, academies and represent the current position in 2009/2010.

Figure 5.2 Property Types by Floor Area

Property Service Areas

By Size (sqm)

2,250

260,000

330,000

2,400

40,000

3,800

1,900

18,000

15,000

9,600

51,000

Nursery Schools

Primary Schools

Secondary Schools

Pupil Referral Units

Elderly Persons Home

Disability Mental Health Homes

Outdoor Education Centres

Libraries

Fire Stations

Special Schools

Offices


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Figure 5.3 Number of Properties by District and Town

DISTRICT No. OF PROPERTIES Allerdale 165 Barrow-In-Furness 96 Carlisle 154 Copeland 110 Eden 104 South Lakeland 176

TOWN No. OF PROPERTIES

ALLERDALE

Aspatria 8

Cockermouth 19

Keswick 11

Maryport 24

Silloth 5

Wigton 16

Workington 47

BARROW-IN-FURNESS

Askam-In-Furness 4

Barrow-In-Furness 80

Dalton-In-Furness 9

CARLISLE

Brampton 8

Carlisle 112

Dalston 5

Longtown 9

COPELAND

Cleator Moor 8

Egremont 12

Frizington 9

Millom 16

Seascale 4

Whitehaven 41

EDEN

Alston 13

Appleby 8

Kirkby Stephen 11

Penrith 29

SOUTH LAKELAND

Broughton-In-Furness 11

Coniston 5

Grange-Over-Sands 5

Kendal 53

Kirkby Lonsdale 5

Milnthorpe 9

Sedbergh 6

Ulverston 32


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Windermere 14

5.7 Cumbria County Council also holds in addition to operational property

the following types of property, although the majority are leased out and enable other organisations to deliver services;

� Hotel � Hospital � Civil Engineering Laboratory � Ferry Boat Landing � Telecommunication Masts � Public Swimming Pools � Farms

5.8 The Property Portfolio also encompasses a number of tracts of land around Cumbria, which also have a variety of uses to the Council, Schools and partner agencies; � Playing Fields � Economic Development Land � Former Industrial Land (Mines etc) � Landfill Quarries � Waste Disposal / Civil Amenity Sites � Access Routes � Allotments � Car Parks � Farm Land � Monuments

5.9 Stock Condition

5.10 The maintenance needs of individual premises are assessed as part of a rolling five year programme of condition surveys. These surveys are carried out by our strategic partner, Capita. The condition survey data is held on our current asset management system, Evolution which will be decommissioned when the new system is in place.

5.11 The total backlog maintenance lies in the region of £53 million and can

be broken down into the following areas; 5.12 Children’s Services Property (Including Nursery, Primary,

Secondary and Special Schools, Pupil Referral Units and Outdoor Centres)

� Priority 1 urgent work to prevent immediate closure - £0.3m � Priority 2 essential work required within 2 years - £12m � Priority 3 desirable work required within 3 to 5 years - £18m � Priority 4 long term work beyond five years - £14.4m

based on the 2007/2008 condition survey.


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5.14 Other Cumbria County Council Property (Including all buildings that

are managed via the Councils Central Maintenance Fund)

� Priority 1 urgent work to prevent immediate closure - £0m � Priority 2 essential work required within two years - £0m � Priority 3 desirable work required within 3 to 5 years - £3m � Priority 4 long term work beyond five years - £5.8 m based on the 2001 condition survey. The Council has now moved to a quinquennial condition survey programme, where 20% of the stock is surveyed each year and it is anticipated that these condition surveys will highlight additional repair requirements. The new condition surveys have been adapted to include whole life cycle costings.

5.15 There is, therefore, a significant backlog of identified maintenance

work and backlog maintenance is a major consideration in assessing the future sustainability of property.

5.16 Sustainability - Energy and other utilities

5.17 Energy and water data has been collected for each individual building enabling assessment of the environmental efficiency or sustainability of the Councils stock. In addition all Public Sector properties over 1,000 sqm are required to have Display Energy Certificates (DECs) that show the current energy consumption and the extent to which this could be improved. The Property Unit has either produced or commissioned the production of the requisite DECs and continues to maintain detailed energy and other utilities consumption data on its Systems Link energy management system.

5.18 Analysis of the 2007-08 revenue expenditure outturn shows that

across all properties approximately £7 million was spent on electricity/gas/fuel with a further £1.7 million on water services. Schools account for the largest expenditure at around 71% of the total cost. A breakdown of these costs is shown below.

Figure 5.4 Analysis of Expenditure on Utilities

CUMBRIA COUNTY COUNCIL – ENERGY AND WATER COSTS (2007/2008)

SCHOOL

PROPERTIES NON-SCHOOL PROPERTIES

TOTALS

Electricity £984,000 £955,000 £1,939,000 Gas £1,100,000 £988,000 £2,088,000 Oil £205,000 £91,000 £296,000 Coal £800 £200 £1000 Other £2,677,000 £5,800 £2,682,800 Water £1,258,000 £468,000 £1,726,000 TOTALS £6,224,800 £2,508,000 £8,732,800


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5.19 The Councils use and occupation of property gives rise to carbon

emissions and so increases our carbon footprint. The Council’s Carbon Reduction Programme commits the organisation to reduce its carbon emissions by 25% of the 2007 carbon baseline by December 2012. Projects are already identified and projected to achieve over 90% of this saving. Other ongoing and proposed projects will deliver carbon savings (and financial savings), but these are not yet quantified. In addition new schemes will be developed with the assistance of the cross authority Carbon Reduction Team.

5.20 The County Council approved its sustainability strategy and associated

action plan in January 2004. Both were updated and approved by Cabinet in May 2006. Provision was made for education for sustainable development through support for the Cumbria Education 21 Partnership with funding and staff resources and the ambition of developing school travel plans for each school.

5.21 The existing sustainability strategy now needs to be reviewed to reflect

changes on climate change and other policy areas and this is programmed for 2010 following completion of the re-organisation of the council’s Environment Directorate.

5.22 The re-organisation of the Environment Directorate will integrate the

Council’s Waste Prevention Team with the Sustainability Team and provides an opportunity to strengthen the council’s support for sustainable schools. This will be captured in the revised sustainability strategy.

5.23 The Waste Prevention Team, with support from the regional

sustainable schools co-ordinator, provide schools with tuition, advice and guidance on sustainable waste management and work as part of the Education 21 Partnership to introduce other organisations that can help schools become more sustainable. The team’s ambition is to have 65% of all schools become eco-schools by 2012 and to have every Cumbrian school working towards accreditation by 2015. As at January 2010, 153 schools (42%) are registered on the Eco-Schools award scheme.

5.24 Currently the council has a carbon reduction plan that links to the

sustainability strategy and the council plan. This recognises that schools produce around 60% of the council’s carbon footprint from on site energy use. The council’s Energy Manager has drawn up an energy efficiency programme for 2009/10 and 2010/11, which is being implemented and has been allocated £500,000 over the two years with support from the Salix Programme. The carbon savings made will contribute to reaching the Authority’s overall 25% carbon reduction target by 2012.


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5.25 Further work is taking place to strengthen energy use and carbon emission reporting from schools in preparation for the introduction of the Carbon Reduction Commitment – Energy Efficiency Scheme. The new reporting systems being introduced also capture water consumption data and will enable water usage to be monitored and managed, thereby ensuring efficiencies can be identified and secured.

5.26 The Council is committed to producing a travel plan for each school in

Cumbria by end of March 2010 under its Better Ways to Schools programme. Around 14% of schools have yet to have travel plans developed but the 100% target is expected to be met on time. A new local transport plan for Cumbria is at an early stage of development but is scheduled for implementation from April 2011. As part of this process, an Active Travel to Schools programme is being developed and is expected to commence in April 2010. This is designed to induce a modal shift from cars to cycling and walking to school and will complement the existing travel plans which favour public transport and car sharing as well as cycling and walking to school.

5.27 A key benefit of the Better Places for Work programme will be

sustainability. The programme will contribute to the reduction of the Council’s carbon footprint in a number of ways, including reduced energy and utility use, sustainable construction and reduced travel (supported by travel plans).

5.28 Accessibility 5.29 The County Council has undertaken a range of improvements to its

property in order to ensure it is compliant with the Disability Discrimination Act 1995 (DDA). Disabled access surveys have been carried out to all the County’s public access buildings. Access audits have been compiled and access plans have been put in place. A five year rolling programme of audits is being implemented to ensure information is kept up-to-date and wherever possible disabled access is improved.

5.30 Funding has been set aside to help deliver improvements in the

accessibility of County Council property. Where possible this funding is combined with maintenance or construction projects in order to maximise the impact from the investment.

5.31 The most fundamental change to accessibility will, however, be

delivered by transforming our property portfolio through the various asset programmes that are underway or planned, including transformation of schools, fire stations, offices and Local Link portfolios.


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5.32 Property Performance 5.33 The use of performance indicators and benchmarking to establish how

the County's property assets perform against other assets and other Local Authorities and organisations is developing. The County Council’s Property Unit has adopted the performance indicators of the National Property Performance Management Initiative (NaPPMI). 150 local authorities have signed up to this benchmarking system and to date NaPPMI has established seven recommended indicators which the member authorities use, these are;

� Condition of asset and required maintenance; � Environmental property issues; � Suitability surveys mainly linked to schools; � Building accessibility surveys; � Sufficiency (capacity and utilisation) for offices; � Spend on property costs, including repairs and maintenance,

energy, cleaning and rents payable; � Accuracy of forecasts investments and timing in capital works.

5.34 Cumbria County Council aims to improve its asset performance by

benchmarking against the above indicators, however, there is further work to be undertaken in order to ensure that we are measuring performance correctly and importantly that we are not just monitoring performance but managing it too. This work will be facilitated by the additional resources being brought into the Property Strategy team and the implementation of the new Asset Management System.

5.35 In addition, projects and programmes are required to monitor

performance as part of the Council’s project management toolkit and this includes property performance. The Better Places for Work Programme will include a benefits realisation workstream that will measure the performance of the programme and the individual projects within the programme against agreed critical success factors including property performance.

5.36 The Council’s property portfolio is kept under review to ensure that it

remains suitable and sufficient for service delivery. The review process includes county wide reviews (as undertaken by Capita in 2007 in conjunction with Carlisle City Council and incorporating information form other public sector organisations), area or town reviews, strategic reviews such as the Cumbria Care/Closer to Home (PCT) review programme and by property use such as Fire Stations, Libraries, Schools and Offices. The suitability and sufficiency of the County’s property is reviewed by the Property Unit in conjunction with service Directorates and the outcome of these reviews is used to help inform changes to the portfolio.


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5.37 All property will at some point in its life cycle be subject to review for a whole range of reasons, including a change in service requirements, technological advances and because a stage has been reached in the property’s life when fundamental decisions need to be taken as regards further major investment eg the need to refurbish or alternatively the need to remodel or redevelop. It would be inappropriate, therefore, to say that specific properties are immune from review and better to say that in theory all property is subject to review at some point in its life cycle.

5.38 The County Council is constantly reviewing its asset information and in

particular has to take account of changes that occur across the Council’s portfolio every year. In an effort to establish the extent of the property review process at this time, the schedule of property attached at Appendix C provides an overview of the current status of each property and offers a view on the current asset strategy for each property. The schedule represents work in progress and the position will continue to change, however, this provides a snapshot of the current position.

5.39 The schedule identifies whether or not the properties are operational or

non-operational and where they are subject to current reviews and/or held for sale or letting.

5.40 This schedule is only intended as a guide and there will be properties

that are identified as under review, however, formal decisions on their future use may not have been taken and will be subject to appropriate consultation, business case development and other contributing factors.


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6.0 Key Areas of Change 6.1 There is a considerable amount of change underway in Cumbria and

the County’s property portfolio is at the heart of the majority of this change via a number of strategic programmes of change.

6.2 These programmes underpin the Council’s 6 themes as illustrated

below. Figure 6.1 Cumbria County Council Themes

Wealthier

Healthier

Happier

Safer

Greener

Better Council Services

6.3 There are a number of Asset Programmes currently underway across the County and at various stages of development and delivery, including;

� Local Links - (Customer Access Programme) have been created in 12 locations across the County including; Alston Town Hall in collaboration with Eden District Council and Alston Town Council, Wigton Market Hall in conjunction with Allerdale Borough Council and other stakeholders and Cleator Moor Library in conjunction with Copeland Borough Council;

� Better Places for Work Programme - Office Accommodation Strategy. A Short, Medium and Long Term Strategy for County Council offices (potential Corporate Headquarters, Front Office locations/Local Links, supported by key back office locations and more effective use of other County Council accommodation);

� Schools Organisation Programme - Secondary Schools and Academies (Lochinvar, St Aidans, NCTC, Morton, Wyndham, Ehenside, Thorncliffe, Park View, Alfred Barrow schools), resulting in 4 new Academies;


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� Schools Organisation Programme - Primary School Strategy development - Junior and Infant Schools (eg Belah, Brampton Junior/Infants schools);

� Fire And Rescue Service PFI - 5 New Fire Stations and Community facilities, with a further 2 new stations at feasibility stage;

� Library and Archive Service - in conjunction with Customer Access (Local Links); Cumbria Archive Project - Lady Gillford House, Carlisle, which will allow the relocation of the Archive Service from various locations that are not fit for purpose, including Carlisle Castle.

� Pilot Service and Property Reviews - Longtown and Brampton in conjunction with Carlisle City Council, PCT, Parish Councils, et al;

� Community Asset Transfer - Development Trusts Association - Asset Transfer Demonstration Projects (Quirk Review) and other asset transfer projects;

� Affordable Housing - The role of County Council land and

property in facilitating the delivery of affordable housing in the County.

� Cumbria Care Review - Phase 1 Consultation on Care Homes

at Alston, Brampton, Keswick, Millom, Penrith, Wigton in conjunction with the Primary Care Trusts Closer to Home Programme and consultation on a new care home for Barrow;

� Children’s Centres - throughout Cumbria (new build, refurbishment and by acquisition);

� Depots Review - New depots at Lillyhall and Brampton and the disposal of former depots at Cockermouth and Brampton. Further reviews required in conjunction with service review;

� Waste Management Programme - Procurement of new service provider and facilities;

� Carlisle Northern Development Route - Land acquisition and depots;

6.4 Some of the various programmes of change are considered in more

detail below;


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6.5 Local Links (Customer Access Programme) 6.6 The catalyst for Local Links was the Audit Commission’s report on

customer services and user focus across Cumbria. Cumbria County Council, the six district/borough councils, the Lake District National Park Authority, the police and other public and not for profit organisations, are working together to improve access to public services in Cumbria. The partner organisations have developed a three year programme for the opening up to 28 face-to-face service delivery points, branded as Local Links, across the county.

6.7 Twelve Local Links have been opened across the County to date.

Working together in one building is more cost effective and in many cases pooling resources has meant services are even better by extending library opening hours and making meeting rooms and video conferencing facilities available to local communities.

6.8 One Local Link project under development is that at Kirkby Stephen,

which is intended to be a combined Local Link, Children’s Centre, Library and potentially the Tourist Information Centre.

6.9 This project demonstrates a clear strategic approach to asset management by taking a surplus and long under utilised listed former Grammar school (previously used as a Youth facility) and bringing it back into beneficial use by combining the needs of the Library Service (currently occupying expensive and not fit for purpose rented accommodation and housing the current council centre) with funding for a new Children’s Centre and a Local Link in one building.

6.10 The new facility will also act as a new Tourist Information Centre,

subject to agreement with Eden District Council. This project demonstrates the strategic approach taken by the County Council’s Children’s Services, Adult and Cultural Services, Chief Executives Office (Communications), Resources (Property Unit), the local community including the Town Council and the District Council working together to deliver a much needed, more sustainable multi-functional facility.

6.11 Further Local Link projects are being developed in Keswick, Cockermouth and Brampton and are acting as a catalyst for bringing together other asset strategies. The Keswick Shared Services project involves the Lake District National Park, Town Council, Allerdale Borough Council, County Council and Police working together in order to develop Local Link that satisfies all parties current needs.


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6.12 The Cockermouth Asset Strategy involves the County Council, PCT, Police, Fire & Rescue Service, Allerdale Borough Council and the Town Council working together to develop a Local Link and shared services/facilities. Following the flooding in November, the parties have started to develop a short and longer term plan for the delivery of services taking into account the damage done to key facilities, such as the Police Station and Library.

6.13 Better Places for Work Programme

6.14 Through the “Better Places for Work” programme the Council’s property portfolio is being reviewed so that it can be transformed to ensure it is fit for purpose and provides value for money, whilst delivering better access to services and outcomes for local communities.

6.15 The aim is to transform the Council’s back-office accommodation from

traditional 19th and 20th century offices to 21st century offices permitting modern ways of working, taking advantage of modern technology. This programme will enable efficiencies and savings in the future and reduce the Council’s impact on the environment through occupying less extensive, more efficient property that requires less maintenance and is lower cost in use. The programme will also enable the Council to improve its customer facing service delivery through the use of modern technology allowing services to be delivered efficiently and effectively in the community and at more “customer friendly” locations in modern fit for purpose facilities (Local Links).

6.16 The Council agreed that the “Better Places for Work” programme,

would be initiated with two key pilot projects commencing in Carlisle and Whitehaven.

6.17 The Whitehaven Pilot has progressed to the point where new

accommodation has been acquired in Whitehaven (Blencathra House the former HM Revenues and Customs offices (HMRC)), which will act as the primary back office for staff delivering services in the Copeland area. HMRC have now moved to a call centre facility developed via Cumbria County Council and are also looking to have a front office presence at Copeland Borough Councils main office at The Copeland Centre. Three main offices for Children’s and Adult and Cultural Services will be merged into one back office supporting delivery of services in the community with a new local link planned at the Copeland Borough Council offices at the Copeland Centre in Whitehaven.


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6.18 The County Council has sought a developer partner to help deliver a new single back office for Carlisle that will serve the circa 1000 staff currently delivering services from Carlisle and the surrounding area. This new office will be supported by a new Local Link created in conjunction with Carlisle City Council in the Civic Centre. This Local Link is also intended to include front office access to other public sector services.

6.19 During 2010/11 and beyond, the council will roll this programme out

throughout the County, creating further efficient, modern office space while cutting down on the large number of outmoded buildings we currently use around the county. The strategy is to create five main back offices supported by Local Links and office space/facilities in existing community buildings, such as schools. The strategy will also consider whether or not to create a new corporate headquarters in conjunction with other public sector organisations.

6.20 The Better Places for Work Programme will also take account of the

ongoing organisational restructures and will endeavour, where possible within the existing estate, to bring staff from Directorates together in the same location in order to maximise synergies.

6.21 The programme is funded by an initial capital investment of £500,000

per annum for three years, capital receipts from asset disposals, revenue savings from surrendered leasehold accommodation and efficiencies resulting from moving staff from a number of locations into fewer locations.

6.22 School Organisation Programme 6.23 The County Council wants to make sure that every child has the best

possible opportunity to meet his or her full potential. Our capital investment strategy is aimed at facilitating that by providing high-quality, multi-use, flexible facilities that will provide environments in which our children and young people can develop and thrive. Opportunities for linking up capital funding streams will be sought to make sure that as much as possible is achieved with the resources available to us.

6.24 Improvements in education will not simply materialise because new

buildings are provided. Investment and design need to be predicated on sound educational principles and the needs of current and future learners. This will involve thinking about new ways of delivering the curriculum and enabling young people to learn in different ways that might better suit their individual needs and strengths. Our ‘Strategy for Learning’ sets out in detail the principles underpinning future investment and work will continue on new models of curriculum delivery to make sure that young Cumbrians achieve the best possible outcomes.


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6.25 The Council has embarked on a programme of review of the current secondary school provision and is looking to link future investment plans with the capital strategies of other public organisations, such as Allerdale Borough Council in Workington. Allerdale are looking to change their leisure offer at the same time as the County is looking to develop a new secondary school; the two Councils are working together to ensure a strategic solution can be achieved.

6.26 Academies 6.27 This is a strategic approach to the delivery of secondary education by

creating four new academies, two in Carlisle (Richard Rose Central and Morton) along with a new Youth Zone at Richard Rose Central and one in each of Egremont and Barrow. The two Carlisle Academies will replace three secondary schools.

6.28 Two of the original sites are being redeveloped as Academies and one

is intended to act as the catalyst for the regeneration of a key local community (Harraby). The West Lakes Academy in Egremont, replaces two secondary schools and is to be built on one of the original school sites and the surplus site, Ehenside is intended to be used as a catalyst to regeneration in Cleator Moor. The creation of the Furness Academy has resulted in Alfred Barrow School (part listed) being declared surplus to requirements, however, prior to the property being sold or redeveloped, it is being used as decant space for two primary schools that are being refurbished nearby. It is intended that the County Council formulates a development brief for this strategically located property and site, in conjunction with the Local Planning Authority, Barrow Borough Council and other stakeholders ahead of any disposal or redevelopment.

6.29 The Academies Programme is currently being overseen by a dedicated

Project Director, who reports to the Council’s Corporate Management Team Programme Board. The County Council is responsible for delivering the schemes on behalf of the government and the individual Academy sponsors and the Project Director provides liaison between Academy management and the appointed construction partners, Kier Construction.

6.30 Primary Capital Programme (PCP) 6.31 The aim of the PCP is to improve standards of attainment in primary

schools and to help ‘close the gap’ between low and high achievers by targeting investment at schools where standards are poorest and towards the areas of highest deprivation. The funding will enable new ways of curriculum delivery and learning to thrive.


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6.32 The programme was launched in pilot form in 2008, with the expectation that Local Authorities would receive PCP funding in each of the following 15 years (14 years for those, like Cumbria, which joined it in 2009-10). Initial allocations for the first two years of the programme totalling around £12m are currently being invested in 3 major projects in Barrow.

6.33 The Barrow programme involves the refurbishment of two primary

schools (St Georges and Barrow Island Schools) and the development of one new build primary school for Vickerstown. The existing Vickerstown school will become surplus to requirements once the new school is opened and the County Council will follow its disposal procedure that includes the potential for Community Asset Transfer providing a sustainable use can be identified. The programme involves Funding allocations for 2011-12 and beyond have not yet been revealed, but it might be expected that around £4m-£5m will be allocated to Cumbria each year.

6.34 PCP projects are being delivered by the Authority’s Property Unit.

However, advice to elected members on prioritisation of schools for investment rests with Children’s Services and it is likely that those priorities will need to be regularly revisited throughout the Programme as government and local needs change.

6.35 All of this work on schools will be underpinned by ongoing work on

models of future delivery and school organisation and this is expected to be completed over the next 12 months.

6.36 Fire and Rescue Service - Private Finance Initiative (PFI) 6.37 The Cumbria Fire & Rescue Service (CFRS) will achieve its aims and

objectives by providing new and improved facilities in the appropriate locations, for fire fighters and the communities they serve. This will be done through the North West Fire & Rescue Service PFI Project (2011-13) and the Fire Station Capital build programme (2010-11). The partnership working in the PFI Project will assist in delivering cost effective, sustainable, energy efficient assets. Existing buildings will, where possible be improved to ensure that they are ‘Better Places for Work’ this will be achieved by the introduction of new technology to develop more efficient working practices. New telephone systems, wireless enablement and Multi Function Devices will improve the environment and increase the building potential through ‘hot desking’.

6.38 CFRS is represented on the CCC Carbon Reduction Team and will

actively work to reduce energy use within our properties to contribute to the County Councils Carbon Reduction targets. By maximising the use of our assets for Community Safety and youth intervention activities the service will reduce the risk of death or serious injury within the county through prevention and protection.


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6.39 CFRS will through a process of monitoring and assessment feed all aspects of building maintenance and improvement back to the Property Unit to assist in the production on the property maintenance plan. Proactive identification of improvements to ensure DDA compliance and our commitment to the Equality and Diversity Strategy will ensure that our buildings are fit for purpose for our workforce and the communities they serve. These improvements will assist in attracting potential employees form under represented groups.

6.40 The CFRS aspires to make our communities safer by ensuring that

Fire Stations are appropriately located and improved to enable the intervention response standards, as laid down in the Service’s integrated Risk Management Plan to be met. The County Council will ensure that all new buildings meet the requirements of the Council’s sustainability policies as a minimum.

6.41 The CFRS has embarked on a PFI and this programme involves the

creation of five new fire stations, in order to improve service delivery. The new stations will be located in Carlisle (East and West), Workington, Penrith and Patterdale in the Lake District National Park. The programme takes advantage of surplus land owned by the Council and will lead to surplus fire stations and sites being used for alternative projects eg Penrith Fire Station could be part of the proposed new Health and Care facilities under the Primary Care Trusts Closer to Home and Community Ventures programme. The original Carlisle Fire Station that was flooded in 2005, is expected to be marketed ahead of the completion of the two new Carlisle Fire stations.

6.42 In addition the CFRS is looking to take advantage of the Fire Station

Capital build programme (2010-11) and has initiated site searches for two new fire stations in key locations in the County.

6.43 Cumbria Library and Archive Services 6.44 The public Library Service in Cumbria is delivered from 48 static and 6

mobile libraries. Its headquarters is in the Arroyo Building at Carlisle Castle. In addition Library Services for Schools (LSS) operates a small fleet of 3 mobile libraries from its main base at Botchergate, Carlisle.

6.45 Of the 48 static libraries, 35 are in Council owned premises, while 13

are in rented accommodation. The general condition of library buildings is fair to good with almost all being fully DDA compliant.

6.46 The long term aim of the Service is to improve the quality of its building

stock through the shared service agenda (e.g. Local Links), the development of alternative forms of service delivery (e.g. Library Links) and the rationalisation and disposal of sub standard accommodation.


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6.47 The Archive Service currently operates four public record offices (in Barrow, Carlisle, Kendal and Whitehaven), two modern records centres (in Carlisle) and an archive outstore (at Houghton, near Carlisle).

6.48 The Record Office in Barrow is a discrete part of the Barrow Library

complex, the Record Office in Kendal is on the lower ground floor of the County Hall Offices building and the Whitehaven Record Office also houses the Local Studies Library in a stand alone building on Scotch Street adjacent to the Police Station.

6.49 The Carlisle Record Office is currently housed in the Alma Building at

Carlisle Castle (leased from English Heritage) but it is scheduled to transfer to Upperby later this year, where it will occupy the soon-to-be-completed conversion and extension of Lady Gillford’s House (owned by CCC).

6.50 The new Cumbria archive is funded by a combination of County

Council capital and Heritage Lottery grant. This new facility is being created using a surplus listed building and adjacent land and will bring these assets back into beneficial use. The new facility will allow the Council to bring together all aspects of its archive service and this will include moving out of property that is not fit for purpose and is leased in at relatively high cost.

6.51 The general condition and decoration of the Record Offices is good but

all currently suffer from chronic shortage of storage accommodation. Together with high quality public facilities the new Carlisle development will provide additional storage capacity to provide for 25 years growth of the Carlisle archive collections, but this will do little to relieve the pressure on storage elsewhere in the County. For this reason the archive outstore at Houghton near Carlisle will need to be retained to accommodate the growing archive collections from the other three Record Offices.

6.52 In addition to the public offices, the Archive Service also operates a

Records Management Unit for the County Council’s Directorates and other public sector bodies including several of the District Councils and the Lake District National Park Authority. The Records Management Unit currently operates from two adapted modern records centres in Carlisle, at Ashley Street (in one wing of Caldew Lea School) and at Lord Street. The accommodation at Ashley Street is poor whilst Lord Street is generally good. Both sites are chronically short of spare storage capacity, a situation being exacerbated by the pressures of the schools reorganisation programme. In the next one to five years the following property issues will need to be addressed by the Library Service;


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� Cockermouth Library. Following the disastrous floods of

November 2009 the Library is being repaired and refurbished to incorporate a Local Link. The facility should re-open by Easter 2010;

� The continuing “roll out” of the Local Links initiative (due for completion in 2011) will affect a number of other libraries around the County (e.g. Kirkby Stephen);

� Egremont Library will re-locate from its temporary accommodation at the Town Hall to a purpose built facility at West Cumbria Academy by 2012;

� With the planned move of the Resilience Unit to the new PFI fire

station development in Penrith in 2012, it will be possible for Cumbria CC to vacate the Arroyo Building at Carlisle Castle. This will require the re-location of the headquarters staff of the Library Service;

� Increasing use of computers and other equipment will place an increasing strain on the capacity of electrical systems in older library buildings (e.g. Barrow and Kendal).

6.53 In the next five years the Archive Service will see increasing demands made on its new office in Carlisle as it develops its role as a community facility in one of the most disadvantaged wards in Cumbria. Efforts will need to be made to relieve the pressure on storage at the other three sites but it is highly unlikely that the necessary funding will be available for more than stop gap measures.

6.54 The long term aim for the Records Management Unit is to consolidate

its operations on a single site, where high density, low cost secure storage accommodation can be provided. Lord Street has the potential for such a development reorganisation programme and could support the Better Places for Work programme.

6.55 Pilot Service and Property Review Projects 6.56 In October 2007 the Council embarked on two pilot service and

property review projects, one in Longtown and one in Brampton. The Longtown project, Longtown Moving Forward, was initiated following the closure of Lochinvar School and instead of simply selling the surplus assets the project sought to engage the Community and other key stakeholders, such as Carlisle City Council and the Parish Council in a review of public services and property in the town with a view to establishing whether there was scope for delivering new facilities and rationalising existing accommodation. It was intended that the surplus land at the former Lochinvar School site would help act as a catalyst for the improvements identified.


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6.57 The project included extensive public and community engagement and

it was concluded that the current nursery and children’s centre were not sustainable in their current accommodation and that the preference would be for a new combined facility in the same location. In addition it was decided that a reorientated and extended Local Link and Library, that incorporated office space for the Parish Council would help to refocus public services in the town.

6.58 As part of the project, it is intended to improve the Community playing

field owned by the Parish Council, including the provision of new changing facilities, in order to enhance the sports facilities available and facilitate the relocation of teams who used the former secondary school site. The project includes the retention of the Multi Use Games Area adjacent to the existing primary school and the development of the Lochnivar School site for a range of housing, public open space and play areas, subject to planning.

6.59 Should the Parish Council office move to the new Local Link this will

allow the Parish Council to sell its existing dated accommodation and subject to an appropriate community group being available or created with a robust business case, there may well be scope for transferring any new Children’s Centre/Nursery to the community as a community asset transfer. It is intended that this opportunity is explored in due course.

6.60 The Brampton project involved the engagement of a wider range of

stakeholders and was intended to coordinate the significant potential investment planned for the town, as part of the PCT Closer to Home programme, the Cumbria Care Review, the Local Link programme, the proposed new medical centre, the children’s centre programme, the closure of the local business centre, the Community Associations investment plans and the original Cumbria Wide property review that saw the County Council in collaboration with Carlisle City Council.

6.61 The project considered the potential for bringing the proposed new

community hospital, residential care home, medical centre, children’s centre, community facilities and a local link together, not only in one location but as part of a single facility. The project if successful would result in existing facilities being surplus to requirements and hence available for alternative uses and for the generation of capital receipts for the project stakeholders.

6.62 This ambitious project has not reached a conclusion, however, the

partners are continuing to work collaboratively and it is hoped that the establishment of the Local Improvement Finance Trust (LIFT) development company by the PCT via the Express LIFT programme will help to progress the project.


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6.63 Other shared services and facilities projects are underway in Keswick, Cockermouth, Egremont, Millom, Carlisle and elsewhere in the county and are at various stages of development.

6.64 The Keswick project involves the Town Council, Allerdale Borough

Council, Cumbria County Council, Cumbria Constabulary and the Lake District National Park Authority, all of whom require similar accommodation to deliver public services in the town and have agreed to work together to establish a new Local Link.

6.65 The Cockermouth project was under development prior to the flooding

in November 2009, but has had to be revisited as a result of the flooding. The PCT, Constabulary, Allerdale Borough Council, County Council and Town Council are working on a revised asset strategy for the delivery of public services in the town and are taking into account the various funding and development opportunities that exist post flood, in order to develop a strategy that will transform public services in the town.

6.66 Other projects have been initiated following the closure of school sites

such as Ehenside in Cleator Moor, which was closed following the creation of West Lakes Academy in Egremont. The site has been cleared and will be the subject of a regeneration feasibility study led by the local regeneration group, Regeneration North East Copeland, whose partners include, Copeland Borough Council, Cumbria County Council and Home North West (local Housing Association).

6.67 The creation of the Richard Rose Central Academy included the

closure of St Aidans School in central Carlisle and the North Cumbria Technology College in Harraby. The St Aidans site is being developed as the new Academy, whilst the Harraby site is the temporary home of Richard Rose Academy. The new Academy is scheduled to open in 2011 and the Harraby site will be surplus to requirements. It is intended that the opportunity presented by the closure of the Harraby site will enable a wider regeneration project to be developed that will help determine the future of the existing site and buildings, as well as focus potential investment in community facilities, housing, schools, and care facilities.

6.68 The project will involve a wide range of stakeholders including the local

community (through initiatives such as “Together we can” sponsored by Cumbria County Council, Carlisle City Council and Carlisle Housing), local housing associations, the County and City Councils and the Housing and Communities Agency. This project will be initiated in 2010, but is expected to be a five to ten year programme of change and improvement that makes the most of the best existing facilities and seeks to replace the worst with modern, sustainable shared facilities that will help enhance the quality of place and community cohesion.


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6.69 Community Asset Transfer - Development Trusts Association Demonstration Projects

6.70 The County Council in conjunction with the Development Trusts

Association (DTA) reviewed two proposed community asset transfer projects, one in Barrow and one in Workington, with a view to determining whether or not the assets were suitable for Community Asset Transfer and if so, to identify what action needed to be taken to deliver the projects.

6.71 The DTA concluded that the proposed transfer of the Brisbane Park

Annexe was appropriate and endorsed the Council’s decision to transfer the property, however, a robust business plan was required for the group taking the property. The DTA concluded that there was no case for the transfer of the former Infants School at Harrington and that it should be sold.

6.72 Delivery of Community Asset Transfers has traditionally been a slow

process and subject to the community group securing appropriate funding and importantly having sufficient capacity and capability to deliver the transfer and then make it work. Community Asset Transfers have been achieved and include for example the transfer of Ford Park in Ulverston, the former school at Castle Street, Kendal and the sale of the Crofton Lake, Crofton near Wigton.

6.73 The process needs to be developed further so that it is effective and

efficient and achieves the objectives of both the community and the Council. The process will be developed in light of the guidance issued by the RICS, Transfer of Assets to Community Ownership and Management.

6.74 In the meantime, the Council is working with a number of community

groups and the DTA on various projects that may result in community asset transfer.

6.75 Affordable Housing – The County Council’s role 6.76 Since adopting a revised disposal procedure in 2008 that sought to

facilitate the delivery of affordable housing, Cumbria County Council has offered around 12 hectares of land in different locations to local housing authorities with potential for use in the delivery of affordable housing, subject to contract and planning.

6.77 The County Council is currently at various stages of negotiating the

sale of these sites and is at an advanced stage on 0.38 hectares of land with South Lakeland District Council in the Lake District National Park and the Yorkshire Dales National Park. Potential affordable housing land has also been offered to Carlisle City Council and the County Council is negotiating the transfer of land in Nenthead to a Community Land Trust.


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6.78 There is further scope for using County Council land to facilitate the

delivery of affordable housing in Cumbria and County Council property will play an important role in the Housing and Communities Single Conversation – A better way to achieve positive outcomes for people and places.

6.79 Cumbria Care Review 6.80 Cumbria Care offers residential services, day services and home care

services to older people from many locations around the County. 6.81 Residential Services: It is a well documented that the buildings for

residential services are not fit for purpose as they do not meet current expectations for service delivery to this client group.

6.82 Of the 33 care homes around the county there are only two that would

meet current Care Quality Commission (CQC) national minimum standards for bedroom sizes and even they do not meet the requirements for bathroom provision.

6.83 In 2008 Cumbria County Council consulted widely on proposals to

replace six council-run residential care homes in North Cumbria. The Cumbria Care review is being progressed in conjunction with the Primary Care Trust’s “Closer to Home” programme.

6.84 The proposal is to replace homes, in Wigton, Keswick, Millom, Alston, Penrith and Brampton with state-of-the-art homes on the sites of new and existing community hospitals. The homes need to be replaced because they are not able to meet the needs of older people given small room sizes, a lack of en-suite bathroom facilities and the growing dependency of older people entering residential care.

6.85 After listening to local people's views from the consultation, it has been agreed that “to do nothing is not an option” and, therefore, detailed work is being carried out in conjunction with the Primary Care Trust (PCT) and the newly created Local Improvement Finance Trust (LIFT) Company, on initially the sites at Millom and Brampton. This work includes addressing issues around affordability of the outline designs and if this work progresses to a satisfactory stage then plans will be put to county councillors for consideration.

6.86 There are current plans for consultation on the modernisation of

services in the Furness area which include a new build 60 bed home and the closure of 4 of the 5 existing residential homes in Barrow that are not fit for purpose. Plans for the delivery of residential care in the remaining areas of the County will be developed in due course and will include appropriate community and customer consultation.


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6.87 Home Care Service: This service is operated from 4 offices around the county and all are within the Cumbria Care property portfolio. Office based staff are customer facing, but the customer does not present at the office. All offices will benefit from review as part of the Better Places to Work programme.

6.88 Day Care Services: Older adults day services are operated from a

number of locations around the county these consist of 4 major day centres in purpose built properties (however only one of these is fit for purpose) and 8 minor day services most of which are operated from church halls and community centres. Most of these are not fit for purpose.

6.89 The Cumbria Care day services are currently under review to ascertain

whether they offer value for money. This review will include consideration of alternative ways of providing the service and from alternative locations and whether there is scope to rationalise services and /or work in partnership with other providers and voluntary groups to improve the services.

6.90 Sure Start Children’s Centres 6.91 Sure Start Children’s Centres (SSCC) have been developed over a six-

year period as part of the Sure Start Early Years and Childcare Capital Grant Programme. One of the grant criteria is that any building receiving the Children’s Centre element of the funding stream shall be used as a Children’s Centre for a minimum period of twenty-five years. Now that SSCC have become a statutory service, all buildings within this programme (the current phase comes to end in March 2011) would need a consultation process similar to that of schools, if it was being considered for closure, or change of use, and the Council would be subject to clawback of funding.

6.92 There are a number of different kinds of Centre ranging from new,

purpose-built facilities, to Centres using spare capacity within schools. Some are in converted community centres, while others share facilities with other public services such as libraries and local links.

6.93 All buildings are currently being assessed to create a comprehensive

asset maintenance plan, which will be managed through the County Councils maintenance programme. The aspiration is that Centres will be maintained at the current level and be beacons of good practice.

6.94 There is at least one Children’s Centre in every Key Service Centre in

the County and larger settlements have satellite centres in the local communities. In the current SSCC portfolio there are 51 buildings, however, as a consequence of the implementation of the new legislation, there may be some changes to this number over the next few months.


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6.95 Sure Start Children’s Centres offer a focal point for the delivery of integrated children’s services, primarily for the 0-5’s, but also covering parts of the 0-19 agenda.

6.96 The centres offer of advice and support for children and their families,

as well as a range of integrated services on-site and in satellite centres, provided by a number of partner organisations, such as Family Support organisations, Health, Jobcentre Plus, Family Learning and other third sector organisations such as the WEA. Some Centres have childcare facilities, such as Day Nurseries or After School Clubs, on-site too, which are run by Private or Voluntary providers.

6.97 The centres are multi-agency community facilities and organisations

offering services to meet Children’s Centre targets are allowed to use the facilities for free. Other organisations are charged a small fee for usage and they are ideally placed as venues for meeting external partners or delivering services. Centres in the most disadvantaged areas will be open full-time, where the others, especially in more rural areas will be used part-time, which offers opportunities for other users, especially those from related service fields.

6.98 Location of Sure Start Children’s Centres by March 2011

Allerdale: Wigton; Aspatria; Silloth; Maryport; Workington; Cockermouth; Keswick Barrow: Greengate; Hindpool; Bram Longstaffe (Walney Central); Newbarns; Dalton-in-Furness Carlisle: Longtown; Brampton; Carlisle North (Belah); Carlisle West (Morton and Newtown); Carlisle South ( Petteril Bank and Botcherby) Copeland: Distington; Whitehaven; Frizington; Cleator Moor; Egremont; Millom Eden: Alston; Penrith; Kirkby Thore; Appleby; Kirkby Stephen South Lakeland: Ambleside; Windermere; Kendal; Sedbergh; Kirkby Lonsdale; Milnthorpe; Cartmel Peninsula (Flookburgh); Ulverston

7.0 Further Service led Changes

7.1 Registration Service 7.2 The Registration Service is a small, but important public service that

comes into contact with members of the public at some of the happiest and some of the most difficult times of their lives. As a customer facing service the quality of facilities for the public needs to be of a high standard.


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7.3 The service operates through service points in Cumbria’s main

population centres, currently;

� Barrow � Maryport � Cockermouth � Ulverston � Carlisle � Millom � Kendal � Wigton � Whitehaven � Penrith � Workington �

7.4 Apart from Barrow, where the service is located in good

accommodation in the Nan Tait Centre (a refurbished former education facility), there is no imperative for the service to continue to be located in its present premises. Indeed, there would be positive advantages, as “Better Places for Work” is extended across the county, for the service to be co-located with other County Council services. This would enable the disposal of certain premises and the service to share reception and other common services. It would also address health and safety concerns in buildings where some registration staff are the sole occupiers.

7.5 Bringing together libraries, archives and registration as part of the

County Council’s organisational changes will enable consideration of the scope for new ways of working, ie is it possible to deliver a local service in locations such as Maryport and Millom in a different and more cost-effective way.

7.6 Because the number of staff at each location above is small (no more

than 5/6) the key to improving facilities for the public will be making sure that at every stage of the “Better Places for Work” project the needs of the Registration Service are taken into account.

7.7 Trading Standards Service

7.8 Trading Standards is a small service with bespoke needs for secure

storage and interview facilities in addition to standard requirements for office accommodation. Although an outward facing service, public access to Trading Standards premises is not a requirement and the preference would be to vacate existing premises.

7.9 The service currently has four area offices – Carlisle, Cockermouth,

Kendal (County Offices) and Ulverston. The service headquarters is in the Condor Block, County Offices, Kendal.

7.10 The service is currently being restructured and these proposals include

the closure of Cockermouth and Ulverston offices, with staff moving to the area offices in Carlisle and Kendal respectively.


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7.11 The North area office could relocate to shared premises with other council services or, the preferred option because of the bespoke accommodation needs, move to a business park or to premises such as the council’s Dalston office/depot complex.

7.12 Similarly the South area office and service HQ could relocate to shared

premises, or again preferably move to a business park location. 7.13 Relocation in this way would release a city centre property in Carlisle

at Earl Street with car parking and office accommodation in both the main building and Condor block at the County Hall Offices.

7.14 The service storage needs relate to documents and goods seized in

enforcement raids and exceptionally this could include vehicles. Interview facilities are required to interview suspects under caution, at present using dedicated tape recording facilities, but with the prospect of moving to DVD recording. Interview rooms / meeting rooms for case conferences etc are also required.

7.15 Vehicular access to accommodation is required as officers routinely

need to take equipment with them for their work and the service has three vans used for both seizures and transport of bulky & heavy equipment. The vehicular access at each office should also include secure parking (ideally under cover) for the vans and a trailer with permanently installed equipment.

7.16 Farms and Small Holdings

7.17 The County Council owns 14 fully equipped and let farms (8 of which

are smallholdings and 6 full agricultural tenancies totalling 561 hectares). In addition the Council has 17 areas of land let annually or on a farm business tenancy (totalling 162 hectares) and 22 areas of land let on seasonal lets.

7.18 Farms and Small Holdings are classed as non-operational property

and the current policy for the County Farms Estate most off which is currently let is to sell, as and when any farm tenancy comes to an end. The ‘Rural Proofing’ of this policy was raised in 2006 and it was adapted to also take into consideration the benefits or otherwise of re-letting the farm against any potential development and other factors relating to a sale with vacant possession.

7.19 This policy has seen the County sell approximately 40 hectares of its

farmed estate annually. However, with smallholdings coming for sale more regularly and with a current review of the entire Broughton Estate comprising 402 hectares, the disposal of properties from the farmed estate is expected to accelerate over the next couple of years.


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7.20 Highway Land and Depots 7.21 The land occupied by the majority of the highways network is not

owned by the County Council. It belongs to the riparian owners in much the same way as a river bed. The County Council, in its capacity as Highway Authority is responsible for the maintenance, improvement and protection of the road which passes over the land. However, some land has been purchased by the authority to create new roads and / or improve existing ones. Where a highway (or part of it) is no longer required it is necessary to “stop up” the route, which means that the public no longer have access as of right to pass and repass over the land. In this case, the land will revert to the adjacent frontager, or, if the authority holds title to it, can be sold by the County Council.

7.21 The Council, as Highway Authority, has a duty under the Highways Act

1980 to maintain the network and to protect the rights of users to the use and enjoyment of it. In addition, we have powers to improve it.

7.22 A Highways Asset Management Plan (HAMP) is being developed,

which will set out the Councils policies and intentions for the maintenance of the hard assets associated with the Highways Network. This document forms a part of a suite of documents that are collected together under the umbrella of the Transport Asset Management Plan (TAMP) which deals with the wider uses such as the hard assets, and includes transport facilities and “soft” assets. A preliminary valuation of the Highways hard assets is £5.7 billion.

7.23 In addition, the County Council owns and operates the Windermere

Car Ferry as part of the Highways Assets. 7.24 The Highways staff operate from a selection of offices and depots

throughout the County. The Highways administrative areas are co-terminous with the district authorities. In two of these areas, the “client, “consultant” and “contractor” arms of the service are co-located, other areas are not as fortunate. There is a small central client team based at Dalston and the main Consultant’s office is at Kingmoor, Carlisle. The locations are set out in the table below.


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Figure 7.1 Highways Depots

Area Client Consultant Contractor

Allerdale Lillyhall Depot Lillyhall Depot Lillyhall Depot

Barrow Nan Tait Centre

Nan Tait Centre

Sowerby Woods Depot

Carlisle Dalston Kingmoor Brampton & Dalston

Copeland Richmond House, Whitehaven

Richmond House, Whitehaven

Egremont Depot, Bootle Depot

Eden Skirsgill Depot Skirsgill Depot Skirsgill Depot, Kirkby Stephen Depot, Alston Townhead Depot, Alston Coppice Wood Quarry

South Lakeland

County Offices, Kendal

County Offices, Kendal

Millness Depot, Mintsfeet Depot, Coniston Sawmill Depot.

Central Dalston Depot, Lonsdale Building (Carlisle)

Kingmoor Skirsgill Depot

7.25 In the longer term we will aim to co-locate staff, as much as possible,

to enable more efficient, effective and economic service provision. 7.26 In addition, we have operational issues that need to be addressed in

the future as set out below; 7.27 South Lakeland: The Council shares the depot and salt storage

facilities at Millness with the Highways Agency and operate certain services from the Mintsfeet Depot, with the Consultancy and Client sharing another site in Kendal. It would be preferable for the County Council to have its own depot, where all staff and services could be located on one site. The sub depot at Coniston is retained as an essential base for the winter maintenance service in the central lakes area.

7.28 Copeland: The depot at Baybarrow, Egremont is not in an ideal

location, it is set amongst residential properties and the depot facilities are poor. If considered for upgrade in the future, it will be worth considering another site, where all three arms of the service can be co-located. The sub depot at Bootle remains essential for winter maintenance service in the more remote South of Copeland.


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7.29 Waste Management 7.30 The County Council provides 14 sites, previously known as ‘Civic

Amenity Sites’, that were re-named ‘Household Waste Recycling Centres’ some years ago to reflect a change in emphasis from landfill, as the main disposal method, to re-use, recycling and composting. These sites fulfil the Council’s duty to provide places where local residents can take their household waste for disposal free-of-charge.

7.31 Currently the County recycles and composts more than 40% of the

waste delivered to these sites and aim to reach 60% over the next three years. The standard of the sites varies from modern, split-level with a covered pedestrian area and grey-water re-circulation, to old, ‘tired’ looking and congested with traffic. These sites are an essential element in the waste management infrastructure, taking 36,000 tonnes of waste per annum, which is approximately 14% of the total household waste arising. The intention is that these sites should all present a safe and user-friendly environment that encourages people to segregate their waste for recycling and reinforces positive behaviours towards recycling and waste prevention. The sites are located at;

Ambleside, Barrow-in-Furness, Brampton, Carlisle, Frizington, Grange-over-Sands, Kendal, Kirkby Stephen, Maryport, Millom, Penrith, Ulverston, Wigton and Workington.

7.32 In addition to the Household Waste Recycling Centres, the Council

owns two landfill sites, at Distington and Hespin Wood (Carlisle) that are leased to Cumbria Waste Management, a wholly owned subsidiary of Cumbria County Council. The Distington site will be full within 12 to 18 months and then restored in accordance with Environment Agency and Planning requirements. The Hespin Wood site has some years of capacity at this time. Cumbria Waste Management has its own portfolio of property.

7.33 The Council is currently working with its Strategic Waste Partner,

Shanks Waste Management, to construct two waste treatment plant, one at Hespin Wood (Carlisle) and the other at Sowerby Woods (Barrow-in-Furness). These facilities will enable 150,000 tonnes of waste to be treated annually, generating approximately 80,000 tonnes of ‘Solid Recovered Fuel’ that can be used in industrial processes to produce heat and power.

7.34 Overall the aim is to minimise municipal waste arisings and maximise

waste recycling and composting. That which cannot be recycled or composted will be treated to produce a fuel, leaving only the unusable residue to be landfilled.


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7.35 In terms of property, the County Council will achieve its aims by investing in the re-development of existing Household Waste Recycling Centres or undertaking new build projects in existing or new locations where this is appropriate and affordable. A refurbishment programme is currently in progress in partnership with Shanks Waste Management. The County Council will continue to work closely with our District Council colleagues to ensure sites are established in the best locations. The new waste treatment plants will be maintained to agreed standards by Shanks for 25 years, after which they will become the property of the Council.

8.0 Cumbria County Council’s Capital Strategy

8.1 Cumbria County Council has a medium term (three year) capital

strategy, designed to govern capital investment that delivers corporate priorities, service needs and objectives and statutory obligations. The capital strategy is linked to the Councils Financial Strategy or three year revenue plan.

8.2 The Capital Strategy is developed via the Council’s new Strategic

Investment Group, which includes representatives from all Directorates and is chaired by the Corporate Director of Resources.

8.3 The Strategic Investment Group reviews Project Initiation Documents

Business Cases and option appraisals for capital projects and programmes and makes recommendations to Cabinet on the development of the capital programme each year. Capital project business cases include confirmation of the revenue consequences associated with capital investment and whole life cycle costing on major schemes such as PFI projects and Better Places for Work.

8.4 The Capital Strategy and the schemes that make up the capital programme take account of proposed acquisitions and disposals and appropriate option appraisal is undertaken to inform acquisition, disposal and investment decisions.

8.5 The capital programme is funded by a combination of Government grants and contributions, long-term borrowing and the council’s use of its own capital receipts following the sale of surplus assets.

8.6 The Council also supports significant work undertaken by other

organisations in areas such as regeneration, helping to create and safeguard jobs. In 2008/09 the Council had to account to Government for grants in the order of £24m for such work.


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8.7 How the County Council invested capital expenditure 8.8 The council’s capital programme for 2008/09 was £92m. How the council invested this money is set out below;

� Schools £35.5m � Highways £29.5m � Land reclamation £15.7m � Culture, environment, planning £6.7m � Fire services £0.8m � Social services £0.7m � Other £3.1m

8.9 The 2009/13 Capital Programme 8.10 The 2009/2013 Capital Programme was approved by Cabinet on 2009

and was set in accordance with Prudential Code for Capital Finance issued by CIPFA, which advocates prudence, affordability and sustainability. The programme is set out in the table overleaf which also shows the sources of funding.

8.11 In future years it is expected that there will be further need to utilise

planning agreements under section 106 of the Town and Country Planning Act to secure developer contributions towards public infrastructure such as school capacity and roads.

8.12 In the meantime, the delivery of capital receipts from the sale of

surplus property assets plays an important role in supporting the capital programme.


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Figure 5.4 Cumbria County Council Capital Programme 2009/2012 CUMBRIA COUNTY COUNCIL CURRENT CAPITAL PROGRAMME 2009/10 - 2012/13

Source of Funding

2009/10 2010/11 2011/12 2012/13 TOTAL Grants & Notional Capital Total

EXPENDITURE £k £k £k £k Contributions Supported

Receipts &

Borrowing Prudential

Borrowing

CHILDREN'S SERVICES

68,406 62,846 35,886 39,448 206,586 189,312 10,274 7,000 206,586

TRANSPORT 26,272 28,002 0 0 54,274 4,474 49,400 400 54,274

ADULT SOCIAL CARE 475 475 475 475 1,900 1,064 0 836 1,900

CULTURE SERVICES 7,179 0 0 0 7,179 4 ,779 0 2,400 7,179

CHIEF EXECUTIVE 200 200 200 200 800 0 0 800 800

SAFER & STRONGER COMMUNITIES

758 689 705 656 2,808 0 0 2,808 2,808

ENVIRONMENT 4,176 471 730 206 5,583 0 0 5,583 5,583

ORGANISATIONAL DEVELOPMENT

340 0 0 0 340 0 0 340 340

RESOURCES 2,420 2,420 1,270 1,120 7,230 1,020 0 6,210 7,230

RECLAMATION 1,108 0 0 0 1,108 1,108 0 0 1,108

111,334 95,103 39,266 42,105 287,808 201,757 59,674 26,377 287,808

Resources Available

201,757 59,674 26,377 287,808

(Shortfall)Surplus Resources 0 0 0 0


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8.13 The Capital Receipt Programme

8.14 The County Council’s capital receipt programme is developed, as part

of the Capital Programme, by the Property Unit in consultation with Directorates, Finance and Legal. The programme is informed by the Council’s schedule of surplus assets or assets held for sale, as well as information on assets that are expected to become surplus, are vacant or underutilised. The Heads of Service Asset Management Group, helps to identify opportunities for releasing surplus or underutilised property through a process of review of service plans and property reviews or change programmes. Where an asset does not contribute towards the Councils priorities or service delivery it is declared surplus and sold.

8.15 The current capital receipt programme is designed to achieve the

capital receipt targets included in the capital programme, ie £7m between 2009/2010 and 2012/2013. The table below illustrates the current position of the 2009/2010 programme and the capital receipts achieved in previous years.

Year Capital Receipt Target

(£)

Capital Receipts

Achieved (£)

2007/2008

5,750,000

£5,177,236

2008/2009

2,900,000

£3,076,610

2009/2010

2,000,000

2,197,020

2010/2011

2,000,000 -

2011/2012

1,500,000 -

2012/2013

1,500,000 -

Target for 2009 -2013

7,000,000


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8.16 The capital receipts programme is delivered via our strategic service delivery partner Capita and is monitored on a monthly basis.

8.17 The County Council has a legal obligation under section 123 of the

Local Government Act 1972 to achieve best consideration for the sale of surplus property. Best consideration is normally secured by selling at market value. The Council’s Disposal Procedure requires that sales will normally be by auction or by sealed offer.

8.18 When a property is declared surplus to a Directorates requirements the

disposal procedure is implemented by Capita and this includes a process of establishing whether the property is required by other Council Directorates for service delivery, if not it is offered to various public and voluntary sector organisations before being sold on the open market.

8.19 Prior to disposal an appraisal is undertaken of the development

potential and hence estimated value of the asset and this generally includes securing planning permission for alternative more remunerative uses as appropriate. In order to minimise the costs and risks associated with holding vacant property pending disposal, an assessment is made when a property becomes vacant of its potential for being reused. If there is little prospect of a property being brought back into beneficial use, usually because it is at the end of its functional and economic life, demolition and site clearance is considered instead of leaving a property boarded up and secure. This approach not only minimises the ongoing costs of holding property but also removes the inherent risks associated with vacant property. This is of course not always possible, for example properties that are listed would be retained.

8.20 The property market over recent years has been difficult because of the

global credit crunch and this has made it more difficult to fund projects that rely on the sale of surplus property. There is some evidence of improvement in the demand for property though the recovery is expected to take some time. An improvement in the market will help in delivering changes to the Council’s property portfolio.


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Appendix A

Building Pride in Cumbria

Asset Management Planning

Heads of Service Group

TERMS OF REFERENCE

This group is a cross service senior officer group charged with overseeing the Strategic Asset Management Planning process for Cumbria County Council. The group will approve the draft Strategic Asset Management Plan and oversee the implementation of the property strategies that are adopted by the Council.

� The Group will comprise Heads of Service representatives from all services;

� The Group will be chaired by the appointed Corporate Property Officer; � The Group will meet on a monthly basis in its first year and thereafter

at least every two months; � The Group will report to the Council Cabinet or an Asset Management

Board as and when convened chaired by the Property Portfolio Holder; � The Group will collectively and individually be an advocate(s) of

Strategic Asset Management Planning and will ensure that property is seen and managed as a corporate resource, including property budgets;

� The Group will help develop the Council’s Strategic Asset Management Planning process and a Strategic Asset Management Plan, which is updated annually;

� The Group will ensure that the process is supported by appropriate Asset Management data (without good data we will not be able to do what we want) and will keep under review how property budgets are managed;

� The Group will help ensure that the property portfolio supports the County Council’s corporate and service delivery aims and objectives and hence contributes to improved service delivery;


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� The Group will help ensure that the property portfolio is fit for purpose, ie it is effective, efficient, economic and ensures equality as demonstrated by its suitability, sufficiency, condition, sustainability and cost/cost in use;

� The Group will ensure that the Property, HR and ICT implications of the various Council Service Plans are translated into corporate Property, HR and related ICT strategies eg short and longer term Office Accommodation Strategy;

� The Group will proactively review the Council’s property portfolio in order to help identify opportunities for making better use of property assets and/or to identify underperforming assets that can be declared surplus to requirements and either let, sold or their use changed eg Community Use;

� The Group will oversee the Council’s disposal and acquisition programme to ensure it is consistent with the Strategic Asset Management Plan; (Co-ordinated role not buying and selling)

� The Group will identify innovative ways of delivering services through the use of property assets;

� The Group will help prioritise Capital Bids in line with the Strategic Asset Management Plan;

� The Group will ensure that appropriate consultation procedures are put in place to ensure satisfactory engagement with stakeholders is achieved; Published document which will be updated annually.

� The Group will facilitate the development of a Cumbria wide Strategic Asset Management Planning process, which brings together all Public Sector Asset Management Planning/Plans;

� The Group will help effect the change required in the Council’s property portfolio in order to deliver improved services.

The Strategic Asset Management Plan will include but will not be limited to the following;

� Council’s Aims and Objectives for Property; � A Statement of Current Portfolio, including property performance; � Property Implications of Service Plans; � Key Areas for Change; � Options Appraisal; � Prioritised Key Areas for Change and funding; � Implementation Plan; � Monitoring and Reporting/Feedback Loop.


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Appendix B

Maps

Illustrating the distribution of Cumbria County Council’s Property


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Appendix C

Schedule of County Council Property and indicative Asset Strategies