SALFORD CITY COUNCIL
PLANNING & BUILDING CONTROL
SERVICES
SUMMARY OF BEST VALUE REVIEW OF
THE PLANNING & BUILDING
CONTROL SERVICE
April 2003
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1.
Introduction
1.1
The Planning and Building Control function provided by Salford City Council is
made up of three distinct services:-
Development Control
Building Control
Development Planning
These services are located in two sections of the Planning and Building Control
division of the Development Services Directorate (Development Control and
Building Control being brought together in one section).
1.2
Each of the three services has been subject to a separate Best Value Review,
and an Improvement Plan has been produced for each service against which
performance can be monitored and measured.
1.3
The purpose of this summary report is to provide an overview of the function as a
whole, and particularly to highlight the operational linkages between the 3
services and the way in which the improvement measures set out in the
Improvement Plan assist the overall performance of Planning and Building
Control in Salford.
2.
Local and National Context
2.1
Salford City Council’s role as Local Planning Authority for its area is to enhance
and safeguard the use of land and the built environment by ensuring all
developments are carried out in the public interest, which involves a wide range
of statutory and community consultation. This is undertaken in two principal
ways:-
through the preparation of the development plan (UDP)
through the implementation of land use policies through the development
control process
2.2
Both the preparation of the development plan and development control are
statutory requirements on local authorities enacted by the Town and Country
Planning Act 1990. The Government has published a Planning Bill which is likely
to become an Act in 2003, operable from April 2004, which will have major
implications for the Planning service. The implications of the changes proposed
to the Planning system will only be fully understood when the Government has
published detailed guidance following the publication of the Act.
2.3
Decisions on Planning applications are taken, having regard to material planning
considerations, by elected members on the Planning Regulatory Panel or by
officers with delegated powers. They are constrained in a quasi judicial context
by a range of central government regulations, policy and advice and must always
make decisions in accordance with Section 54A of the Town and Country
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Planning Act which requires that decisions must be made in accordance with the
Unitary Development Plan unless material circumstances indicate otherwise.
2.4
The Unitary Development Plan and its review are subject to Cabinet overview
and Council decision, with the Environmental Scrutiny Committee playing an
important role. The formal linkage made through the Planning Bill between the
Statutory Community Plan and the Statutory Local Development Framework (the
successor to the UDP) places increasing emphasis on the Development Plan’s
role in providing a spatial expression of the Community Plan's vision for the City.
2.5
The continuing extent and scope of the regeneration agenda in Salford –
highlighted most recently by the Central Salford/Housing Market Renewal
Pathfinder initiative – means that there is extensive pressure on the Planning
service from non-statutory requirements. Planning plays a key role, working with
others, in drawing up strategies and plans and securing the delivery of physical
regeneration projects.
2.6
The performance of the planning system nationally has been a concern of
Government for some time and there has been an evolution of performance
targets over the years centred largely on development control but with the Plan
making function now also having a performance target against which it will be
measured. The Government has identified that the planning system is underresourced at a national level, and for the period 2003/04 – 2005/06 is making
available the Planning Delivery Grant to ensure improved performance against
set targets.
2.7
Salford’s role in terms of Building Control is to ensure the health and safety of
people in and around buildings, with building work assessed at both the design
and construction phases. The fee element of the statutory service – the
provision of the building regulation service – is subject to direct private sector
competition, and the existence of private sector “approved inspectors” means this
is a true competitive market. For this reason excellent customer response times
are vital. A number of Statutory services (inspections of licenced premises,
dangerous buildings and structures, safety, security and reinstatement of derelict
buildings, control of demolition) are non-fee earning and do not operate in this
competitive environment.
2.8
The regeneration agenda has a major impact on Building Control, in particular in
terms of dealing with derelict buildings and controlling demolition in areas of low
housing market demand and where substantial land use change is underway.
This is a key ‘quality of life’ issue for many people The longer a building is either
insecure or awaiting demolition the greater the opportunity for crime, potential
injury and misery for local residents. Action identified in the review to deal with
this issue links to ‘a safer Salford’, a fundamental corporate pledge.
3.
Aims of the Service
3.1
The City Council’s mission is:“To create the best possible quality of life for the people of Salford”.
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To achieve this the Council has made 6 pledges to the people of Salford, in
terms of:-
Better Education for all
Quality Homes for all
A Clean and Healthy City
A Safer Salford
Stronger Communities
Supporting young people
The way in which Development Control, Building Control and Development
Planning support the pledges is set out in the detailed reports for each service.
The general Aims of the overall Planning and Building Control service are to
ensure that :1.
Policy making is:
-
coherent and consistent
rooted in the Community Plan
about securing sustainable development
‘joined up’ strategically with policy development elsewhere
forward looking and not over-reactive to short-term pressures.
2.
Planning decisions are made having due regard to the development plan,
national and local policy guidance, and any other national planning
considerations.
3.
The service ‘adds value’ to development in the City and delivers a quality
of outcomes.
4.
All building work is carried out in accordance with current regulations and
standards with the goal of producing a safe, healthy and economic built
environment for building users, owners and the community as a whole.
5.
Customers are provided with a high quality, responsive and efficient
service, that supports and promotes beneficial development and which
ensures that the outcomes are fair and equitable.
6.
Modern information technology is used to help deliver the service in a way
that benefits all users.
7.
The service responds to changing needs and situations, providing
significant, measurable and continuing improvement of the service in
accordance with national and local performance indicators.
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4.
Service Provision
4.1
The Planning and Building Control division is one of four divisions in the
Development Services Directorate (the other three being Engineering, Property
and Development and Business Services).
4.2
There are currently 55 staff (including administrative staff and trainees) in the
division, comprising of:Development Control
Building Control
Development Planning
-
15.0 FTE
14.5 FTE
25.5 FTE
4.3
The detailed reports provide an analysis of the costs of each of the three
services.
4.4
In recent years the overall service has seen a significant reduction in staff
resources, reflecting severe budgetary pressures affecting the City Council more
generally. Against this background the service has managed to respond to an
increase in planning applications and at the same time improve performance
significantly, and is dealing effectively with a heavy workload in Development
Planning and Building Control. These major efficiencies and cost savings have
been achieved through considerable changes to working practices.
4.5
It has been recognised that there is a need to deal more effectively with short
term problems (e.g. staff vacancies, staff illness) which can cause performance
to “dip” – such a dip between June 2001 and June 2002 reduced the Planning
Delivery Grant available to Salford in 2003/04. Additional staffing will be required
to deal with a significant Housing Market Renewal/Central Salford Programme
during 2003/04 – 2005/06, and to meet the requirements of introducing the Local
Land and Property Gazeteer (to be managed from the Information team in
Development Planning). The process of UDP Review is currently being
undertaken on a limited resource base, and this will need further support if we
are to meet the requirements of BVP1 200 and adopt the new Plan by 2006. The
Planning Delivery Grant resource of £75,000 for 2003/04 will be required in large
part to support the UDP Review process. It is also important that Development
Control staffing resources are adequate to deal with the new BVPI targets for
Development Control performance, and that the staffing resource is adequate to
deal with a busy Building Control workload.
5.
Terms of Reference
5.1
The terms of reference for the Best Value Review of the three services were
established by the Environmental Scrutiny Committee on 17th September 2001
(and subsequently modified for Building Control). The general terms of reference
for the whole service are to :-
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1.
5.2
Ensure that the Planning and Building Control service reflects best value
and in general :-
Promotes and involves members in a health check on current
services in comparison with other providers and customer
requirements
-
Determines the most economic, effective and equitable method of
delivery reflecting service improvements and costs that embraces
the democratic process and aids a reduction in crime
-
Produces an action plan for implementation
2.
Determine customer perception of the range of services provided,
encouraging involvement, accessibility and incorporating customer
feedback to improve the way we undertake service delivery.
3.
Identify and review the services linkages with other parts of the Council to
facilitate structural cohesion and communication between partners.
4.
Evaluate the impact of staffing and information technology resources on
the service’s capacity to meet deadlines and achieve optimum efficiency in
order to improve responsiveness and the timely provision of advice.
Specific terms of reference for each of the individual elements of the service are
also set down as:Development Control
1.
Identify how to build upon the improvement in the speed of processing
planning applications and further improve the quality of development.
2.
Identify means for the measurement of “adding value” to development for
which planning permission is granted in order to assess improvement in
the quality of outcome.
3.
Evaluate whether the current approach to planning enforcement is
efficient, effective, economic and equitable.
4.
Assess whether entering into a partnership with the GMGU would be cost
effective, improve the quality of the outcome and improve customer
service.
5.
Evaluate whether the current decision making arrangements can be
changed to improve the accessibility of agents, applicants and the public
and whether the arrangements to ensure probity are acceptable?
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Building Control
1.
Provide the highest quality service within the income recovered through
competitive charges, taking account of the legal requirement to recover
service costs over 3 years, for the Building Regulations element of the
service. Improving the quality and safety of all buildings in Salford.
2.
Assess how best to improve the speed of processing building regulation
applications without compromising the quality of the service as a whole.
Optimise the use of existing resources and identify additional resources,
skills etc required to improve efficiency.
3.
The adoption of the DTLR “Performance Standards” and regional
performance indicators together with appropriate monitoring systems.
4.
Ascertain whether the service is competitive with private sector Approved
Inspectors for building regulations applications and identify improvement
measures to make the service even more competitive.
5.
Ascertain whether customers and stakeholders (internal and external to
the authority) are fully aware of the objectives and benefits of the service.
6.
Evaluate whether partnering with other bodies for the plan assessment
process is an appropriate development. Structural calculations are
already assessed by private sector consultants in order to improve short
term capacity.
7.
Ascertain measures to best achieve the City Council’s requirements for
the securing of buildings and reducing potential crime.
8.
Improve engagement with customers and ascertain whether they are
satisfied that the service being delivered. Is it delivered in the most
efficient, effective and economic way?
Realign the service, cost
effectively, in accordance with their requirements.
Development Planning:
1.
Ascertain the efficiency and competitiveness of the service with a view to
improving cost and quality compared to others
2.
Consider the cessation or curtailment of non-statutory services to redirect,
where possible, resources to services with a greater priority
3.
To ensure that the City is a place where a balanced social mix of people
want to live.
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6.
Review Process
6.1
When the Terms of Reference for the Planning and Building Control Service
were established in September 2001, this was on the basis that all three services
would be reviewed in the same timescale.
6.2
Subsequently, the decision was made to accelerate the Development Control
and Building Control reviews within the City Council’s overall programme of
reviews, as substantial progress had been made in the Service Improvement
Plans for these services in advance of the CPA inspection. Following the
collection and analysis of data, vision and challenge sessions and reports to a
Member Scrutiny Panel and Cabinet, it was therefore envisaged that the services
would be ready for inspection by the Autumn of 2002. On that basis the
requirements and improvement plans for the two services were completed by
October 2002. However, the Inspectorate indicated that they would not be able
to inspect in that timescale because of the pressures of the Comprehensive
Performance Assessment process nationally, and following CPA further indicated
that they would wish to inspect all three services together.
6.3
The individual reports set out in detail the process for the review of each of the 3
Services, including also resources applied, timescales, approaches to challenge
and staff participation. The approach has been thorough without being overbureaucratic, and we have attempted to ensure that the process leads to the
improved management of performance and to an enhanced improvement culture
within the Services.
7.
The Four “C’s”
7.1
Each of the three services has been examined in the context of work on the Four
“C’s” – consultation, comparison, competition and challenge. The outcome of the
main findings is summarised below.
Summary of the Consultation Findings
7.2
The three services achieve high levels of satisfaction from users.
7.3
The key issues for Development Control appear to be about good communication
with all users, increasing accessibility to the office, speed of determination of
planning applications, and Panel procedures and how decisions are arrived at.
The focus of the Development Control review on customers (with 13 specific
recommendations in the Improvement Plan and another 11 improvements
achieved during the course of the review) reflects a comprehensive response to
these issues.
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7.4
For Building Control, a clear message arising from consultation was the need to
improve the response times for new applications, and a range of measures have
been and are being implemented to tackle this key area. Communication (linked
to promotion of the service) is also identified as a key area by customers, and
there is a clear need to assist them by better integrating Development Control
and Building Control services. Consultation has highlighted the importance
Building Control makes to Corporate pledges such as “a safer Salford“, and a
number of recommendations relate to this area.
7.5
The few areas of criticism of Development Planning related to the capacity of the
service and the effects of demands on the service exceeding the resources
available, potentially leading to reduced responsiveness and progress delays
caused by competing priorities. It was also clear that communicating the roles of
the team, and explaining functions and processes would be very helpful to
customers.
Summary of Comparison Findings
7.6
Comparative data for Development Control at a national and regional level is
readily available as the service has been measured against a number of key
performance indicators for a number of years. For Building Control there are no
such indicators, and the review has in particular focussed on benchmarking work
across Greater Manchester.
Similarly there is little reliable comparative
information available for much of the Development Planning Service, and some
work on best practice has been initiated to “plug” this gap.
7.7
The comparative date for Development Control shows that in a relatively short
space of time Salford’s performance in terms of speed of processing planning
applications has improved dramatically, whilst we also have one of the lowest
levels of planning cost per head of population. Few appeals against decisions
are lost, and the UDP has been consistently adhered to for many years. Weak
areas identified from the comparative exercise, and addressed by the
improvement plan, includes the need to increase levels of delegation to officers
whilst ensuring that high customer satisfaction levels are maintained.
7.8
The comparative data available for Building Control shows it performing well in a
range of areas. Weaker service areas tackled on the improvement plan include:
improving plan assessment rates; rationalising inspection regimes; improving
performance management systems; monitoring key performance indicators; and
prioritising the service internally and externally to optimise service benefits.
7.9
For Development Planning, policies, strategies and programmes have been
established to maintain and improve on current performance and to initiate work
on best practice. The service has provided a very valuable and responsive
service, but reducing staffing levels (to meet budgetary requirements) have
created problems of prioritisation. The need to focus on core work priorities is
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essential, without damaging a long-standing “can do”, customer focussed culture.
This is being addressed through more formalised work commissioning and work
programming procedures.
Summary of the Competition findings
7.10
The City Council’s policy on procurement is clear:“It is essential that all our services provide the best value for money, within the
resources available to us. We will continue to be outward looking and to provide
services through a mixed economy. We ensure that we know how well we
perform by benchmarking our services with other public, private, voluntary and
independent sector providers. Where improvements to services are needed
Improvement Plans establish clear performance targets and timescales and
these milestones are monitored to ensure that improvements are realised. A
robust options appraisal considers all options for service delivery, including
partnerships, co-operatives and competition, in order to maximise service
improvement and may conclude that in-house teams cannot achieve the desired
level of improvement. Where we do conclude that the in-house organisation has
the potential to improve, clear performance targets and timescales will be set and
monitored to ensure that the desired outcomes are realised: if they are not then
the City Council will explore alternatives. We are committed to supporting good
in-house provision and giving services the opportunity to improve, but the needs
of users are our paramount concern”.
7.11
The review of Development Control has examined the market for the service it
provides, and found that the external market is not well developed and
fragmented. A variety of options for the provision of the service have been
examined and retention in-house is identified as the most practical option given
the current (and improving) performance. However, the review has led to a
decision to form a partnering arrangement between the service and a facilities
management company to improve document flow. The use of consultants or
other external agencies will be approached on a needs basis, where capacity
issues arise which could impact on performance.
7.12
The Building Control service operates within a highly competitive market, and
changes in legislation dating back to 1985 have progressively introduced private
sector competition and the concept of the “Approved Inspector”. This means that
Building Control customers already have a choice in that they can use the
services of either Salford Building Control or private sector approved inspectors.
In looking further at procurement options the service has identified a number of
future improvements including the establishment of a “Re-thinking Demolition”
partnership, the development of a Protocol on dealing with demolitions with
United Utilities, improved local marketing of the Building Control service, and
potential partnerships to improve the delivery of statutory services.
7.13
The Development Planning service currently operates on a “mixed economy”
basis, with the use of both AGMA joint units and private sector consultants in
support of the in-house team. Market testing shows the service to be competitive
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on cost compared to consultants. However, notwithstanding their expense, the
review has identified that the use of consultants can bring great benefits by virtue
of the specialist skills and commercial perspectives they can bring. The
improvement plan identifies that the service needs to be more structured about
the use of consultants to maximise efficiency/effectiveness benefits. The inhouse team also needs to improve efficiency and effectiveness by adopting more
structured business practices.
7.14
The wider Directorate is moving to form a strategic partnership with the private
sector. The suggested approach is a Joint Venture Company into which all
Directorate staff would be seconded. The benefits to the Planning and Building
Control service are likely to be in terms of investment and assistance with
capacity. An OJEC notice will be published in May 2003, with the JVC set up in
the latter part of 2004. It will be a requirement that such a partnership delivers
key performance targets and the improvements set out in this review.
Summary of the Challenge Findings
7.15
All three services have been rigorously challenged, and this has resulted in an
extensive range of improvement measures, some of which are already
implemented or on the way to implementation. Critical friends from other local
authorities and the private sector have been involved in the process, as have
staff who after all have the major stake in an improving service.
7.16
The challenge has been broad and has included:-
should the City Council provide the service
the suitability for procurement change
our customer focus
the quality of the service
our efficiency and effectiveness
7.17
The result is we believe three improvement plans which will ensure that we
remain focussed on statutory and corporate priorities, and that our services
continue to be well regarded by our customers.
The outcome of the
improvement plans are summarised below.
8.
Improvement Plans
8.1
The individual Service Improvement Plans for Development Control, Building
Control and Development Planning set out areas for improvement, improvement
targets and short, medium and long term action points for each of these areas.
The detailed recommendations set out in the 3 improvement plans are listed in
Appendix 1 to this report, using the headings below.
8.2
This report summarises the areas for improvement, and in particular highlights
the cross-linkages between the three services where these exist.
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Plan Making
8.3
The Development Planning SIP identifies the need to ensure that the service
meets the requirements of BVPI 200 from April 2003, which in Salford’s case
means having a replacement Plan adopted within 3 years. Having an up-to-date
plan in place is critical to the effective operation of Development Control, as
section 54a of the Town and Country Planning Act states that decisions on
planning applications must be in accordance with the Development Plan unless
material considerations indicate otherwise.
8.4
The revised UDP was placed on first deposit in February 2003, having been
informed by community views through the previous Area Plans process. We are
on track to have an adopted Plan in place by 2006 although there is a need for
key technical work to be undertaken in 2003/04 to support this process. This will
need to be funded from a range of sources, including potentially Salford’s
Planning Delivery grant of £75,000.
Previously developed land
8.5
The Development Planning SIP identifies the need to ensure that Salford’s
performance in developing new homes on previously developed land (BVPI 106)
remains in the top quartile. The continuation of Salford’s good performance on
BVPI 106 is dependent upon the policy context provided by the Development
Plan (within national and regional guidance) and effective implementation
through Development Control.
8.6
Recently published Regional Planning Guidance provides Salford with a 90%
target for housing development on previously developed land. Our performance
in 2002 was 97% of new housing on such sites.
Effective implementation of Policies, Plans and Strategies
Quality of Outcomes/Added Value
8.7
It is important to ensure that the City Council’s planning policies continue to be
successfully implemented through the Development Control process, and that
the Development Planning service maker an effective contribution to this. This is
an area for improvement in both the Development Planning SIP and (under the
heading “Quality of outcomes/Added Value”) in the Development Control SIP.
8.8
To assist the implementation of policy during the course of the review we have
produced SPG for House Extensions, Tree Protection, Crime and Security, and
Telecommunications, and guidance for Planning Obligations in Chapel Street.
We have also successfully introduced the process of Planning Panel member
reviews of decisions.
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Processing Planning Applications
8.9
The Development Control SIP identifies the need to demonstrate an efficient and
customer focussed organisation through improvements against government
targets on the time taken in determining planning applications (BVPI 109 a,b,c).
The Development Planning SIP recognises the need to support these efforts.
Increasing the percentage of applications determined by officers (BVPI 188) will
be important in giving Elected Members more time to decide major and
controversial applications.
8.10
As part of the review process we have produced and implemented a QA assured
process review in Development Control, and have received a document flow
report from partners Oce FM, with a view to moving to a digitally based service.
The numbers of planning applications received between 2001/02 and 2002/03
increased by 16.2% (from 1559 to 1812).
The number of applications
determined increased by 20% (from 1286 to 1547). With a static staff
establishment our performance on the “speed indicators” has continued to
improve, indicating continuing staff performance, focus and efficiency. During
2002/03 58.7% of major applications were determined in 13 weeks (target 60%),
68.10% of minor applications in 8 weeks (target 65%) and 82.00% of
“other “ applications (target 80%).
Plan Checking
8.11
For Building Control there is a need to improve response times to plan checking,
whilst maintaining and improving a customer focussed quality service.
8.12
The taking on of agency staff, and a range of other measures, has seen our
performance on plan checking improve and the backlog greatly reduced. The
initial plan check rate, for 2002, was approximately 25% within 3 weeks of
submission, for 2003, this figure is currently in excess of 60%.
Transparency, Probity, Fairness and Consistency in Decision making
8.13
The Development Control SIP identifies the need for a range of measures to
maintain transparency, probity, fairness and consistency in the decision making
process relating to the determination of planning applications. The statutory
regulations and guidelines for the production of Development Plans are intended
to ensure similar objectives for the process of decision making. The intention in
the Planning Bill to introduce a requirement for the preparation of a statutory
“Statement of Community Involvement” to reflect both plan making and
development control will need to be reflected in the Development Planning SIP at
a future date.
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8.14
A range of measures have been implemented during the review, including:-
-
Planning and Transportation Panel Quality Assured to improve public
reassurance of probity and fairness of hearing.
Annual member training
Review of decisions by members
Implementation of District Audit Action Plan following their review into the
decision making framework for planning decisions, probity issues,
management arrangements and legality.
Adopted Local Code of Conduct for Members and officers revised and
posted on web-site and staff/members trained.
Reasons given for all planning application decisions. A range of other
measures to improve the reporting of planning applications to the Panel
are being examined.
Focus on what matters
A Safer Salford
8.15
The Planning service – and especially Development Planning – is a responsive
service which plays a leading role in serving the physical regeneration of the City,
and is affected by corporate priorities. The impacts of these on the work
programme have to be effectively managed and delivered, and this is reflected in
the Development Planning SIP. The Building Control SIP also reflects the impact
of corporate priorities in recognising the need to improve its contribution to a
“Safer Salford”.
8.16
A number of vacant posts in Development Planning have been filled in the last
year, assisting difficult capacity problems. If the section is to contribute
effectively to the delivery of the Central Salford/Housing Market Renewal
Framework and other major initiatives then additional capacity will be required,
and the appropriate resource has been identified. This work will also require a
further scaling up of Building Control’s support to “Safer Salford”.
Improving performance management and monitoring systems
8.17
The Development Planning and Building Control SIP’s identify improved
performance management/monitoring systems as key areas for improvement.
For Development Planning the need to develop a clear and deliverable work
programme based around agreed clear priorities, and managed effectively, is
essential to focussing on what matters. (See 8.13 above). Development Control
has been more advanced in formal performance management and monitoring,
with a range of action points intended to further maintain and improve
performance identified in its SIP.
8.18
A number of measures have been implemented in Development Control to
improve performance management – creating a small applications processing
team, adopting an enforcement concordat and charter increasing the number of
enforcement staff and focussing staff on performance and government targets.
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The introduction of a national performance target for plan making (BVP1 200) in
2003/04 will sharpen the performance focus in this area of activity. Significant
improvements in ICT in Development Control and Building Control in 2002/03 will
also assist overall performance.
Market Share in Building Control
8.19
The Building Control service is distinct from the two Planning services, in that it
operates in a truly competitive environment. A key area for improvement for this
service, which is not reflected elsewhere, is the need to maintain and improve
market share and the self-financing of the Building Regulations Service to
minimise service costs to Salford citizens.
8.20
A number of improvements have been implemented through the review to help
maintain and improve market share, including:-
a marketing implementation plan
customer consultation/customer database
partnership arrangements (Interserve Ltd, Acorn Construction, Fisk and
Associates)
Developing User Panel
Developing web-site
Fee alignment with other GM Authorities
Weekend inspections
Service Information brochures
Customer Focus
8.21
All three services identify customer care and customer relations and improved
service accessibility as being an important area for improvement. The range of
measures covered is extensive. The reception area in the Civic Centre is the
service’s “front door”, particularly for Development Control and Building Control,
and continues to be improved. The move to e-government means that putting
good information on the Web is increasingly important. The extended opening
hours for Development Control has been a success. There is a need to provide
more information for all services, including for Black/ethnic minority/non-English
speaking customers.
8.22
The successful Development Team approach and its future improvement is an
element of each services’ SIP, reflecting its role in providing a “one stop shop” for
pre-application discussions in relation to major developments.
8.23
During the period of the review a number of measures have been introduced, all
of which are designed to improve the service to our customers. These include:-
a web site with all planning applications available for viewing (this site is
now one of the City Council’s most popular)
the UDP and the revised UDP available for viewing on the web site
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-
a loop system and electronic doors installed at reception
late night opening for the DC service established
the “Development Team” approach established as a one-stop-shop for
applicants
a Customer Charter produced
leaflets produced in minority languages, reception staff having access to
“Language Line”.
Staff Resource Management
8.24
The effective management of our staff – our key resource – is an area for each
SIP. For Development Planning the key is “focussing on what matters” and
linking this to improved performance management systems, and in particular a
clear and deliverable work programme. There is a balance to be achieved
between the staff resources available and the Directorate and Corporate
priorities which the section is being asked to lead on and contribute towards. For
Development Control the key to maintaining performance in time taken to
determine planning applications is ensuring adequate staffing levels and a
flexible structure, and focussing staff on key improvements. For Building Control
the need to create more staff flexibility in order to address fluctuating workload
demands is one of a range of staff resource management measures identified.
For Development Planning the development of an agreed work programme will
require adequate staffing levels and the further development of a performance
culture.
8.25
The overall service has seen a significant reduction in staffing in recent years, in
all three areas. From an overall establishment of 84 staff in 1998/99 (including
administrative support) the number of staff now stands at 55 in post. The
reduction in Development Planning has been most dramatic, with 42 staff in
1998/99 reducing to 21 in 2001/02 rising to 25.5 in 2003/04. In all three services
we have had to become much more performance focussed and efficient. The
City Council still wants the services to maintain the “can do” and responsive
culture that has served the Authority so well in the past. This will require
increasingly effective management and prioritisation of work, including some
difficult decisions about areas of work, which cannot be given high priority.
9.
Achievement
9.1
The Planning and Building Control service has a proud record of achievement
which includes:
An adopted UDP which has provided a robust framework for Development
Control.

The Area Plans, which have engaged local communities in the planning of
their areas and are informing corporate strategies and plans.

Award winning physical regeneration schemes (Salford Quays, Eccles
Town Centre, Chapel Street).
17

The development of GIS and information systems to support planning and
regeneration work.

An effective Development Control service, with greatly improved
performance.

A customer-focused Building Control service, which strongly supports the
‘Safer Salford’ initiative.
10.
Monitoring
10.1
The Best Value process itself has stimulated improvement within the service, and
improvements on targets are being made. These include:-
10.2

The speed of determining planning applications is improving, with minor
and ‘other’ planning applications achieving or nearly achieving 2002/03
targets. The speed of determining major applications has improved
significantly. Delegation to officers has also improved, and will see further
improvement in 2003/04.

The pilot exercise late night opening of the office/reception seems to have
proved a success, welcomed by customers and usage will continue to be
monitored. More information is now being made available including
minority groups and through the Web.

The percentage of enforcement cases resolved in 13 weeks has exceeded
the 2002/03 target so far this year.

The Development Team approach has been established.

Response times to plan checking for Building Control are improving.

A more responsive and customer focussed service to deal with demolition,
security and dangers has been established.

The revised UDP (1st deposit) has been published.

The service has contributed to the emerging Housing Market Renewal
programme, and there is a commitment to fund an increase in staff
capacity to deal with this greatly expanding area of work.
A full progress report on the implementation of improvements to Development
Control and Building Control Services was reported to the Environmental
Scrutiny Committee on 17th February 2003. The Development Planning service
report and improvement plan presents the improvements achieved through the
review process. Report on progress on the implementation of improvement
plans will be made on a quarterly basis.
18
11.
Conclusion
11.1
The Best Value assessment and the formalisation of Service Improvement Plans
has helped the Planning and Building Control Service at Salford City Council to :
compare itself with other services across the country; assess whether the
existing service is best placed to provide the service, and whether “competitors”
can play a part in its provision; consult customers on their views and
requirements of the service; and fundamentally challenge how the service is
provided, and how we might improve that service for its users.
11.2
We believe the Service Improvement Plans are thorough and robust, but there is
no doubt that they will need to be kept under review as we move forward. The
background against which the service operates is evolving rapidly:
11.3
-
the Planning Bill, and the prospective 2003 Town and Country Planning
Act, will place new requirements on us.
-
the City Council’s changing structure, including the Development Services
Directorate prospectively moving into a Strategic Partnership with a
private sector company in 2004, will provide a new context for the delivery
of our services.
-
the regeneration agenda, particularly with the ‘Central Salford’ and
Housing Market Renewal Initiatives, is broadening and deepening, and
with the service having a leading role in land use planning and physical
regeneration this has as yet uncertain consequences for our service.
With these changes in mind, we intend to drive forward with improving the
service’s performance, making sure that these service improvements are
relevant and necessary to our clients and the users and customers of our
services, and kept under continual review.
APPENDIX 1
Recommendations
The reviews of the three service areas have resulted in a range of recommended
improvement measures, which are set out below under the headings used in this
summary report. The review process itself – and indeed the “performance culture” of
the overall service – has resulted in a range of improvements already achieved which
are summarised in the three service reports and improvement plans. Additionally, and
bearing in mind that the Development Control and Building Control Reviews were
completed in September 2002, a number of the recommendations below have been
implemented.
(Note: the reference numbers below relate to those in each of the three Service
Improvement Plans).
Plan Making
Development Control
R 26
Produce new SPG and review existing following review of UDP
Development Planning
DP 1.1 Undertake key technical work to support UDP at inquiry
DP 1.2 Prioritise revised draft UDP to adoption by April 2006
Previously Developed Land
Development Planning
DP 2.1 Improve monitoring systems
DP 2.2 Brownfield land management action plans
DP 2.3 Actively bring forward brownfield sites for development
Effective Implementation of Policies, Plans and Strategies
Quality of Outcomes/Added Value
Development Control
R19
Proactive compliance checking
R20
Adopt SPG for Telecommunications
R21
Introduce member review of decisions
R24
Review existing SPG from Hot Food uses
R25
Commission GMGU to monitor major minerals and waste development
and ensure compliance with conditions
Development Planning
DP3.1 Appropriate policy advice to applicants for p/p in pre-application
discussions
DP3.2 More written advice for prospective developers/improve policy guidance
DP3.3 Ensure planning policy continues to be relevant and up to date
c:\rpt\cf\2
IEP
2
Processing Planning Applications
Development Control
R1
Implement Oce process review to move to a digitally based service
R2
Extend the use of GIS to speed processes up and improve quality,
including:R22
-
accuracy of data
reliability and consistency of data
comparison of multiple data sets
Produce planning checklist to improve quality of submission of planning
applications
Plan Checking (Building Control)
Building Control
R1
Address existing backlog of applications, in order to ease the introduction
of new working methods and focus attention on achieving new targets.
R2
-
Improving plan checking speed and quality in response to customer
demands. The adoption of the DETR Building Control Performance
Standards (BCPS) in relation to plan checking will provide a base line for
speed and the quality of service.
R3
-
Revise inspection regimes, reducing numbers but improving quality, this
will allow an increase in plan checking capacity. Develop and operate
new inspection regimes in line with BCPS.
R4
-
Devolve staff recruitment to section manager in order to ensure staff
resources are maintained and targets can be achieved.
R5
-
Formalise working partnership arrangements with the Greater Manchester
District Surveyors Association in order to improve plan checking capacity
and speed up response times.
R6
-
Create more staff flexibility within the service in order to address
fluctuating workload demands. Workload should be considered an office
problem, not an individuals.
R7
-
Investigate effectiveness of national partnering schemes with major
developers to ensure that this work can be undertaken successfully
without adversely impacting on local services.
R8
-
Improve and monitor working practices and arrangements in conformity
with DETR Building Control Performance Standards, ensuring that overall
3
service quality is maintained and improved whilst addressing the plan
checking issue.
R9
-
Expand the use of home working to improve efficiency and increase time
available for plan checking and inspections.
R10
-
Develop training structure to ensure staff are kept informed of changing
technical issues and the business/organisational environment.
R11
-
Develop a performance culture within the section to ensure a strong focus
is maintained on improving plan checking speed without losing other
quality features.
R12
-
Enhance the effectiveness of IT usage within the section, in order to
optimise capacity and assist in the improvement of performance
management.
Transparency, Probity, Fairness and Consistency in Decision Making
Development Control
R27
-
Revise Local Code of Conduct for Members and officers dealing with
planning matters in light of new publicised national and LGA guidance.
R28
-
Produce QA procedure for Planning and Transportation Panel.
R29
-
Produce policy on achieving a responsive dialogue with local people
rather than just consultation.
Focus on what matters/A Safer Salford
Building Control
R13
-
Improve efficiency and effectiveness of the demolition process in order to
minimise nuisance to Salford citizens and improve the local environment.
R14
-
Improve the efficiency and effectiveness of dangerous structures service
in order to ensure “a safer Salford”.
R15
-
Improve efficiency of licensing service in order to ensure “a safer Salford”.
Development Planning
DP4.1
-
Community Plan Living Environment Forum to be developed as a
Strategic Development Partnership.
DP4.2
-
Prepare Derelict Land Strategy.
4
DP4.3
-
Improve mechanisms for coordination of work with Chief Executive’s
Economic Development.
DP4.4
-
Integrate LA21 into the Community Plan.
Improve Performance Management and monitoring systems
Development Control
R4
-
Further develop the performance culture and focus staff on key
improvements.
Building Control
R28
-
Develop an improved performance monitoring system in order to ensure a
cost effective service and maximise efficiency.
Development Planning
DP5.1
-
Develop a clear and deliverable work programme.
DP5.2
-
Improve the management of requests for new work.
DP5.3
-
Ensure key priorities and proposed work outcomes accurately reflect
Directorate’s Service Plan.
DP5.4
-
Undertake process mapping for key work.
DP5.5
-
Streamline monitoring of performance indicators.
DP5.6
-
Secure improvements to the way in which consultants are used.
DP5.7
-
Learn from best practice from around the country.
DP5.8
-
Improve the induction of new staff.
DP5.9
-
Develop a standard approval for project management.
DP5.10 -
Implement benchmarking with family authorities.
Market Share in Building Control
Building Control
R16
-
Focus service on local customer demands. Produce an outline marketing
strategy for the service to target local customers, specific demands and
potential partners, review on an annual basis.
5
R17
-
Develop and promote the benefits of the web site beyond statutory
guidance to further engage customers.
R18
-
Align fees with all other Greater Manchester Authorities, in order to
provide a uniform local approach.
R19
-
Produce a promotional brochure to encourage new business.
Customer Focus
Development Control
R5
-
Modernise how the City Council consults with regular users to secure
further and more efficient transactions.
R8
-
Improve access to service.
R9
-
Extend opening hours Thursdays from 8.00 a.m. – 7.00 p.m.
R10
-
Improve web site.
R11
-
Improve access by Black and ethnic minority groups.
R12
-
Improve reception by implementing reception access action plans.
R13
-
Publish service standards and information on planning applications on
web site and poster in reception.
R14
-
Introduce Duty Officer system.
R15
-
Submit charter mark bid to maintain continual improvement on customer
issues.
R16
-
Implement Peer Review Group 4 for strategy.
R17
-
Develop strategy for access to services in a Contact Centre and One Stop
Shop.
R18
-
Publicise the Development Team approach.
R29
-
Produce policy on achieving a responsive dialogue with local people
rather than just consultation.
Building Control
R20
-
Produce brochures and other forms of media to publicise service
standards.
R21
-
Introduce Development Team Approach (DTA).
6
R22
-
Produce leaflets in other languages promoting the service.
R23
-
Improve planning counter by working to action plan.
R24
-
Produce clearer application forms and reduce the number required.
R25
-
Extend services and information available on the Web Site.
R26
-
Publish standards and PI’s on web site and promotional poster within
reception.
R27
-
Bid for a Charter mark for the service. This will demonstrate a customer
focussed service and lead to further improvements.
Development Planning
DP6.1
-
Provide written information on the service.
DP6.2
-
Improve cover arrangements in office.
DP6.3
-
Ensure that those speaking/reading languages other than English are able
to access the service.
Staff Resource Management
Development Control
R3
-
Ensure adequate staffing levels.
R4
-
Develop performance culture, focus staff on key improvements.
Building Control
R4
-
Devolve staff recruitment to section manager – in order to ensure staff
resources are maintained and targets can be achieved.
R6
-
Create more staff flexibility in order to address fluctuating workload
demands.
R9
-
Expand the use of home working.
R10
-
Develop a training structure.
R11
-
Develop a performance culture to ensure a strong focus is maintained in
improving plan checking speed without losing other quality features.
7
Development Planning
DP4.5
-
DP5.13 -
Ensure adequate staffing levels to deliver agreed work programme.
Develop the performance culture within the section