FOREWORD
The Police Service is continuing to go through a period of modernisation, with many drivers and opportunities for changes in approaches to service delivery, exciting developments in technology and collaboration expected between forces, “blue light” services and across the public sector. Since the last Asset Management Plan in 2018, there have continued to be organisational changes, increased demand for services and further challenging budget reductions required across the public sector - as well as a major pandemic. It is envisaged the public sector will continue in an environment of budget challenges for some time yet, with the added uncertainty of high inflation and the drive to achieve sustainability targets. Property is a key resource for Thames Valley Police, as it is with any organisation – it has value, but costs money to use and maintain. While it is a critical component in supporting service delivery, it has to make a significant contribution towards reducing our revenue costs and environmental impact. It is therefore essential that it continues to be strategically and centrally managed over the long term, supports our organisational priorities, and is aligned where practical with our partners strategic plans. Significant capital receipts and revenue savings have already been achieved, but there is more to do, with the next 10 years projected to add to these achievements. However, with over 120 property disposals since 2010, and a fewer number now remaining, additional worthwhile and affordable estate changes and opportunities are becoming more challenging to identify and deliver. One significant positive coming out of the recent pandemic, was the significant culture change shift embracing agile working. Our post pandemic Working Smart approach, and investment in [agile] ICT, are now seen as key enablers for future estate change, in terms of what estate we need and how we use it. While good progress has been made, and with no fundamental gap in what property we have relative to current service requirements, the performance of our portfolio needs to continue to improve. It needs to contribute more to our Productivity Strategy and sustainability goals, by delivering enhanced value for money, have enhanced corporate identity and be a workplace of choice for our current and future workforce. We recognise that this will entail not only consistently challenging the need for property, but also a strong commitment from both the Force and PCC to provide the necessary support and investment to facilitate a programme of change over the next 10 to 20 years.
Jason Hogg
Mathew Barber
Chief Constable
Police & Crime Commissioner for Thames Valley
ASSET MANAGEMENT FRAMEWORK 2023 - 2033
CONTENTS
PAGE
1.0 INTRODUCTION & CONTEXT
1.1 1.2 1.3 1.4
Purpose of the Asset Management Framework (AMF)
3 3 4 4
Thames Valley context
How the Police Service is delivered
Organisational, political and Estates structure
2.0 ASSET VISION
2.1 2.2
Corporate mission and priorities
6 7
Asset vision
3.0 ASSET STRATEGY
3.1 3.2 3.3 3.4
Our estate Our funding
9
11 12 15
Our Corporate Landlord approach Other relevant property strategies
4.0 ASSET MANAGEMENT PLAN
4.1 4.2 4.3 4.4 4.5 4.6 4.7 4.8 4.9
Current external and internal issues affecting asset planning
18 18 19 20 20 21 22 22 22 23 23
Translating the Asset Vision
Strategic Estates Requirement Plan (SERP) Individual site strategy – retention indicator
Disposal programme
Mitigating the impacts of planned population and housing growth
Maintenance work streams & priorities Capital Schemes work streams & priorities
Facilities Management & sustainability work streams & priorities
4.10
Risks and issues
4.11 Asset Management Implementation Plan
5.0 ANNEXES
1. 2. 3. 4. 5.
Overview of the Portfolio
25 26 30 31 37
Strategic Approach By Asset Category Strategic Estate Requirements Plan (SERP) Individual Site Strategy - Retention Indicator Asset Management Implementation Plan
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
1.0 INTRODUCTION & CONTEXT
1.1 PURPOSE OF THE ASSET MANAGEMENT FRAMEWORK (AMF)
This framework document comprises 4 principal components:
a. Estate Vision – what the estate will aspire to be b. Asset Management Strategy (AMS) – how the vision will be delivered – our approach c. Asset Management Plan (AMP) – what will be delivered d. Asset Management Implementation Plan (AMIP) – specific actions to be undertaken
This AMF builds upon the outputs and activity highlighted in the first 2008 Asset Management Strategy in 2008, which remain fundamentally valid, and the previous AMP format. Its purpose is to:
Provide an overview of TVP’s strategic direction and corporate objectives, and the implications these have for the property portfolio over the next 10+ years Outline TVP’s vision and objectives for its property portfolio and how success will be highlighted Explain the overall strategic direction for the management of TVP’s property in supporting the corporate objectives and priorities Provide an overview of what property we have, how it is performing and is managed, and key activity required Highlight key issues affecting or that may affect future property provision and investment decisions, and to identify our main property priorities The AMF will therefore outline where we are now, where we want to be and how we will get there. It will provide a strategic context for rational property investment decision making. As TVP operates in an environment of change, with regular new initiatives locally and nationally, it is proposed to continue to update specific “live” aspects of the AMP annually, with a more comprehensive refresh of the AMF every five years.
1.2 THAMES VALLEY CONTEXT
Thames Valley is the largest non-metropolitan force in the country with an expected staff establishment (FTE) at the start of 2023 of approaching 8,400 officers, PSCOs and support staff, over 240 Special Constables and a significant number of volunteers. Thames Valley serves a population of approximately 2.5m. The demographic and geographical characteristics of Thames Valley are diverse, across 8 unitary, 5 district and 1 county council areas. Thames Valley is projected to expand significantly over the next 20 years with an additional 245,000 new homes identified to be delivered by 2042 and the population set to increase by 130,000. Furthermore a number of new infrastructure, employment and leisure developments will also be delivered. This scale of growth will continue to impact on the demand for policing services and resources, with areas of significant new development and regeneration.
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
1.3 HOW THE POLICE SERVICE IS DELIVERED
The Force currently operates through 11 Local Policing Areas ( LPA’s ) aligned to local authority political boundaries, and a range of forcewide shared service departments, delivering both operational and support functions centrally or from area based hubs. The LPA structure is under review in 2023 and may alter, with any implications for the estate needing to be considered. TVP works closely with partners such as councils, other public, voluntary and emergency services and criminal justice organisations such as HM Courts & Tribunal Service, Probation Service, and the Crown Prosecution Service. TVP also works in collaboration with other forces to ensure community safety, in its broadest terms, is delivered as effectively as possible. The most significant are the Joint Operations Unit with Hampshire Constabulary, and South East regional working including counter terrorism, organised crime and other activity. Estate provision needs to enable and support this complex organisational and operating structure, and to respond effectively to change.
1.4 ORGANISATIONAL, POLITICAL AND ESTATES STRUCTURE
The Police service is currently managed nationally through a tri-partite arrangement between the Home Office, the Chief Constables of each force and Police and Crime Commissioners. Locally, the police service is delivered by Thames Valley Police and is overseen by the Police and Crime Commissioner (PCC) for Thames Valley. The actions, decisions and performance of the PCC are in turn scrutinised by an independent Police and Crime Panel. There are strong links at a strategic level between the Force and PCC, and both headquarters functions are currently based in Kidlington, Oxfordshire All Force activity falls under the direction of the Chief Constable’s Management Team. Legal ownership of the property portfolio is vested in the Police & Crime Commissioner. The responsibility for the management of all aspects of the TVP estate on behalf of both the Chief Constable and the PCC, lies with the Force’s in-house Estates team, operating within the portfolio of the Deputy Chief Constable (DCC). The primary estates oversight and decision making forum is the Strategic Estates Group (SEG) which typically meets quarterly, is chaired by the DCC and includes senior officers of the Force and Office of the PCC, and other relevant stakeholders. The Estates department is an in-house HQ function comprising Strategy & Assets, Capital Schemes, Maintenance and Facilities teams, the latter predominantly area based. Departmental activity is supported, when needed, by the use of external consultants.
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
2.0 ASSET VISION
Estate planning necessitates taking a long-term view, and the provision of an investment and delivery framework aligned to organisational priorities, affordability, risks and opportunities.
2.1 CORPORATE MISSION AND PRIORITIES
T he role of the estate is to support the PCC’s and F orce’s mission, vision and priorities. They are summarised as follows;
TVP MISSION: Protecting our communities
An excellent police force trusted by our communities
TVP VISION:
We treat everyone with fairness and respect We are courageous and do the right thing We strive to improve every day We are proud to be Thames Valley Police
TVP VALUES:
PCC POLICING & CRIMINAL JUSTICE PLAN 2021-2025
THAMES VALLEY POLICE STRATEGIC PLAN 2022/23
Strong local policing*
Reducing crime and incidents Bring more offenders to justice
Fighting serious organised crime Fighting cyber crime and fraud Improving the criminal justice system Tackling illegal encampments
Protect the vulnerable & tackle violence against women and girls Improve victim services and public confidence Value our workforce Use our resources wisely Maximise the benefits of digital developments
* The PCC’s Crimefighters strategy was published in April 2023
Asset management, as a service delivery support strand, cross cuts a number of these corporate priorities.
“ TVP 2025 ” is a longer term corporate strategy focusing over the medium term on areas of transformation around the following 6 pillars:
FOCUS ON FRONTLINE SERVICES
BECOME AN EMPLOYER OF CHOICE
EMBED PREVENTION
MODERNISE FORENSICS
BECOME A DATA DRIVEN ORGANISATION
BUILD TRUST & CONFIDENCE
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
2.2 ASSET VISION
To support the corporate vision, priorities, and service delivery generally, a clear asset vision is needed, which in effect becomes a 10+ year framework for planning the estate. From this an asset strategy and delivery plans can be developed.
By 2033, the TVP estate should demonstrate the following attributes, by being:
FIT FOR PURPOSE
PRODUCTIVE
IN GOOD CONDITION
Right space, place and time
Supports the Force’s & PCC’s strategic objectives and priorities Contributes to workforce productivity Contributes to the Force’s Productivity Strategy
Ensure the estate is kept operational and safe Maintain reliable condition survey data Highlight long term funding requirements (and deterioration risk) Prioritise maintenance activity effectively (& sustainably) A MODERN CONDUCIVE PLACE TO WORK Flexible and safe ( “our” not “my” space) Zoned not owned Supports diversity and wellbeing Clean and welcoming
Supports service delivery to the public
Supports Working Smart principles
Sufficient
SUSTAINABLE
LEANER & MORE EFFICIENT
Progress estate de-carbonisation Support fleet electrification(with enabling infrastructure Reducing consumption & non- recyclable waste Apply (WLC and) sustainable procurement principles
Maximise asset utilisation and VFM (Ensuring best use of resources Identify new viable replacement opportunities Identify new estate reduction and consolidation opportunities Monitor and progress worthwhile collaboration opportunities with partners Futureproof for change
How this looks in terms of a delivery strategy for specific property categories, and at a site/property level, is addressed in the Asset Management Strategy section 3 and the Asset Management Plan section 4 respectively. This Asset Vision provides a basis for assessing how successful asset management activity has been by 2033 , in supporting the Force’s and PCC’s strategic objectives and priorities.
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
3.0 ASSET MANAGEMENT STRATEGY
This Asset Management Strategy (AMS) section provides an overview of our land and property estate, together with our approach to asset management and our main focus for managing and developing the estate over the next 10+ years. The AMS will be periodically reviewed to ensure our estate fully supports the PCC’s and F orce’s c orporate objectives and priorities
3.1 OUR ESTATE
3.1.1 Property categories
The TVP estate comprises operational, residential and shared equity portfolios. Police services are delivered through a range of operational property types reflecting the structure of current local policing delivery, force wide operational and business support requirements. A strategy for each property category is highlighted in Annex 2 .
3.1.2 Size and nature of the portfolio
TVP’s operational portfolio including headquarters and support facilities, but excluding covert facilities, comprises:
94 sites (as at March 2023) with approximately 180 buildings 136,000 sqm gross floor area Asset (book) value, as at 31 March 2023 of £201m 7 stand alone communication mast sites 89% of the floor area is owned. This was 88% in 2018 and 72% in 2010 Around 83% of the floor area dates between 1950 and 2000
An overview of the portfolio is in Annex 1 . The portfolio is changing, with an ongoing disposal programme, with some more modern replacement facilities planned, and some significant building investment and maintenance projects underway and planned at any given time. The number of sites has reduced by 119 since 2010, with a net floor area reduction (after replacements) of nearly 22,000 sqm, TVP has a small residual residential portfolio of 7 houses together with some trainers accommodation at the Sulhamstead training centre. This has diminished rapidly in recent years, with most of the remaining houses expected to have been sold by 2028.
3.1.3 Estate performance
TVP has actively participated in the annual National Police Estates Group benchmarking process for many years, although was unable to do so in 2022/23 covering the 2021/22 financial year. The NPEG assessment, currently managed through CIPFA, is a very detailed consideration across a range of criteria such as space, age, cost and consumption. Performance in some categories has been in the 1 st and 4 th quartiles. Some highlights from the 2020/21 inter-force output:
KPI
PERFORMANCE
OTHER FORCES AVERAGE
Space density per FTE
16 sqm £149.53
18.1 sqm £149.69
Total property cost per sqm GIA Total operational space within GIA Building stock aged 1946-2000 Building floor area (GIA) owned
45% 91% 89%
31% 68% 79%
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
Direct comparisons with other forces while of interest, are not particularly reliable in any event, due to the inconsistent quality of the annual data provided across forces for the benchmarking process. Notwithstanding that, while relative performance in each category can vary, TVP ’s performance has, overall, consistently been in the 2 nd or 3 rd quartile compared against at least 30 participating forces annually over a number of years.
In previous iterations of the AMP an internal KPI set was reported. Some key indicators from that had targets expiring by March 2022 which were achieved, such as;
INTERNAL KPI
TARGET
OUTCOME
Net* capital receipts Net* revenue savings * Of any replacement costs
£45m
£47.8m £4.52m
£4.50m
These and other indicators are no longer considered fit for purpose or required as most are now reported elsewhere, such as through the NPEG benchmarking process, Environmental and Sustainability Strategy and Strategic Estates Group (sale receipts and savings).
3.1.4 Fitness for purpose and space utilisation
T he remaining TVP portfolio has consistently been objectively rated either fit for purpose or generally fit for purpose across a range of performance criteria such as sufficiency, suitability, condition, environmental performance and cost. The need to improve our utilisation of the portfolio was the key strategic direction of TVP’s 2008 Asset Management Strategy, which remains a valid objective. Highlights from the analysis of all sites for which there is detailed space data are: Office space accounts for 32% of total gross internal floor area, up from 27% in 2018, reflecting a range of factors associated with policing such as the need for specialist buildings, training facilities, and the nature of operational police sites requiring a range of support facilities such as custody, storage, briefing, equipment locker and incident rooms etc The usable floor area per workstation within all office areas is now 5.36 sqm across over c.5,800 workstations (5.76 sqm in 2018 and 7.30 sqm in 2010) which compares well with the recommended long term (10 year) target of 6 sqm set in 2008. It is unlikely this will be significantly improved upon, as the implementation of Working Smart necessitates the provision of adequate ancillary support spaces, which might affect the quantum, layout and use of core work/desk space.
Further and ongoing analysis will be undertaken on space data, as this provides important information for applying and monitoring workplace strategy at a site specific level.
3.1.5 Estate Collaboration
Collaborative asset management dialogues have been underway with most public sector partners across the Thames Valley area since 2010, seeking to identify and progress any opportunities to make better use of the public estate. TVP has participated in the One Public Estate initiative since 2016 across all 3 counties, and this has strengthened working relationships with our partners, in particular “Blue Light” partners. A Memorandum of Understanding around estate collaboration, entered into with all 3 Fire Services across Thames Valley in 2015, continues to prove constructive. Partner premises can represent good value for money, they can enable site disposals, there can be operational benefits in co-location with the right partners, and co-location is attractive politically. At a local level TVP is located in partner premises at 40 locations, down from a peak of
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
57 in 2016 largely as a result of reducing the number of small underused neighbourhood offices. The ability of our partners to use TVP buildings is constrained by security requirements, but does occur at a specific operational team level.
3.2 OUR FUNDING
3.2.1 Financial context
The 2023/24 budget is prepared against a background of unprecedented inflationary increases, a tight recruitment market, supply chain shortages and market volatility, along with uncertainty about future government spending. At the same time the Police service, both nationally and locally, is adjusting to the changing nature and complexity of crime, by investing in recruiting, training and developing officers, and adopting new technologies. To balance these financial pressures with the base cost of ongoing operations, the MTFP includes challenging productivity savings targets. All new business bids are prioritised as part of the annual planning process against the same matrix, taking account of benefits and cost, with the highest priority projects progressed for funding consideration. Inflation has had a disproportionate impact on the construction industry, adding to the existing pressures of maintaining an aging estate. Over the MTCP (including 22/23) it is anticipated that revenue spend will increase from 3.5% of net force revenue spend, to over 4%. For the same period, total Capex spend will be approximately £191.7m, of which property expenditure will be £89.9m, and these figures are at risk of further inflation and slippage due to the above market pressures. The majority of new projects currently have only provisional approval for planning purposes, and to reflect the potential financial impact on force budgets. After full utilisation of estates reserves and reinvestment of asset sales proceeds, the majority of this is still likely to be funded from borrowing.
3.2.2 Cost in Use
The estate represents one of the most significant component revenue costs after staff cost. In 2022/23 the total revenue property budget, excluding reserve funded schemes but allowing for productivity savings, was £17.8m, which represents 3.53% of the force net revenue spend. While estate rationalisation and reductions in estate operating budgets had reduced the cost of the estate steadily since 2012/13, when it was £25.4m, the current inflationary pressures require an increase in the projected budget for the next 4 years to £23.3m (4.02% of force net revenue spend).
3.2.3 Future Maintenance Requirements
The operational portfolio is estimated, as at March 2023, to have approximately £75m of identified maintenance requirements to 2033, based on a combination of condition survey information, ongoing annual servicing costs, and reactive/day-to-day repairs. This information is subject to continuous review so that estimate is likely to evolve. While the overall condition of the estate is currently reasonable, with the unavoidable consequence that reduced maintenance budgets will be insufficient to address long-term maintenance requirements, there is a need to closely monitor portfolio condition, maintenance expenditure (in particular for reactive works) and site specific building infrastructure performance. This is a national issue across the public estate and is reflected in the Force’s 10 year Strategic Estat e Requirements Plan, and it is also highlighted as an estate risk in the Property Services Department’s Risk Register.
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
3.3 OUR CORPORATE LANDLORD APPROACH
3.3.1 Core departmental activity
TVP’s Estates department operates a centralised “corporate landlord” approach to asset management, ensuring robust central control and oversight, consistency and alignment of the estate with ongoing requirements and priorities, covering the following:
Strategic management . Maintain/reinforce a “corporate landlord” asset management model:
o Centralised strategic asset planning aligning with corporate objectives and priorities o Centralised sustainability planning and delivery o Centralised facilities management delivered locally o Centralised space management and allocation o Centralised works prioritisation informed by local input o Estate aligned to the Force’s operational delivery model and required footprints o Reducing expensive leased sites/buildings where practical o Prioritising strategic sites essential to service delivery o Identifying collaboration opportunities/enablers
Embedding Working Smart principles and workplace application:
o Develop and periodically review desk and supporting facility ratios o Plan and progress HQ & LPA Working Smart pilots and rollout force-wide o Monitor staff productivity and wellbeing o Monitor suitability & performance of WS workplaces over time
Datasets . Ensure robust and reliable datasets covering:
Building Condition/FMR Space and occupancy Running costs & income Consumption & emissions
o o o o o
Legal compliance
o CAFM core information requirements
Relevant strategies . Regularly refresh strategic estate plans and related strategies:
Asset Management Framework Estate Maintenance Strategy
o o
o Environmental & Sustainability Strategy
Demonstrate & measure performance : To cover:
Estate utilisation
o o
Estate cost
o Receipts (sale & s106/CIL), income & savings o Carbon emissions/energy consumption o Waste reduction/recycling o Estate reduction o Monitor status of Estate Maintenance backlog and condition deterioration
Plan ahead : Maintain a rolling (“live”) 10+ year Strategic Estates Requirement Plan (SERP) covering strategic and site specific major projects and programmes with indicative timeframes, resourcing and cost:
Business requirements Estate rationalisation
o o
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
Addressing condition
o o o
Asset management opportunities
Sustainability
3.3.2 Asset management key operating principles
A set of key operating principles help to deliver the Asset Vision through robust asset management:
1. With the need to protect frontline services, there will continue to be an overriding aim to reduce non-staff premises related costs as much as possible
2. Property is a corporate asset rather than in the “ownership” of any part of the service and a Corporate Landlord approach will be used consistently with defined standards and protocols 3. The Force will identify those strategic sites that are essential to service delivery and fit for purpose, and seek to maximise space utilisation at those locations, thereby enabling the release of other sites for disposal 4. The priority will be to dispose of premises that do not represent value for money through having relatively high revenue costs, require significant investment for poor return, are not fit for purpose, are operationally surplus to requirements and / or are under utilised
5. The use and provision of property, and asset management activity generally, should contribute towards the F orce’s commitment to reduce our impact on the environment
6. Opportunities for co-location with partners , whether within TVP or third party premises, and worthwhile income generation should be actively identified, assessed and progressed where practical and viable to do so 7. Property tenure is not the critical determinant for service delivery. There should be no rigid policy on the extent of property ownership and/or leasing. Procurement choice will reflect strategic, financial, operational and commercial circumstances, and any requirement to retain flexibility 8. Decisions about retention or disposal of property will be subject to a business case review process that will include consideration of strategic, operational, financial, and political issues 9. All use of premises will be assessed against the key components of the Working Smart approach (including team adjacency requirements, security standards, working styles, desk ratios) to ensure that space utilisation and agile working opportunities are maximised 10. Decisions around expenditure and investment in property will be made having regard to the content of this AMF, and other related strategy documents such as the Estate Maintenance Strategy and Environmental & Sustainability Strategy, adopting a whole life assessment approach where appropriate.
3.3.3 Asset challenge
Asset challenge is an embedded process, based on sector best practice, meaning we will be reviewing our assets on a rolling basis. This ensures only those assets that are needed are retained. The aim is to identify and act upon under-performance, to reduce costs, to identify those assets to be retained and invested in, those that are or could be surplus to requirement and could be disposed of, and where new or amended provision is needed to meet service delivery requirements.
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
National best practice recommends a step by step challenge process, ensuring testing against common criteria:
STEP 1 STRATEGIC PURPOSE
STEP 2 OPPORTUNITIES AND RISK
STEP 3 PERFORMANCE APPRAISAL
Why do we hold the asset, what is expected of it? STEP 4 OPTION APPRAISAL
Exploitable opportunities, barriers, risks
Cost benefits, financial/non- financial outcomes
STEP 5 PRE-IMPLEMENTATION CONSULTATION
STEP 6 OUTCOME
Qualitative and quantitative benefits and risks
Engaging stakeholders
Should the asset be retained, re-purposed or disposed of?
Between 2010 and 2018, the TVP estate was assessed every 2 years through a Property Retention Challenge (PRC) process. This is an objective assessment of all sites undertaken to provide an indicator of the site’s retention rationale or indicative value for money. The PRC assessment covers 32 criteria over 5 categories:
Service delivery
Fitness for purpose Space utilisation
Asset management issues Financial performance
This is a useful objective indicator to inform both strategic planning and day to day estate management activity.
The outputs for the 91 sites (excluding car parks) assessed in 2018 are summarised in the table below:
PRC OUTCOME
SITES
TOTAL
GOOD
SATISFACTORY
POOR
Total Sites % of Total
54
37
0
91
59%
41%
0%
100%
59% of sites were in the “good” category, with 53 % identified for retention. Of the 37 properties in the “satisfactory” category, 31 were either disposal or potential disposals. With the limited disposals undertaken since 2018, some with smaller modern replacements, and with the consistent outcomes seen between previous assessments, the position is not expected to have substantively changed since 2018. A further PRC challenge of each asset will be undertaken before 2028. In summary, the operational portfolio generally performs well in supporting service delivery, with very few sites requiring essential (as opposed to desirable) replacement, or significant change or investment not already identified or planned for. Very few of TVP’s properties are therefore currently identified for disposal as a result of poor performance or corporate and functional re- structuring. What may seem to be reasonably well performing buildings still have the potential to be re-provided in a much more cost effective way, exploiting a reduced space requirement, high site values, collaboration and lease break/expiry opportunities to release capital receipts, revenue savings, and improved utilisation of core retained sites, by relocating functions not requiring a local presence.
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
3.4 OTHER RELEVANT PROPERTY STRATEGIES
In addition to this Asset Management Framework, there are two key strategies sitting alongside the AMF that influence and inform day to day and strategic estates activity and workstreams:
3.4.1
Estate Maintenance Strategy
The Estate Maintenance Strategy (EMS) is updated at periodic intervals and is submitted for review/consideration by the Strategic Estates Group. It provides an overarching framework for the force’s approach to maintaining the estate and it works in parallel with other key strategic estate documents (e.g. AMP, SERP, and the Sustainability & Environmental Strategy.
The principal aims and objectives of the EMS are as follows:
To provide the information platform upon which we can understand the condition status of the repair and maintenance of our estate. To understand the current and expected future costs of owning, managing and maintaining our estate. To establish a robust basis for assessing, planning and prioritising our repair and maintenance requirements aligned to the Force’s Asset Management P lan (AMP). To facilitate the accurate and periodic reporting on current levels of maintenance expenditure against assessed need and to provide a framework whereby maintenance backlog and estate condition deterioration can be monitored To provide a methodology for assessing and ensuring that the accommodation/buildings occupied by the Force are in a safe condition and comply with statutory & legislative, health & safety, welfare and security requirements. To ensure through appropriate maintenance plans/programmes that the estate is capable of supporting the Force’s delivery of its strategic operational priorities/objectives. To ensure that the EMS is considered and approved at an appropriate level within the organisation and that it is reviewed at agreed regular intervals to ensure it remains fit for purpose. The EMS provides clarity about the approaches to be applied in order to undertake prioritisation of detailed estate maintenance activities at site or building level in relation to a range of factors including business continuity impact, retention status (as stated in the AMP), operational performance standards, wellbeing considerations and compliance requirements.
3.4.2
Environment & Sustainability Strategy 2022-2032
In 2022 TVP adopted a 10 year strategy to achieve the required environmental sustainability performance. Strategy drivers include legislative requirements, financial benefits, operational efficiencies for example reducing energy use, public perception and staff expectations. One of the 7 strategic objectives relates to the estate, and focuses on de-carbonisation (for example, a requirement to replace traditionally fuelled heating systems with low carbon alternatives) and to reduce energy consumption. By 2032 TVP aims to reduce carbon emissions from our buildings by a further 36%, representing a cumulative 85% reduction from the original 2009/10 baseline. By 31 March 2022 there had been a 53% reduction achieved.
To support delivery of the strategy outcomes, the estate related priorities are to:
Improve estate data monitoring and analysis to better understand environmental performance and where there may be opportunities Embed sustainability initiatives as business as usual across maintenance and project activity
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
Assess electrical infrastructure and supply availability for key sites which supports electrical vehicle charging and heating decarbonisation Promote collaboration between teams and with contractors to establish key decarbonisation opportunities Develop supporting information to assist in assessing asset disposal and purchase Promote staff behaviours Establish sustainability credentials for new buildings and large refurbishments.
Sustainability related estates activity and specific projects are reflected in the Asset Management Plan section 4.
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
4.0 ASSET MANAGEMENT PLAN
This section outlines what we plan to do to deliver the asset vision and strategy, and will address the following:
Overarching estate plans and activity over the next 10 years:
Translating the asset vision
o o
Strategic Estate Requirements Plan
o Individual site strategy retention indicator o Disposal programme o Mitigating the impacts of planned population ad housing growth o Property Services (Estates department] team priority workstreams
Risks and issues
Specific strategic and procedural implementation activity envisaged over the next 3 years. This is reflected in the Asset Management Implementation Plan in Annex 5.
4.1 CURRENT EXTERNAL AND INTERNAL ISSUES AFFECTING ASSET PLANNING
There are a number of identified internal and external issues and initiatives that are known to or may have a significant property implication in the future. The Force undertakes an annual scanning assessment to ensure new issues and possible impacts and key risks are identified, and disseminated as part of the Force’s regular strategic assessment process. Some issues could impact upon estate requirements, resource commitments and forward planning, such as:
INTERNAL
EXTERNAL
Funding/affordability – a need to prioritise Working Smart – embedding a key enabler Custody estate condition & suitability Increased training pressures Wellbeing, recruitment & retention Force Review/LPA structure
Officer Uplift – absorbing growth Population & housing growth impacts Strategic Review of Policing Sustainability agenda incl de-carbonisation National policy changes National funding & the need for savings
These issues can be fluid and take some time to develop, and need to be monitored and forward plans adjusted where necessary.
The most significant “new” issue (2023) is the TVP Force Review. This concerns the potential restructuring of the current 11 Local Policing Areas. There is the potential opportunity to revisit certain sites that have proven too challenging to replace, to consolidate certain assets and to further challenge others. Conversely, any significant changes around the size and location of teams may impact on the viability of some sites.
4.2
TRANSLATING THE ASSET VISION
The asset vision in section 2.4 and the asset strategy by category in Annex 2 can be translated into a specific, but high level, picture of estate change by 2033. This sets the scene for planning activity at a site level: Embed Working Smart as BAU, aligned to IT developments, to enable estate reduction, the holistic provision of wellbeing and other support facilities, any required new capacity and to help promote TVP as an employer of choice
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
Consolidate the two Headquarter sites to a single primary HQ site in Kidlington, expected to be HQ South, but potentially re-purposing HQ North if retained
Reduce the size and cost of the LPA Operational Area HQ estate, while retaining substantial local footprints, where practical and viable to do so, aligned to the prevailing LPA delivery structure. To include termination of the Abingdon PS PFI agreement in 2030 and purchasing its freehold interest, and consolidation of the Oxford estate if deliverable Reduce the number of remaining large Sector Stations , with smaller local replacements where needed, affordable and deliverable, preferably through collaboration, and aligned to the prevailing operating model Reduce the cost of the Neighbourhood Police Office estate through periodic challenge of the existing estate, disposing of underused and/or expensive offices, but developing alternative informal low cost solutions, aligned to technology, to maximise Officer & PCSO agile working Align Operational Support functions with the required delivery model, whether in hubs or aligned to the prevailing LPA structure. Consolidate HQ forensics functions in a new hub in Bicester, enhance geographical CSI hubs, and monitor the requirement for a consolidated digital forensics hub and/or regional income generation opportunities Consolidate the Custody estate from 8 to preferably 5 suites aligned to the Custody Estate 2030 strategy, building a new suite in Maidenhead, a new suite in Kidlington (potentially on HQ North) and Theale (if possible at a future date), and refurbish all other long term retained suites to ensure they remain fit for purpose. If Theale were progressed then it would replace Loddon Valley Develop the business case for a new Northern Training Hub in Bicester, consolidate Sulhamstead Training Centre and Upper Heyford as critical training hubs, maintain capacity at the REC, reduce Contact Management Centres from three to two, and develop a fleet workshop strategy
Dispose of all remaining Staff Housing when the opportunity arises, and upgrade Sulhamstead training houses to a modern en-suite standard
To sufficiently fund estate expenditure in order to deliver both PCC approved strategic needs as well as ongoing maintenance, infrastructure and sustainability requirements to ensure estate operability and achieving mandatory targets and legal compliance Maximise income from commercial telecoms installations, and develop other income generation, cost reduction and collaborative opportunities across the estate, where practical and worthwhile.
4.3
STRATEGIC ESTATE REQUIREMENTS PLAN (SERP)
Annex 3 contains the most significant projects and workstreams considered to be required over the next 10-15 years. Most are one-off projects but some represent a long term annualised work programme (e.g maintenance or sustainability) or a grouping of inter-related projects that together reflect a programme of delivery activity over a period of years. They reflect a mixture of business requirements, strategic planning, estate rationalisation, building condition and sustainability. Each has clear drivers, implications if not undertaken and relevant inter-dependencies. In view of the very significant cost of all these projects/programmes, it is not guaranteed that all of them will ultimately be affordable, and there will be a prioritisation.
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
One of the more complex geographical areas is central Oxfordshire, with a developing strategy focussing on the HQ estate and the expensive Abingdon PFI site, but also impacting on Milton Keynes, Bicester and Oxford. There are numerous inter-dependencies. During 2023/24 it is expected that decisions will be made on which of multi-faceted estate scenarios/options should be developed and progressed, and the required funding and enabling projects arising from that process. The scenarios reflecting significant estate change would enable between 7 and 9 of the 27 SERP projects to be addressed.
4.4
INDIVIDUAL SITE STRATEGY – RETENTION INDICATOR
Annex 4 lists all overt operational sites by County and current Local Policing Areas. It gives a RAG rated indicator as to its condition and business continuity status. It also more importantly indicates the recommended retention/disposal status of each site/property and any activity focus needed. These ratings may alter if circumstances change over time, however, as well as confirming definite disposals (which will ultimately be reflected in the disposals programme at an appropriate time) it highlights a number of “potential” disposals that may translate into definite disposals, or be confirmed for retention, in due course. Many of those are subject to periodic or ongoing reviews, and decisions can often be affected by organisational changes, wider estate strategy development, or the viability and/or the deliverability of any required replacements.
4.5
DISPOSAL PROGRAMME
There has been a significant programme of site disposals and surrender of leases, with or without replacements, since 2010. Disposals represent a significant contribution to the Force’s Productivity Strategy, generating receipts to offset funding pressures, and securing revenue savings. The disposal programme reflects opportunities arising from lease expiries or break clauses, and the potential to “downsize” the Police presence in an area by replacing often oversized and under-utilised buildings with a smaller more fit for purpose, lower cost replacement to accommodate typically only locally facing teams, and any appropriate public interface.
In terms of estate rationalisation prioritisation, the key approach will continue to be to:
Challenge lease retention . Low cost well used facilities can be presumed retained, but underused ones should be surrendered, and expensive ones replaced where practical with a lower cost option. Preference for increasing use of informal facilities, or low cost partner space, avoiding commercial leases where practical Sell freeholds for valuable alternative use (with low cost replacement off site where practical) where no worthwhile income generation alternative Backfill surplus space in core retained sites with TVP users and/or public sector partners. Pursue co-location options in partner premises if value for money and deliverable Purchase and refurbish private sector freeholds – eg industrial or office premises where practical as a replacement operational team base Provide smaller new build replacements on part of high value freehold disposal sites , provided by the purchaser/developer, where no cheaper or suitable alternative is available. Purchase new, or build new, off site only where there is no other option and where affordable – ie significantly smaller replacements with a lower revenue cost. As at March 2023, 119 operational estate disposals have been achieved since 2010 with house sales in addition, contributing significantly to the forces MTFP, Capital Programme and Productivity Strategy. It has become increasingly harder to identify a significant programme of disposal/replacement opportunities that is deliverable and affordable. Over the next 5 years (April 2023 to March 2028) the disposal programme will aim to achieve the following confirmed disposals:
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
PROPERTIES
PROJECT STATUS
Princes Risborough Newport Pagnell Pangbourne Faringdon
Replaced at nearby Fire Station. Site sold STP Replaced at nearby Fire Station. Site sold STP Replaced at Theale new Tri-Service Hub. Site to be sold To be replaced with a smaller local facility Replaced. Site sold STP To be replaced with on-site facility and surplus land sold Replaced. Site to be sold when short term need ends To be replaced with a smaller local facility Aligned to when they become surplus
Reading Windsor
Wolverton Carterton 7 house sales
These sales are expected to generate the following:
GROSS SALE RECEIPT (ESTIMATED)
REVENUE SAVING (ESTIMATED)
REDUCTION IN SPACE (GROSS INTERNAL FLOOR AREA)
£29.3m
£390,000 pa
15,553 sqm
The programme can be fluid, with circumstances changing, some disposals slipping or advancing and new ones being identified. Within the Site Retention Strategy ( Annex 4 ) there are always a number of potential disposals identified, some of which can translate into new disposals in the future when circumstances become appropriate. It is therefore a snapshot, but there are regular reports internally to the SEG on the status of and progress with the programme.
4.6 MITIGATING THE IMPACTS OF PLANNED POPULATION AND HOUSING GROWTH
Planned housing growth to 2033 and beyond, continues to represent a significant current impact and future risk. A number of large scale housing developments are at various stages of delivery, and the majority of councils within the TVP area are planning for their future housing growth. A housing requirement calculation from Central Government indicates that over the next 20 years 245,000 homes should be delivered in the Thames Valley operational area. This will result in an indicative increase in population of 5.4% or 130,000 by 2042. TVP are seeking to mitigate the impact of this growth through: 18 new local Neighbourhood Policing facilities identified to councils 3 have been delivered - 1 in Didcot and 2 in Milton Keynes 10 of these recognised in local planning policy, 8 more secured in legally binding S106 Agreements. All assumed to be capital funded by developers TVP has secured £3.6m in legally binding S106 contributions to date (March 2023) of which £1.5m has been received to spend on items of infrastructure, vehicles and equipment The Force’s ability to police an expanded Thames Valley , relative to its resource, will continue to be monitored, and may become a formal risk. The scale of growth will generate pressure points where new or adapted existing accommodation will be required, alongside the need for more vehicles and equipment. 10 Councils across the Force area have so far formally adopted CIL, and while TVP has secured recognition for CIL funding and our requirements arising from growth, as yet (March 2023) no funding has been received via CIL.
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ASSET MANAGEMENT FRAMEWORK 2023 - 2033
4.7 MAINTENANCE WORKSTREAMS & PRIORITIES
The Maintenance team has a typical revenue budget of around £4-5m and delivers across planned preventative (servicing), planned and reactive workstreams. Current priority or high profile activity includes: Condition surveys – a programme of outsourced surveys to inform forward maintenance requirements for at least the next 10 years, informing the annual planned maintenance programme
Fire compartmentation – an essential programme of activity to ensure the ongoing safety of our estate
Kitchens and toilets upgrade – rolling out a programme across all large sites. Those currently funded sites are High Wycombe, Amersham and Aylesbury. Others will follow
Working Smart enabling works – focussed around decoration and minor works to support the rollout of WS across HQ and large operational sites
CSI hub expansion and upgrades – 6 hubs are to be upgraded during 2023 and 2024
Oxfordshire CCTV hub – a collaborative project to consolidate 4 small suites into a single location
4.8
CAPITAL SCHEMES WORKSTREAMS & PRIORITIES
The Capital Schemes team has a typical revenue budget of around £3-5m and an agreed allocation of capital programme funding in the 5 year Force MTFP, focussing on a range of current and planned capital and revenue funded projects such as:
Acquisition and fitting out of Atlantic House to replace Reading PS
Acquisition, construction and fitting out of new regional operational hubs
Design and construction of a new Forensics hub in Bicester on TVP owned land
Relocation of the Force Mounted Section to a new facility in Buckinghamshire
Delivery of AMP generated local replacements where required
Development of key new build and refurbishment projects arising from the Custody 2030 Strategy
Enhancements to force training facilities
It is expected that a significant volume of project work will arise from decisions on SERP projects (and in particular the central Oxfordshire estate strategy), and from the updated Forward Maintenance Register following completion of a programme of condition surveys.
4.9 FACILITIES MANAGEMENT & SUSTAINABILITY WORKSTREAMS & PRIORITIES
The Facilities Manager is responsible for day to day FM and sustainability with a varied range of projects and initiatives such as:
1. The Environment & Sustainability Strategy. This encompasses significant aspects of the organisation and implementation will focus on the following areas:
Short term opportunities around improvements to building controls, insulation, completing the transition to LED lighting, and changing staff behaviour.
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