Final Strategic Learning Estate Strategy ECSPB
Renfrewshire Council · 22 August 2024
Back to Education and Children's Services Policy Board — 22 August 2024 and its agenda
Text extracted from the council's PDF. Layout and reading order may differ from the original.
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Page 1 of 16 To: Education and Children’s Services Policy Board On: 22 August 2024 __________________________________________________________________ Report by: Director of Children’s Services __________________________________________________________________ Heading: Strategic Learning Estate Strategy __________________________________________________________________ 1. Summary 1.1 The new Childrens Services Service Improvement Plan 2024 to 2029 includes a clearly stated priority to “Create the best possible learning estate to allow children and young people to thrive”. 1.2 To deliver on this vision, it is intended that the learning estate be assessed in its entirety, utilising data already available within the Council, and by establishing a programme to revitalise our learning estate to meet the strategic vision and objectives outlined in this report and provide learning environments suitable for the 21st century. 1.3 The Council has adopted an improved placed based approach to developing our communities. In addition, a new approach to strategic property management is ongoing under the banner of ‘Strategic Property Review’. Education establishments are a significant element of the overall property portfolio, and a modern inclusive learning environment is imperative for the prosperity, safety, and education of our young people. A highly suitable and good condition establishment has a direct correlation to engagement and raising attainment. Growing evidence also shows the benefits to the wider community by making the learning estate an asset for all. For these reasons, the development and delivery of the learning estate strategy has been identified as a top priority. 1.4 A strategic methodology has been developed that will allow a structured assessment of our existing learning estate and the establishment of a prioritisation framework that will help secure an understanding of how to approach delivering on our strategic vision and provide a comprehensive and transparent process to develop prioritised investment proposals to reshape, refurbish or rebuild our learning estate over the long term. This involves an analysis of every establishment in the learning estate and includes improved asset management and investment in existing schools to improve standards for every learning environment.
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Page 2 of 16 1.5 If approved, this approach will initiate the development of the most ambitious strategic programme of investment planning ever in our learning estate, underpinning an ambition to provide the very best environments and facilities for our young people and communities, with every single establishment being considered as part of what is envisaged will be a programme which will span over 20 years. 1.6 The strategic methodology outlined in this report will enable the development of an objective investment programme spanning multiple years. This will enable the council to drive the pace of delivery through a thoughtful and overarching consideration of cost, need, and ambition. 1.7 It is clear that the establishment of a dedicated multi-disciplinary team will be required to deliver an ambitious programme such as is proposed, and approval of the strategy will enable the investment programme detail to be developed and provided to members for consideration as part of the Council’s financial planning arrangements and annual budget setting process. Development of a long term strategic approach in this manner will ensure the programme has flexibility, with the pace of delivery able to be adjusted as required in response to any anticipated financial or affordability adjustments over the long term, without reducing the overall strategic ambition. __________________________________________________________________ 2. Recommendations 2.1 The Education and Children’s Services Policy Board is asked to: 2.1.1 Agree the strategic vision and objectives. 2.1.2 Adopt the objective assessment and prioritisation criteria and methodology. 2.1.3 Agree governance proposals as detailed in Appendix 1. 2.1.4 Agree to proceed to the identification of priority projects for further consideration based on approved methodology and objectives. 2.1.5 Agree to the development of a long-term funding model to set out the financial deliverability requirements of the vision. 3. Background 3.1 Renfrewshire Council has historically approved an ambitious rolling medium term capital investment programme updated on an annual basis to deliver new and improved strategic assets for communities and to maintain and ensure continuing service delivery across all services. 3.2 Whilst this has allowed the delivery of major projects and, specifically, improvements and new build projects in the learning estate, the focus in the recent past has been on town centre and city region investment. Learning estate initiatives have been limited to those agreed through the School Estate Management Plan (SEMP) which has had a narrower focus based around ongoing maintenance and short-term necessity, rather than a long-term area wide approach to investment.
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Page 3 of 16 3.3 A strategic review of the learning estate has commenced, and this has supported the development of an ambitious long term strategic approach to improving the learning estate within Renfrewshire. Such an approach is essential to ensure that the significant scale of required improvements in Renfrewshire’s learning estate can be appropriately planned for and implemented to create a high standard of school accommodation over the medium to long term. 3.4 It is intended that the learning estate be assessed in its entirety, utilising data already available within the council, with a proposed strategic programme established to revitalise all learning establishments to meet the strategic vision and objectives outlined in this report. A strategic methodology has been developed that will allow a structured assessment of our existing learning estate and the establishment of a prioritisation framework that will help secure an understanding of how to approach delivering on our strategic vision and provide a comprehensive and transparent process to develop prioritised investment proposals to reshape, refurbish or rebuild our learning estate over the long term. This proposed long term strategic investment approach will represent the most ambitious programme of investment ever in our learning estate and provide the opportunity to provide the very best environments and facilities for our young people and communities, with every single learning establishment being considered in a programme which is anticipated will span over 20 years. 3.5 A strategic vision and set of objectives defining the vision have been developed, and if this strategic approach is approved by the Policy Board the first phase of priority projects will be developed for consideration, approval and subsequent inclusion in medium term financial planning arrangements. 3.6 At present, the existing learning estate new build programme in delivery over the next four years, is currently estimated at approximately £175 million, covering a new build secondary, two primary schools and a secondary school extension. The scale of investment need in the whole learning estate that is anticipated to be established through this much longer-term period will be significantly greater by comparison, likely running into billions as opposed to hundreds of millions of pounds. In this context, a commensurately long term 20 – 25 year strategic funding model will require to be developed to set out financially, how the most significant investment programme undertaken by the Council can be financially deliverable over the very long term. This long term strategic funding model will be required to set out: - i. the proposed funding approach – that would be designed to secure funding confidence in advance of projects progressing to provide assurance around the financial capacity to develop, design and deliver major phases of a long-term investment programme of this nature, ii. affordability considerations – setting out the scale of financial commitment that would be required from the Council over the long term, how delivering the funding model can be effectively integrated into the Council’s long term financial planning arrangements and short term budget setting as well as the range of interchangeable strategies available to meet this requirement over the longer term,
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Page 4 of 16 iii. financial sustainability – setting out how the cumulative impact of the funding model on the Council’s finances will remain within financially sustainable levels over the very long term, iv. the scale and timing of the financial investment capacity the Council is prepared and able to commit to over the long term which will be a key factor in determining the potential pace of delivery and scale of each major phase of investment. 3.7 To deliver this unprecedented strategic ambition, the following are key elements of the new strategic approach: i. A strategic vision which clearly states our long term aspirations, ii. A defined set of strategic objectives which articulate the specific requirements to be delivered to meet our vision, iii. A transparent and objective methodology to identify and prioritise projects to enable a delivery programme to be established, iv. A financial model which will enable the Council to establish a fund of sufficient scale to meet our ambition, v. An internal governance structure, incorporating our already robust and established formal approval and oversight requirements, but with a programme board dedicated to oversight and delivery of the strategic programme. vi. A standardised business case process which will be applied to each proposed project prior to formal project approval. 4 Strategic Vision and Objectives 4.1 The new Childrens Services Service Improvement Plan 2024 to 2029 was approved by the Policy Board in May 2024 and includes a clearly stated priority to “Create the best possible learning estate to allow children and young people to thrive”. This is a key priority specifically for the learning estate and it is proposed that this is adopted as our strategic vision. 4.2 To define what is considered necessary to deliver the “best possible learning estate” a set of strategic objectives has been established, which will inform and drive the programme and which clearly articulate the pragmatic and deliverable requirements for the key elements of any learning establishment. These objectives have been derived from a series of engagement and discovery sessions with officers across many council services, as well as consideration of national strategies, objectives, and community engagement/feedback. 4.3 Strategic Objective 1 – Condition All blocks in all schools, and all schools overall shall be rated A or B as defined in Scottish Government Guidance for local authorities reporting on the condition of learning estates.
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Page 5 of 16 4.4 Strategic Objective 2 – Suitability All blocks in all schools, and all schools overall shall be rated A or B as defined in Scottish Government Guidance for local authorities reporting on the suitability of learning estates. 4.5 Strategic Objective 3 – Sufficiency (Capacity) To ensure fair and equitable provision, schools should be operating within an optimal occupancy efficiency range of 80-95%. 4.6 Strategic Objective 4 – Inclusivity All users are safe, achieving, nurtured, responsible and included. The school is fully accessible inside and outside for all learners, staff and community users and facilities are designed and provided to enable diverse needs of users to be accommodated in relation to medical, religious and specific personal needs. 4.7 Strategic Objective 5 – Digital Within Renfrewshire we shall provide the following digital connectivity to allow all children access to digital tools and grow their skills as part of the curriculum: • Network with a minimum 1GBps download speed and a minimum of 1GBps upload speed for all schools. • A backup connection to prevent a single point of failure leading to a total loss of connection. • Wi-Fi capacity for all users to experience the minimum performance standards in each school and offer flexibility throughout. 4.8 Strategic Objective 6 – Sustainability and Net Zero We shall apply net zero and low carbon principles to all new build and refurbished schools to meet and exceed where possible the standards set by Government and the Council for such establishments. It is recognised that the learning estate plays a major part in the total combined carbon footprint, and all considerations moving forward must effectively contribute to Renfrewshire’s net zero ambitions. 4.9 Strategic Objective 7 – Community Facilities and Placeshaping Learning establishments shall serve the wider community and at every stage from design to construction, consideration shall be given to the provision of work, community and partner accommodation, and ongoing use. This will ensure efficiency and modern standards across the wider council estate, by maximising the learning estate, and will work collaboratively with wider placeshaping initiatives.
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Page 6 of 16 4.10 Strategic Objective 8 – Active Travel All schools will be provided with safe and accessible walking, cycling and wheeling routes to promote healthy and environmentally friendly alternatives to car use. 5 Current Learning Estate 5.1 Renfrewshire Council currently has 63 schools comprising of 50 primary, 11 secondary, and 2 ASN schools. Appendix 2 details all primary, secondary and ASN establishments with the core condition, suitability and capacity data currently held within the Council. 5.2 The current condition and suitability assessments of all schools, as defined in the Scottish Government’s ‘Core Facts’ guidance is outlined in the tables below and shows that 16 of the 63 schools are categorised as ‘A – Good’. The majority of schools fall into the category of ‘B – Satisfactory’ for both condition and suitability, but there has been a gradual deterioration when compared to 2019 when the last School Estate Management Plan was approved by the Board. A full overview of the Core Facts data for all schools can be found in appendix 2 of this report, as well as descriptions of what is meant by the main core fact headings. A more detailed description of this process as well as full supporting data can also be found in the School Estate Management Plan report, which has been provided to this board. 5.3 Implementation of the proposed new strategic approach to learning estate revitalisation will enable the Council to improve the whole estate over the long term to ensure it is able to meet the demands of our communities as we move to the middle of the 21st Century. 6 Condition 8 Suitability 2019 2024 Change 2019 2024 Change A 18 16 -2 A 14 13 -1 B 43 42 -1 B 46 46 0 C 1 5 4 C 2 4 2 D 0 0 0 D 0 0 0 62 63 62 63 5.4 These core facts, along with other data analysis and intelligence including future roll projections and sufficiency data, clearly indicate that we must take action to address key challenges across the learning estate with the guiding benefit that doing so will directly improve the lives and experiences of our young people.
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Page 7 of 16 6. Strategic Alignment 6.1 Renfrewshire Council Plan 2024 - 2027 states a vision of "Creating a fairer Renfrewshire built on innovation, wellbeing and opportunity”. It is therefore important that this vision is engrained throughout all aspects of council business and service provision. 6.2 Drawing on the overarching council vision, the learning estate strategy must seek to address the key components of this vision, namely, innovation, wellbeing, and opportunity, to set a vision for how the estate can be improved and maintained to positively impact our young people, employees, and communities. 6.3 The learning estate strategy has also been devised by drawing on core concepts of wider council strategies. This includes a link to the strategic property review strategy which has an objective “to assess the size of and shape of the Council’s property estate, to provide a modern property estate that meets the current and future requirements to: • Support learning • Support Service delivery outcomes • Support community needs • Reduce its carbon footprint (including energy consumption) • Have a financially sustainable property portfolio” 6.4 The learning estate strategy also follows the guiding principles set by the Scottish Government in its own national learning estate strategy, which can be found in Appendix 3 of this report. 7. Governance and Delivery 7.1 Work has been undertaken to ensure that best practice methods and processes are implemented from a management and delivery perspective. This has informed a proposed refresh to the establishment and terms of reference for the officer level governance and programme arrangements established to oversee the development and delivery of the overall programme. This has included, within the context of the Council’s formal governance arrangement, what and how the programme board proposes to exercise delegated authority within the overall officer level governance, to allow appropriate flexibility to dynamically manage the demands of a major long- term programme of this nature. 7.2 There will continue to be appropriate and effective governance in place at Council and Policy Board level for the learning estate programme to be
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Page 8 of 16 delivered and controlled and all formal governance requirements within the Council will be fully observed and followed as part of the overall programme governance arrangements. 7.3 The terms of reference for the revised officer level programme delivery board and associated authority thresholds are included in Appendix 1 – Learning Estate Strategy and Delivery Board Terms of Reference & Governance Framework. These terms of reference will be used to manage and control the delivery of the learning estate programme effectively and reflect the governance authorities already in place. 7.4 Beyond governance and authority levels, it is recognised that the scale of the learning estate programme will require a core multi-disciplinary team to support its development and deliver over the long term. The Council has adopted similar approaches with other major investment programmes in recent years, most notably City Deal and Cultural Regeneration Programme. It is recognised that this programme as envisaged will be much broader than construction and infrastructure, and a competent professional team must be established to strategically plan the development of the learning estate by looking forward, considering all relevant data, legislation, and requirements to achieve a learning estate that is fit for purpose and integrates effectively with wider Council strategic objectives in relation to place shaping, community and strategic use of our property portfolio. 7.5 It is intended to implement a team structure that broadly mirrors that which has effectively delivered and continues to deliver major investment projects as part of the City Deal and Cultural Infrastructure programmes. Following approval of this strategy, steps will be taken to begin assembling over time the required multi-disciplinary team and where required external engagements to ensure access to highly specialist skills to be drawn into the team as and when they are required. 7.6 A core team of this nature will provide highly focused support to the programme which will also help drive longer term benefits such as ensuring high levels of consistency and quality of support and approach to be applied to individual projects over the long term, including but not limited to project management approach adopted across all learning estate projects, consistency in the scale and nature of business case development, maximising procurement opportunities and community benefits, providing a consistent and structured approach to delivery of all capital projects, irrespective of the school or scale of the project etc. 8. Financial Modelling 8.1 At present, the existing learning estate new build programme in delivery over the next four years, is currently estimated at approximately £175 million, covering a new build secondary, two primary schools and a secondary school extension. The scale of investment need across the whole learning estate that is anticipated to be established through this much longer-term planning period will be significantly greater by comparison, likely running into billions as opposed to hundreds of millions of pounds.
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Page 9 of 16 8.2 In this context, a similarly long term 20 – 25 year strategic funding model will require to be developed to support the Learning Estate strategy that will set out financially how the most significant investment programme undertaken by the Council can be financially deliverable over the very long term. This long term strategic funding model will be required to set out: - i. the proposed funding approach - that will be designed to secure funding confidence several years in advance of projects progressing, providing confirmed deliverability of the financial capacity to move forward with plans to develop, design and deliver major phases of a long-term investment programme of this nature, ii. affordability considerations – setting out the scale of financial commitment that will be required from the Council over the long term to underwrite the funding model, how delivering the funding model can be effectively integrated into the Council’s long term financial planning arrangements and short term budget setting as well as the range of interchangeable strategies available to the Council to meet this requirement over the longer term, iii. financial sustainability – setting out how the cumulative impact of the funding model can remain within financially sustainable levels in the context of the Council’s overall resources over the very long term, iv. the scale and timing of the financial investment capacity the Council is prepared and able to commit to over the long term which will be a key factor in determining the potential pace of delivery and scale of each major phase of investment, v. how both the funding model and indeed the investment programme itself can be flexibly adapted to respond to shorter term affordability pressures that may emerge for the Council recognising that over such a long-term period the Council is likely to face a range of financial pressures, shifting demands and priorities that will have been unexpected and it will be required to manage. 8.3 In broad terms the funding model requires to support three key elements within the overall programme: i. The funding of the core team through appropriate capitalisation of costs across the lifespan of live projects to minimise any ongoing revenue burden in a challenging financial climate. ii. Capital project funding for the delivery of all major investment projects – which will encompass new build projects and significant refurbishment projects where deemed appropriate. iii. Strategic lifecycle maintenance – working collaboratively with colleagues in facilities management, the Council also needs to develop and deliver major long term planned lifecycle maintenance programmes underpinning an objective to pro-actively and appropriately protect the fabric of the learning estate assets to retain all schools in a category A or B for condition. 8.4 At present, delivery of the existing SEMP projects, totalling approximately £175 million of investment is already planned for and accommodated within
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Page 10 of 16 the Council’s existing medium term financial planning with delivery of these projects currently planned over the period 2026 – early 2028. It is envisaged that subject to appropriate approvals and project development future phases of investment at scale emerging from this strategic programme and the associated financial implications will not begin to impact until post 2027/28 financial year. Detailed and appropriate consideration of the financial implications of planned commitments made by the Council will however be incorporated as appropriate into existing medium and longer term financial planning as the initial phase of this strategic programme is considered, developed and approved ultimately by Council as part of the overall financial and capital planning processes. 8.5 Whilst the Council has previously secured funding through national school investment initiatives such as the Learning Estate Investment Programme provided by the Scottish Government, progressing a strategic programme with significant reliance on any future national funding schemes would be inappropriate to deliver the scale of the stated ambitions – albeit depending upon future national government decisions such funding schemes will undoubtedly continue to play an important role as part of the overall funding mix. This strategic approach to the planning of investment priorities and a longer term pipeline of projects will ensure the Council is will be well placed, with well developed project options to react quickly as such opportunities arise and maximise the opportunity to secure funding support. In this context it is therefore important that the Council develops and implements its own capital funding model that can be supplemented should any external national funding routes become available throughout the long term period. 8.6 At present the Council currently manages capital financing through a rolling five year investment programme, and it is anticipated the future learning estate investment phases will continue to be framed in the context of rolling 5 year programmes. 8.7 The rolling nature of this approach ensures a five year forward projection is annually re-evaluated, utilising the prioritisation matrix (set out in section 11 of this report) as the underlying catalyst for priority project identification and to maintain an evolving list of investment projects for development on an ongoing basis through the Learning Estate Strategy and Delivery Board and ultimately for approval through the Education and Children’s Services Policy Board and Council. This rolling 5 year time horizon is well aligned with the length of time taken for community engagement, design, development and delivery of a large scale project such as a school. 9. Design Development & Procurement 9.1 In line with implementing a core team for consistent practice, this strategy will also seek to develop a consistent approach to school design and requirements. The strategy will allow the core team to have clear understanding of baseline requirements for school design to remain up to date with current standards, best practice, and consistently implement lessons learned from ongoing projects to ensure these requirements remain relevant. 9.2 It is the intention that the core team will develop clear design intent requirements which align with the 8 strategic objectives outlined as part of this paper. This approach will ensure that equality is provided in all new school
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Page 11 of 16 design moving forward, and to assist with efficiency of delivery, a baseline set of requirements will be created as part of the strategy that will allow project teams to have clear understanding of what should be delivered to make an excellent learning environment. 9.3 By drawing on lessons learned from previous school delivery projects, as well as learning from other organisations, it also provides assurance that school design will be optimal for learning and teaching which should be at the heart of all decision making. 9.4 Coinciding with both design development and financial modelling, a further key component to strategy delivery is the implementation of a clear procurement strategy. Following approval of the learning estate strategy, further work will take place with procurement colleagues to create a sub strategy of the learning estate. 9.5 Committing to a long term pipeline of planned learning estate projects opens up the opportunity for the Council to carefully consider optimal routes to market and maximise best value that can be secured. It is intended that the procurement strategy will offer options to achieve best value route to market, per type of project, that creates efficiency in project delivery and establishes significantly more attractive package of projects to be taken to the market to maximise interest from the very best contractors. 9.6 In addition, the scale and nature of package likely to be taken to market by the Council over a long-term period also provides the opportunity to maximise community benefits that are derived as part of the procurement process and this will be a key objective as part of the overall procurement strategy. 10. Engagement 10.1 Strong community engagement throughout project delivery is an essential component and is recognised by the Scottish Government as a key process as part of any learning estate programme. Designing with communities and stakeholders should be adopted as best practice. Current processes surrounding Dargavel Village and its associated primary schools, show that the feedback and input through engagement proves invaluable to overall design and direction. 10.2 It is intended that an overall corporate engagement policy that is under development will guide development of engagement strategy for the learning estate. The policy will provide guidance on best practice engagement to ensure early planning, integration with equality impact assessment, robust pre-engagement and identification of options, identification of all relevant stakeholders, clarity on engagement objectives and data management and analysis, and that risks are understood. It will also provide a range of tools to support engagement with different audiences and groups. 10.3 A strong engagement strategy as part of the overall design of the learning estate strategy will ensure that communities and stakeholder are truly engaged in the process of why a change to a school provision is required and allow them to become a part of the process of development for an asset that will serve them and their wider communities for the better.
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Page 12 of 16 11. Identification of Priority Projects for Investment 11.1 To deliver the strategic vision, an improved methodology is proposed to identify and prioritise future investment projects that would be subject to detailed business case development. When developing the methodology, an objective approach was taken to assess the whole estate against the recommended strategic objectives and highlight the schools which should form the focus of the investment programme. 11.2 Based on a weighted evaluation for each school establishment, a prioritised list of all schools can be produced. The weighted criteria will contain data on the three core fact topics which are condition, suitability, and sufficiency (capacity). A further suite of data will also be considered which is quartile data held by Renfrewshire Council. Quartile data is a range of socio-economic data used in a formula to rank schools in relation to deprivation. Schools are organised into 4 quartiles with quartile 1 having higher deprivation measures than 4. In many circumstances, this data is used to target support and resources, particularly in relation to raising attainment. It is therefore proposed that the four categories of condition, suitability, sufficiency, and quartiles are used to contribute to an overall weighted score per establishment. By compiling the four score categories described above along with their weighted score, a final total rating per establishment can be produced. This will allow an overall priority list of establishments to be created. 11.3 The proposed weighted criteria to each of the four elements of decision making can be seen below. Condition 30% Suitability 40% Capacity 10% Quartile 20% 11.4 This approach ensures that identification of which school requires investment as a priority is underpinned by a data driven approach that can be implemented to create the proposed programme of investment, maximising the opportunity for transparency and mitigating the risk of subjectivity. 11.5 Chief Officers directly involved in school estate investment, maintenance, and planning participated in a workshop where alternative weighting scenarios were explored and evaluated and the weightings proposed above were identified as most appropriate for our learning estate. Suitability was identified as the key factor as this is: “the measure of whether a school building and its grounds are fit for the purpose of delivering the education curriculum” (The Scottish Government, School Estates: Core Facts Overview , 2017) 11.6 It is important to note that a caveat to the above exists where there is a clearly identified need to address developing and projected capacity pressures within a school, which will by necessity require to be dealt with as a priority project. The general weighted score of capacity has been included in the overall decision making of combined scoring to assess schools that are operating under capacity and should be assessed strategically as part of future planning.
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Page 13 of 16 12. Business Case and Option Appraisal - including New Build vs Refurbishment 12.1 It is proposed that as projects are identified through the strategic prioritisation process, those identified as priority projects for the next phase of investment will be subject to the development of a detailed business case. All individual business cases will require to be considered and approved by the Board and Council as part of the Council’s overall financial planning arrangements before moving forward to detailed project development. 12.2 A standardised business case process will be developed, compliant with HM Treasury Green Book guidance, to support the overall assessment of the project proposal. This process will include assessing the overall scope of the proposed project, taking into account wider community, placeshaping and strategic property considerations as well as consideration of potential opportunities that may arise in relation to wider estate configuration in the context of existing and longer term roll projections. 12.3 The business case development process will also consider the role of new build vs the role of significant refurbishment. Such an option appraisal will require to take a holistic view of the merits of each and as a minimum it is proposed to consider the following key criteria as an initial triage assessment of whether a major refurbishment is likely to represent a viable option for detailed consideration. , to determine if “following a refurbishment, will the answer be yes to all of the below criteria?”: Refurbishment Triage Assessment Can long term sustained condition A or B be achieved? Can Suitability A or B be achieved? Can sufficiency at 80% to 95% be achieved? Can the Educational Requirements be met? Will a refurbishment provide whole life value for money benefits? 12.4 Should the triage assessment of all questions produce the answer ‘yes’, the decision should be to proceed with a full option appraisal that consider a major refurbishment as a viable option. If any of the answers to the above results in a ‘no’, then the decision should be to proceed with developing option(s) for a new build facility. 12.5 A further key consideration for any new development is based on land availability. Some areas of Renfrewshire currently have limited land available for construction and development which may present specific challenges. This must be factored into detailed business case planning and will be a further stage of decision making when it comes to options appraisal assessment once a decision is made on new build vs refurbishment. To ensure progress
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Page 14 of 16 can be made on any development where land is a constraint, close working relationships will continue between the learning estate team and the Economy & Development service. 12.6 Should land availability be identified as a constraining factor for any required project within the learning estate strategy, this will require innovation including the potential for land and property acquisition and sales to facilitate the assembly of a suitable site. The Council has had recent experience of adopting such an approach by securing the current site for the new Paisley Grammar School currently under construction. Such challenges will require the council to be proactive and determined to deliver on this major ambition to significantly enhance the learning estate. This also reinforces the need for a core team to be working on the delivery of the learning estate strategy to ensure key professional resources are available to work collaboratively on this strategy and contribute on a council wide level to our place making ambitions. 12.7 Whilst much of Renfrewshire’s learning estate has remained static for a number of decades, we are committed to delivering on the vision to “Create the best possible learning estate to allow children and young people to thrive” and consideration must be given to all options when assessing the most appropriate solution for the development of a new learning environment. This could include matters such as catchment reviews, however, should this be required it would be subject to statutory consultation with the community affected. 13. Conclusion 13.1 To deliver the most ambitious programme of investment for our learning estate, the Council must be innovative and forward thinking to collectively drive the delivery of the vision of this strategy, within the overarching strategic priorities of the council. 13.2 Learning estate establishments are imperative for the prosperity, safety, and education of our young people, but growing evidence shows the benefits to the wider community to make the learning estate an asset for all. It is noted that the condition as well as how fit for purpose the establishment is, has a direct correlation to engagement and raising attainment. For these reasons, Children’s Services considers the delivery of the learning estate strategy to be a key priority. 13.3 The strategic approach set out in this paper, supported by the business requirements and resources outlined, will allow an objectively assessed long term prioritised programme of investment to be developed to allow the Council to be best placed to understand what requires to be delivered over the next 20 years in the learning estate to meet the Council’s ambitions for our young people and communities and demonstrate how such a programme can be achieved in a financially responsible and sustainable manner. Implications of the Report 1. Financial
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Page 15 of 16 This report outlines what will be a substantial financial investment for the Council. Should recommendations in this report be approved, detailed work will take place to develop financial models and funding mechanisms for the learning estate strategy which will directly inform long term financial planning and future annual budget considerations, always ensuring that the Council’s financial sustainability is maintained. 2. HR and Organisational Development A dedicated staffing establishment will be required to manage the ambitions set out in this strategy. Work will take place with HR to determine roles, and recruit in line with council policy. 3. Community/Council Planning Our Renfrewshire is thriving - Learning environments will support learning and achievement for all. Our Renfrewshire is well - Learning environments will support the Health and Wellbeing of all. Our Renfrewshire is safe - Learning environments will provide safe and secure spaces for all users. Reshaping our place, our economy and our future - Learning environments will provide spaces which support local enterprise. Building strong, safe and resilient communities - Learning environments will provide spaces to support community activities. 4. Legal Renfrewshire Council adheres to all relevant legislation. 5. Property/Assets The learning estate strategy will offer significant investment to council assets and specifically address constraints on building maintenance. This will offer an improved estate which will bring ongoing financial benefits by having an estate in a positive state of condition. This strategy aligns with the ongoing Strategic Property Review to ensure consistency in decision making. 6. Information Technology Learning environments will have IT provision which supports digitally enabled learning. 7. Equality and Human Rights The Recommendations contained within this report have been assessed in relation to their impact on equalities and human rights. There has been a full Equalities and Human Rights Assessment carried out for the consultation process to ensure it is fully inclusive. No negative impacts on equality groups or potential for infringement of individuals’ human rights have been identified
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Page 16 of 16 arising from the recommendations contained in the report. If required following implementation, the actual impact of the recommendations and the mitigating actions will be reviewed and monitored, and the results of the assessment will be published on the Council’s website. 8. Health and Safety None. 9. Procurement A procurement strategy which supports the aims and objectives of the learning estate strategy will be developed, including principles to deliver efficient routes to market. 10. Risk A full risk register is compiled for all projects in accordance with the Council’s established risk management protocols. All projects will continue to be managed under industry standard best practice methodologies and assess risk on an ongoing basis. 11. Privacy Impact None. 12. Climate Risk All assets aim to comply with the requirements for ambitious energy efficiency targets over the long term and to contribute to the Council’s net-zero commitments. 13. Children’s Rights The rights and wellbeing of children and young people is at the heart of our Children’s Services Health and Safety Plan. As a council we will continue to work together to promote equality and raise awareness of the United Nations Convention on the Rights of the Child (UNCRC) to make sure children and young people’s rights are promoted and reflected in all that we do. This will ensure that we are meeting the requirements of the new duties under the United Nations Convention on the Rights of the Child (Incorporation) (Scotland) Act 2024. 14. Cosla Policy Position None. __________________________________________________________________ Children’s Services JO/JL/AR 2 August 2024 Author: Jack Lochans, Education Manager, Learning Estate (jack.lochans@renfrewshire.gov.uk
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Page 1 of 9 Appendix 1 – Learning Estate Strategy and Delivery Board Terms of Reference & Governance Framework 1. ROLE The Learning Estate Strategy and Delivery Board is a working strategic Board convened of senior officers. The Learning Estate Strategy and Delivery Board advises elected members in terms of capital allocation and project approval and has responsibility for the day-to-day management of the Learning Estate capital programmes, including the realignment of resources to facilitate the effective delivery of the Learning Estate Strategic Capital Investment Programme, including: • Learning Estate New Build • Learning Estate capital improvements and refurbishment/retrofit • Learning Estate extension and modification The Learning Estate Strategy and Delivery Board makes recommendations on any amendments to the approved capital programmes, as required, with any amendments approved by Council and Policy Boards in line with the financial regulations and Scheme of Delegation. 1.1 Chair The Director of Childrens Services will act as Chair of the Learning Estate Strategy and Delivery Board, with the Director of Finance and Resources as Depute. 1.2 Learning Estate Strategy and Delivery Board objectives These strategic objectives are to align with the following national and local priorities and guidance: • Scotland’s Learning Estate Strategy: Connecting People Place and learning • Council Plan 2022-27 • Renfrewshire’s Plan for Net Zero • Renfrewshire Council’s Strategic Property Review The Learning Estate Strategy and Delivery Board shall also i. Develop a Learning Estate Renewal and Improvement Strategy and Finance Model; ii. Implement a Learning Estate Strategic Capital Investment Programme(s) to deliver the Learning Estate Renewal and Improvement Strategy; iii. Monitor the Learning Estate Strategic Capital Investment Programme(s), including performance against delivery aims and objectives; iv. Advise Elected Members on capital allocations and project approval, making recommendations on any amendments to the approved capital programme; v. Ensure the proper alignment of capital resources to allow for effective delivery of the programme(s);
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Page 2 of 9 vi. Monitor expenditure projections against budgets and available resources, revising these where necessary, subject to the limits set out in Section 4 – Authority; vii. Ensure robust governance arrangements around the delivery, monitoring and reporting of capital programmes; viii. Consider the capital monitoring reports to Policy Boards to ensure appropriate actions are agreed for review by Elected Members; ix. Ensure Budgeting principles are embedded in key capital investment decisions of the Council; x. Arrange and undertake training/awareness sessions as required to reinforce skills/knowledge across the Council in respect of capital monitoring and capital financing; xi. Ensure all decisions made by the Learning Estate Strategy and Delivery Board are Intra Vires and in line with the policies and vision of the Council. As a minimum, updates on the Learning Estate Renewal and Improvement Strategy and Finance Model should be provided to both the Children’s Services Directorate and the Council’s Corporate Management Team bi- annually and as required. An annual report on the status of the overall Learning Estate Renewal and Improvement Strategy and Finance Model should be provided to the Education and Children’s Services Policy Board. 2. MEMBERSHIP 2.1 Membership Membership to include: Director of Childrens Services Director of Finance and Resources Director of Environment, Housing and Infrastructure Head of Facilities and Property Services Head of Climate, Public Protection and Roads Head of Economy and Development Services Head of Policy and Partnerships Head(s) of Education Head of Marketing and Communications Corporate Procurement Manager Managing Solicitor (Projects) Finance Business Partner (Children’s Services) Education Manager (Learning Estate & Resources) Learning Estate Programme Manager Service Improvement Manager Membership of the Learning Estate Strategy and Delivery Board reflects the composition of the capital programmes and ensures the fair representation of Council services responsible for investment in all Council assets. The Learning Estate Strategy and Delivery Board must make decisions on a corporate basis, in line with the policies and strategies of the Council, Financial Strategy, Financial Regulations, Scheme of Delegation and other
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Page 3 of 9 relevant plans and policies. If the Council structure changes the membership will be aligned to the new structure. 2.2 Attendance Where Learning Estate Strategy and Delivery Board members are unable to attend meetings, nominated deputies should attend. Learning Estate Strategy and Delivery Board membership should be representative of Council services involved in delivering capital projects within the Learning Estate, with members acting in an independent manner. Quorum is achieved with 70% attendance (including substitutes). If a meeting is not quorate, the Learning Estate Strategy and Delivery Board is required to reconvene. Officers and external parties may be invited to attend meetings of the Learning Estate Strategy and Delivery Board to provide information/ support and to answer questions in respect of the Council’s capital programmes. 3. PROCEDURES 3.1 Meeting Frequency The Learning Estate Strategy and Delivery Board will meet monthly and as a minimum prior to each cycle of the Education and Childrens Services Board and the Finance, Resources and Customer Services Board. 3.2 Administration Administrative support will be arranged by the Chair with the Programme Manager to coordinate and distribute agendas, minutes and meeting papers. Records of all minutes, decisions and actions will be maintained. 3.3 Submissions and Reports Learning Estate Strategy and Delivery Board members may make submissions to the Learning Estate Strategy and Delivery Board. Submissions and progress reports should reach the nominated administrative support no later than five working days before each meeting. Urgent matters may be submitted later than this deadline, but only with the approval of the Chair. 3.4 Agendas and Papers Agendas will be prepared and distributed to Learning Estate Strategy and Delivery Board members with supporting papers at least three working days before each meeting. 3.5 Actions from Meetings Actions will be taken of meetings and will be distributed in draft via email within five working days of the Learning Estate Strategy and Delivery Board meeting. Minutes will be approved by the Learning Estate Strategy and Delivery Board at the following meeting. 3.6 Actions and Communication
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Page 4 of 9 Learning Estate Strategy and Delivery Board members shall ensure that any decisions relevant to their Service are actioned by relevant officers. Responsibility for actions arising from meetings will be recorded in an action log or updated work plan as per the outcome of the meeting. The members of the Learning Estate Strategy and Delivery Board shall refer decisions to individual Policy Boards for approval or noting as appropriate and required, in accordance with agreed limits outlined in Section 4 – Approvals below and will advise the Learning Estate Strategy and Delivery Board of outcomes and decisions made by Policy Boards. The Chair will refer Learning Estate Strategy and Delivery Board minutes to Corporate Management Team as appropriate and required. 3.7 Special Meetings Special meetings of the Learning Estate Strategy and Delivery Board may be called at the discretion of the Chair. As far as possible, normal procedures will be followed. 4. AUTHORITY 4.1 Resources The Capital Programmes are based on estimates of future investment targets funded by a combination of Scottish Government Grants, capital receipts, CFCR and prudential borrowing. When confirmation of investment targets is reviewed or amendments to resources are known, the Learning Estate Strategy and Delivery Board will consider adjusting the Programme accordingly. Recommendations for a revised programme, based on the actual level of resources will subsequently be referred to the Education and Childrens Services Board and/or the Finance, Resources and Customer Services Board for approval, with Council agreeing the overarching annual capital plan. 4.2 Virement & Re-profiling General Fund Capital Programme The Learning Estate Strategy and Delivery Board has the authority to redirect resources across thematic or project categories within the Learning Estate Capital Programme(s). In the event the Learning Estate Strategy and Delivery Board agrees a virement between approved Project / Thematic Categories, this will be up to a maximum of £100,000. Virements above this value require the approval of the Education and Childrens Services Board and the Finance, Resources and Customer Services Board if the virement is across Services.
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Page 5 of 9 4.3 Re-profiling of Capital Allocations The Learning Estate Strategy and Delivery Board has authority to re-profile capital allocations within Project / Thematic Categories up to a maximum of £10,000,000 to and from future years of the Programme to ensure effective delivery over the 3 year rolling programme timeframe, provided this can be managed within the overall annual budgeted resources (i.e. does not create additional unbudgeted borrowing costs). Any reprofiling will be reported to Education and Childrens Services Board and the Finance, Resources and Customer Services Board for noting. 4.4 Over - programming Allowance An over programming allowance may be incorporated into the Learning Estate Capital Programme if the Learning Estate Strategy and Delivery Board consider it appropriate and necessary. This will enable the inclusion of additional capital projects within the programme which take the cost estimates beyond available allocated and approved project budgets to enable utilisation of underspends or funds from aborted or delayed projects within an approved programme allowance. The Learning Estate Strategy and Delivery Board is required to review and monitor any over-programming allowance to ensure levels of funding remain sufficient to meet programme commitments. 4.5 Additional Project Approval Approval must be sought from the Learning Estate Strategy and Delivery Board for new projects/ additional investment which cannot be contained within the currently approved Council Programmes. If approval is granted, the programme must be amended to maintain projected spend within the approved capital budget and approval sought from the Education and Childrens Services Board and/or the Finance, Resources and Customer Services Board as appropriate. Emergency works outwith the approved Programme should be referred to the Chair who will consult as appropriate with the Director of Finance and Resources, the Chief Executive and/or the Council Leader. 4.6 Monitoring Individual Service Policy Board reports will provide monitoring information showing the appropriate level of detail, in line with the project theme groupings as laid out within the Learning Estate Strategic Capital Investment Programme or alternatively in accordance with the appropriate Strategic Delivery Groupings within the individual service programmes. Whilst individual budget holders have responsibility for reporting variances and ensuring compliance with Financial Regulations and General Contract Standing Orders, overall responsibility for financial management lies with the Director of Finance and Resources. Therefore, finance staff must be provided with information for individual projects to allow for effective financial monitoring.
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Page 6 of 9 4.7 Sub Learning Estate Strategy and Delivery Boards To ensure specific management of resources to advance the Councils programme and objectives, the Learning Estate Strategy and Delivery Board may establish and delegate authority to either sub-Learning Estate Project Boards or other Project Boards as considered necessary to progress the Strategic Programme(s). The sub-Learning Estate Project Boards will have Terms of Reference and Governance Frameworks established which shall include the requirement to report back to the Learning Estate Strategy and Delivery Board. 5. POST PROJECT AND POST OCCUPANCY REVIEWS To ensure specific management of resources to advance the Councils programme(s) and objectives, the Learning Estate Strategy and Delivery Board will establish and commission post project reviews for all investments exceeding £2M and a post project review report will be presented to the Learning Estate Strategy and Delivery Board within 6 months of completion of each project. The Board shall also commission a Post Occupancy Evaluation to be completed after one full year of occupation and use and presented to the Board within 15 months of occupation. 6. RISK MANAGEMENT All risks relating to the Programme and to individual projects will be managed in line with the Council’s Risk Management Strategy and in accordance with Project Management guidelines.
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Page 7 of 9 Appendix 2 – Core Facts Summary by Establishment Condition - is described as the current state of the fabric of a school and the safety and security. The condition core fact is based on the latest condition survey, updated with any maintenance or repair work carried out in the intervening periods. The condition rating assesses the physical elements of the school structure and extends to playgrounds; external structures and services; security facilities; and playing fields. Suitability - is a measure of whether a school building and its grounds are fit for the purpose of delivering the education curriculum. The suitability of a school is determined by an assessment of internal and external facilities. This assessment is carried out by the school community and moderated by children’s services. Sufficiency - is concerned with the occupancy levels of schools and assesses which schools are over, or under capacity to determine pupil places available Establishment Name Overall Condition Suitability Of Estate Pupil Roll At last Census School Capacity Roll Sufficiency Primary Estate Arkleston Primary School B B 295 352 83.8% Auchenlodment Primary School C B 195 302 64.6% Bargarran Primary School A B 216 272 79.4% Barsail Primary School B B 308 401 76.8% Bishopton Primary School B B 367 519 70.7% Brediland Primary School B B 196 377 52.0% Bridge Of Weir Primary School C C 442 489 90.4% Bushes Primary School B B 330 489 67.5% Cochrane Castle Primary A A 126 242 52.1% Dargavel Primary School A A 590 534 110.5% East Fulton Primary School B B 224 377 59.4% Fordbank Primary School A A 268 327 82.0% Gallowhill Primary School B B 217 352 61.6% Glencoats Primary School A A 181 352 51.4% Heriot Primary School B B 232 434 53.5% Houston Primary School B B 534 569 93.8% Howwood Primary School B B 116 184 63.0% Inchinnan Primary School B B 125 217 57.6% Kilbarchan Primary School B B 214 352 60.8% Kirklandneuk Primary School B B 446 619 72.1% Langbank Primary School B B 75 100 75.0% Langcraigs Primary School B B 286 434 65.9% Lochfield Primary School B B 252 459 54.9% Lochwinnoch Primary School B B 199 327 60.9% Mossvale Primary School B A 207 272 76.1% Newmains Primary School B B 403 459 87.8% Our Lady Of Peace Primary School B B 230 352 65.3% Ralston Primary School B B 382 459 83.2% Rashielea Primary School B B 161 434 37.1% St Anne's Primary School B B 137 242 56.6% St Anthony's Primary School A B 245 302 81.1% St Catherine's Primary School B B 218 272 80.1% St Charles' Primary School B B 388 489 79.3% St David's Primary School A A 91 184 49.5% St Fergus Primary School A B 170 175 97.1%
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Page 8 of 9 St Fillan's Primary School B B 90 184 48.9% St James's Primary School (Paisley) B B 168 217 77.4% St James's Primary School (Renfrew) B B 558 676 82.5% St John Bosco Primary School A A 257 272 94.5% St John Ogilvie Primary School B B 244 272 89.7% St Margaret's Primary School B B 170 272 62.5% St Mary's Primary School B B 274 327 83.8% St Paul's Primary School A A 180 217 82.9% St Peter's Primary School C B 223 352 63.4% Thorn Primary School B C 152 272 55.9% Todholm Primary School A A 389 434 89.6% Wallace Primary School B B 330 434 76.0% West Primary School B B 403 761 53.0% Williamsburgh Primary School B B 334 594 56.2% Woodlands Primary School A B 249 459 54.2% Secondary Estate Castlehead High School B B 753 1230 61.2% Gleniffer High School A B 1110 1425 77.9% Gryffe High School B B 958 960 99.8% Johnstone High School C B 869 1380 63.0% Linwood High School A A 436 576 75.7% Paisley Grammar School C C 1066 1329 80.2% Park Mains High School B A 1467 1591 92.2% Renfrew High School B B 829 1267 65.4% St Andrew's Academy A B 1480 1250 118.4% St Benedict's High School A A 725 850 85.3% Trinity High School B C 953 1032 92.3% ASN Estate Mary Russell School B B 169 169 100.0% Riverbrae School B A 219 219 100.0%
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Page 9 of 9 Appendix 3 – Scottish Government Learning Estate Guiding Principles 1. Learning environments should support and facilitate excellent joined up learning and teaching to meet the needs of all learners; 2. Learning environments should support the wellbeing of all learners, meet varying needs to support inclusion and support transitions for all learners; 3. The learning estate should be well-managed and maintained, making the best of existing resources, maximising occupancy and representing and delivering best value; 4. The condition and suitability of learning environments should support and enhance their function; 5. Learning environments should serve the wider community and where appropriate be integrated with the delivery of other public services in line with the place principle; 6. Learning environments should be greener, more sustainable, allow safe and accessible routes for walking, cycling and wheeling and be digitally enabled; 7. Outdoor learning and the use of outdoor learning environments should be maximised; 8. Good consultation about learning environments, direct engagement with learners and communities about their needs and experiences, and an involvement in decision making processes should lead to better outcomes for all; 9. Collaboration across the learning estate, and collaboration with partners in localities, should support maximising its full potential; and finally, 10. Investment in Scotland’s learning estate should contribute towards improving learning outcomes and support sustainable and inclusive economic growth.