strategic outline case (soc) - vale of glamorgan and skills... · the purpose of this paper is to...

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STRATEGIC OUTLINE CASE

(SOC)

PROJECT TITLE:

LLANTWIT LEARNING COMMUNITY THE VALE OF GLAMORGAN

16th April 2014

SPONSORING DEPARTMENT:

LEARNING AND SKILLS DIRECTORATE THE VALE OF GLAMORGAN COUNCIL

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DOCUMENT CONTROL

VERSION HISTORY:

Version Date Issued Owner’s Name

AMENDED VERSION

FINAL VERSION

Green Book Version

16 04 2014

10 01 2014

P. Ham – Head of Strategy, Community Learning & Resources

SIP Project Sponsor & Senior Responsible Officer

(SRO)

DOCUMENT PREPARATION:

AUTHORS Jane Wade (Operational Manager, Property Section); Mark Haynes (Schools Organisation & Buildings Manager); Gemma Jones / Nicola Monckton (Accountants); Mark White (Major Projects Manager)

CONSULTEES:

School Investment Programme Board

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CONTENTS

Page

1. EXECUTIVE SUMMARY

4 – 17

2. STRATEGIC CASE

18 – 38

3. ECONOMIC CASE

39 - 52

4. COMMERCIAL CASE

53 - 55

5. FINANCIAL CASE

56 – 61

6. MANAGEMENT CASE

62 – 67

Appendices: Appendix A: Site Plan; Appendix B: Corporate Plan (2013-17); Appendix C: Community Strategy (2011-21); Appendix D: Learning & Skills Service Plan (2013 – 17); Appendix E: Revised Strategic Outline Programme (SOP); Appendix F: Schools Investment Programme (SIP); Appendix G: Economic Analysis – Indicative Costs of the Short Appendix H: Gateway Review 0: Strategic Assessment Report

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1. EXECUTIVE SUMMARY

1.1. Introduction 1.1.1. The purpose of this paper is to set out the Strategic Outline Case (SOC) for the delivery of Llantwit Learning Community project, which has been identified within the Council’s Strategic Outline Programme (SOP). 1.1.2. The main purpose of this SOC is to:

establish the need for the project and its investment;

to appraise the main options for the project; and

to identify for the Council’s Schools Investment Programme Board and Cabinet the preferred way forward, subject to further analysis in a future Outline Business Case (OBC).

1.1.3. This SOC will set out to:

make the case for change within the strategic context of the project;

identify and appraise the various options within the economic case; and

provide indicative costs and potential funding, for much further analysis within a future Outline Business Case (OBC).

1.1.4. This SOC has been prepared in accordance with best practice guidance provided in the HM Treasury’s Green Book and accords with the “Public Sector Business Cases using the Five Case Model”.

1.2. Strategic Case 1.2.1. Strategic Context 1.2.1.1. The proposed Llantwit Learning Community is an ambitious concept for a large-scale capital building project aimed at delivering school buildings to meet 21st Century educational needs for Llantwit Major Comprehensive, Eagleswell and Llanilltud Fawr Primary schools. At a national level the project will fully support the Welsh Government’s 21st Century Schools Programme and at a local level it will assist the Vale of Glamorgan Council deliver its local educational policies set out in Corporate Plan (2013 – 17), Community Strategy (2011- 21), Learning and Skills Service Plan (2013 – 17), revised Strategic Outline Programme (SOP) and Schools Investment Programme (SIP).

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1.2.2. The Case For Change 1.2.2.1. In the autumn of 2013 the Council issued a formal warning letter to Llantwit Major Comprehensive School to improve the standards of pupil attainment to meet minimum targets. The school has been in band 4 for 3 years. In February 2014 Estyn judged Eagleswell Primary School to be in need of significant improvement. The provision of 21st Century School buildings and an innovative learning environment will support these schools to improve performance and to deliver high aspirations for later years. Llanilltud Fawr Primary School has good overall performance and is placed in category A by the Council/Central South Consortium. The school currently has an acting Headteacher and the development of the Llantwit Learning Community will provide an opportunity to attract a candidate of the highest quality to lead the new school and to enable the strengths of the school to inform the development of the amalgamated primary school. 1.2.2.2. As explained in this SOC there is a demonstrable need to improve the buildings and grounds of Llantwit Major Comprehensive School, Llanilltud Fawr and Eagleswell Primary School. Each of the schools to varying degrees has poor accommodation. The physical elements in the environment of a school can be shown to have discernible effects on teachers and learners. An inadequate learning environment can have detrimental effects on concentration, mood well-being, attendance and, ultimately attainment. Hence, this project aims to establish for these schools new and enhanced school buildings and grounds fit for the 21st Century. 1.2.2.3. The related business needs and associated Business Investment Objectives are:

Strategic Policy Fit: to deliver a project that will comply with the national context for education as outlined by the Welsh Government’s 21st Century Schools Programme and the local policy context as set out in the Council’s Corporate Plan (2013 – 17), Community Strategy (2011-2021), Learning and Skills Service Plan (2013 – 17), revised Strategic Outline Programme (SOP) and Schools Investment Programme (SIP);

Educational: to cater for the educational needs and preferences of the local community, by facilitating new and remodelled school accommodation fit for the 21st Century, a high quality learning environment necessary for improving levels of educational attainment;

Financial: to ensure the project is affordable and financially sustainable. In terms of capital, the aim is to deliver within the available budget, school accommodation fit for the 21st Century; and in terms of revenue the aim is to deliver new school accommodation that is: (a) energy efficient, and (b) provides for an efficient use of teaching resources; and

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Sustainability: the project will also address environmental sustainability issues with the aim of delivering new school accommodation that minimizes the impact on the environment and will deliver sustainable benefits to those living in the area.

1.2.2.4. The “Preferred Option” must satisfy existing and future needs of learners, employers, staff and the community. The main outcomes and benefits associated with the implementation of the project are set out in TABLE A: Table A – Main Outcomes and Benefits

Investment objectives Main benefits criteria

Investment Objective 1:

Strategic Fit

Delivery of a project that complies with:

the national policy context for education as per the Welsh Government’s 21st Century Schools Programme;

the local policy context as per the Vale’s Corporate Plan, Community Strategy, Learning and Skills Service Delivery Plan, Education 2015, SOP and SIP.


Educational

Delivery of a project that will:

cater for the educational needs and preferences of the local community;

provide school accommodation fit for the 21st Century, thereby maximizing the opportunity to achieve improved educational outcomes;

reduce surplus capacity resulting in education resources being used more effectively;

provide new facilities for use not only by the schools comprising the LLC but also by other schools in the area and the community.

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Financial


in terms of capital to deliver within the available budget school accommodation fit for the 21st Century;

in terms of revenue the aim is to deliver new school accommodation that will be (a) energy efficient, and (b) provides for an efficient use of education resources;

generate revenue efficiencies through shared facilities management made possible by co-location of the schools;

maximisation of use of assets by making them available to other schools outside of the LLC and local community.


Sustainability


minimize the impact on the environment by designing the new build elements to achieve BREEAM Excellent;

for remodelled buildings incorporate energy saving measures;

achieve EPC A rating;

for every £1M in contract value provided, the contractor will provide a minimum of 80 person weeks of employment for a ‘new entrant’ from a source to be agreed with the Council;

provide new opportunities for new entrants, trainees and those leaving education, including those who are NEET;

use and promote local procurement and work with local suppliers to develop their capacity;

provide an opportunity to work with local education providers and training bodies on targeted recruitment and training (including but not limited to Cardiff and the Vale College and local schools).

Definitions:

New Entrant: a person who is leaving an educational establishment or a training provider or a non-employed person, school or college leaver or an adult who has not been employed within the construction industry.

Person Week: a person employed for five days on the site.

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1.3. Economic Case 1.3.1. The Long List of Options 1.3.1.1. The following Long List of Options for the project have been considered as identified in Table B: Table B – Long List of Options

Option 1: “Do Nothing in Band A/Status Quo” including repairs to Eagleswell and Llantwit Major Comprehensive funded from Asset Renewal and building a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020)

Option 2: Deliver a “remodelled” Llantwit Major Comprehensive School (using Band A funding) and an amalgamated new 420 place primary school on the Eagleswell site for Eagleswell and Llanilltud Fawr (funded from the disposal of the Llanilltud Fawr site);

Option 3 (the “Current Scheme”): Deliver a “remodelled” Llantwit Major Comprehensive School (using Band A funding), repair Eagleswell (using Asset Renewal funding) and build a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020);

Option 4: Deliver an “enhanced” Llantwit Major Comprehensive School (using Band A funding), repair Eagleswell (using Asset Renewal funding) and build a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020 at the earliest);

Option 5 (“the Preferred Option”): Deliver an “enhanced” Llantwit Major Comprehensive School and an amalgamated new 420 place English Medium Primary School for Eagleswell and Llanilltud Fawr built on the existing Llanilltud Fawr site - all let as one contract (using Band A funding, a capital receipt from the disposal of the Eagleswell site and additional Welsh Govt funding);

Option 6: Deliver an “enhanced” Llantwit Major Comprehensive School only (using Band A funding) including repairs to Eagleswell to be funded from Asset Renewal and building a new Llanilltud Fawr on its existing site.

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Note: When reading the above Long List please note: An “Enhanced” Llantwit Major Comprehensive School (estimated to cost circa £15,000,000) is a scheme that allows for the refurbishment of the main school building to a high standard and replacement of all the remaining buildings with one new building using pattern book design as has been used by the Council for Ysgol Nant Talwg in Barry; and A “Remodelled” Llantwit Major Comprehensive School is a scheme (estimated to cost £12,476,000) that allows for the refurbishment of the existing buildings to a good standard along with the removal of buildings which are in the poorest condition. It will not address the issue of there being a number of separate buildings across the site, which presents a challenge to effective buildings and facilities management, timetabling of lessons and management of pupils between lessons.

1.3.2. The Preferred Way Forward 1.3.2.1. On the basis of the analysis set out in this SOC, the Preferred Way Forward is to deliver (subject to statutory consents and funding) a project that benefits all three schools, Llantwit Major Comprehensive, Eagleswell and Llanilltud Fawr primary schools. 1.3.3. The Short List 1.3.3.1. On the basis of the Preferred Way Forward, the Council having analysed the Long List of options set out in this SOC, recommend the following Short List of options (refer to Table C). These are to be the subject of further more detailed evaluation within the Outline Business Case (OBC). Table C – Short List of Options

Option 1: “Do Nothing/Status Quo” including repairs to Eagleswell and Llantwit Major Comprehensive funded from Asset Renewal and building a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020) due to the risk of building failure;


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Option 5 (“the Preferred Option”): Deliver an “enhanced” Llantwit Major Comprehensive School and an amalgamated new 420 place English Medium Primary School for Eagleswell and Llanilltud Fawr built on the existing Llanilltud Fawr site - all let as one contract (using Band A funding, a capital receipt from the disposal of the Eagleswell site and additional Welsh Govt funding).

1.3.4. Indicative Economic Costs

1.3.4.1. The indicative costs for the shortlisted options are identified in Table C as follows:

Table D – Indicative Costs of the Short List of Options

Undiscounted

(£’000’s)

Net Present Cost (Value) (£’000’s)

Option 1: Do Nothing/Status Quo - including repairs to Eagleswell and Llantwit Major Comprehensive funded from Asset Renewal and building a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020) Capital

Revenue

6,882

0

5,176

0

Total costs 6,882 5,176

Less cash releasing benefits 0 0

Costs net cash savings 6,882 5,176

Add quantified risks (Demountables)

1,712 1,468

Costs net savings and risks 8,594 6,644

Non- cash releasing benefits See Appendix G See Appendix G

Total

8,594 6,644

Undiscounted (£’000’s)


Option 3: (the “Current Scheme”): Deliver a “remodelled” Llantwit Major Comprehensive School (using Band A funding), repair Eagleswell (using Asset Renewal funding) and build a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020);

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Capital

Revenue

18,902

2,997

16,450

1,731





1,712 1,468


Non-cash releasing benefits See Appendix G See Appendix G

Total 23,611 19,649



Option 5: (“the Preferred Option”): Deliver an “enhanced” Llantwit Major Comprehensive School and an amalgamated new 420 place English Medium Primary School for Eagleswell and Llanilltud Fawr built on the existing Llanilltud Fawr site - all let as one contract (using Band A funding, a capital receipt from the disposal of the Eagleswell site and Additional Welsh Govt funding); Capital

Revenue

21,066

8,688

19,185

5,085


Less cash releasing benefits -9,107 -6,128

Add quantified risks 0 0



Total 20,647 18,142

1.3.4.2. As shown in the table above, the indicative Economic Costs show that despite the higher Capital cost of the “Preferred Option” (Option 5) and the need to Prudentially Borrow to fund this option, the “Current Scheme” (Option 3) is slightly more costly in terms of both discounted and undiscounted costs. This is because the “Preferred Option” generates revenue savings and benefits from an assumed Capital Receipt on the Eagleswell site. Another key distinction is that Option 5 the “Preferred Option” is the only option that fully mitigates the risk of building failure at Llanilltud Fawr within the next five years, both Options 1 and 3 include the cost of demountable hire as a quantified risk which would be the interim solution should the school building at Llanilltud Fawr fail. It should be noted that there are a number of benefits and costs (as set out in Appendix G) that cannot be quantified at this point in the scheme.

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1.4. Commercial Case 1.4.1. Procurement Strategy 1.4.1.1. Subject to further analysis at OBC stage, the Council envisages procuring this capital build project in accordance with the Council’s Contract Standing Orders and Financial Regulations and in line with EU regulations. 1.4.1.2. The Preferred Option (Option 5) to deliver an “enhanced” Llantwit Major Comprehensive School and an amalgamated new 420 place English Medium Primary School for Eagleswell and Llanilltud Fawr built on the existing Llanilltud Fawr site is intended to be let as one contract. 1.4.1.3. The Council will competitively tender and select a contractor under the SEWSCAP framework. This will save time as the contractors on the said framework have already been short listed in effect through the OJEU PQQ process. This will require the contractors to submit tender prices and take part in a pattern book design competition process. 1.4.1.4 In terms of the contract it is presently proposed to utilise an NEC 3 Option C with design. It is intended to facilitate early contractor involvement together with a collaborative approach in order to reduce risk and to endeavour to deliver the greatest benefits to the scheme. 1.4.1.5. Consideration is being given to selling Eagleswell at market value (subject to Section 123 of the Local Government Act) to the contractor thereby minimizing the risk of securing a purchaser for the site ensuring a capital receipt. This approach would also enable Eagleswell to remain operational within the site until the new amalgamated primary school has been completed 1.4.1.6. The Council will contractually require the contractor to maximise local skills training, employment and supply chain opportunities at a South Wales level similar to the Penarth Learning Community. 1.4.2. Required Services The required services are briefly as follows:

Project Management and Cost Management consultant services including advising on possibility of pattern book design and construction solutions;

Main Works Contractor;

Property agent for advice on the sale of land;

Architect to prepare outline planning permission.

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1.4.3. Potential for risk transfer and potential payment mechanisms 1.4.3.1. The main risks associated with the delivery of the capital building project are: a) Financial Risks:

Insufficient Capital Funding;

Failure to dispose of Eagleswell and therefore no capital receipt;

Insufficient revenue to operate the new school accommodation;

b) Educational risks:

Disruption to the delivery of the educational service for the pupils during the development. (Note – also refer to Operational risks);

End user needs not met. The completed scheme fails to deliver a high quality learning environment that improves educational outcomes;

Failure to effectively amalgamate Eagleswell and Llanilltud Fawr Primary schools into a single 420 place school resulting in a detrimental impact on attainment.

c) Design/Initiation Risks:

Planning permission refused;

Ground conditions;

Design and preparation of Pre Contract Tender documents not completed on time;

Outline planning permission refused for Eagleswell;

Procurement risk – unable to develop suitable package to offer to the market.

d) Build Risks:

Threat to health and safety of pupils and staff and general public during works;

Noise, dust and disturbance affecting delivery of education at the schools;

Poor weather; and

Ground Conditions/Contamination.

e) Operational Risks:

Maintenance problems encountered.

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1.4.3.2. As set out in this SOC through its well established project management and risk management procedures the Council will seek to minimize and mitigate the above risks.

1.5. Financial Case

1.5.1. Summary of Financial Appraisal

1.5.1.2. The proposed costs and funding of the project are set out in Table E. Table E: Costings

Costing of Capital Works

“Do Nothing Status Quo”

(Option 1)

£,000’s

“Current Scheme” (Option 3)

£,000’s

“Preferred Option” (Option 5

subject to OBC)

£,000

Llantwit Major Comprehensive School

0 12,476 15,000

Merge Llanilltud Fawr & Eagleswell Primary Schools

0 0 4,750

Asset Renewal on Enhanced Llantwit Comprehensive

0

0 991

Asset Renewal on Amalgamated School

0 0 325

Asset Renewal on New Llanilltud Fawr

84 84 0

Repair Eagleswell funded through Asset Renewal

1,126 1,126 0

Repair Llantwit Comprehensive Asset Renewal

2,740 2,284 0

Replace Llanilltud Fawr Primary School

2,932 2,932 0

TOTAL COST OF WORKS

6,882 18,902 21,066

1.5.2. Overall affordability

1.5.2.1. The existing and potential additional funding sources for the project are set out in Table F below. 1.5.2.2. As shown in the SOC the Council has identified Option 3 as its “Current Scheme”. This scheme was included in the Council’s 21st Century Schools Programme Band A submission. The Council has match funding of £6,981,000 within its capital programme and has assumed WG grant funding

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of £5,495,000 (after allowing for additional grant awarded for Dewi Sant). The gross funding of £12,476,000 is profiled over 2015/16 to 2016/17. The repairs to Eagleswell and Llantwit Major Comprehensive would be funded from the Council’s Asset Renewal funding and the construction of a new Llanilltud Fawr Primary School would be subject to Welsh Government 21st Century Schools Band B funding due to commence in 2020. Inflation has been included in the cost of the Llanilltud Fawr building due to its inclusion in Band B. 1.5.2.3. The Council has aspirations to deliver a more ambitious scheme in the form of Option 5 (subject to more detailed assessment at OBC stage) an amalgamated 420 place English Medium Primary School from Eagleswell and Llanilltud Fawr built on the existing Llanilltud Fawr/Llantwit Major Comprehensive School site, and an “Enhanced” Llantwit Major Comprehensive School. This “Preferred Option” is potentially affordable but is subject to a number of financial risks associated with the funding sources. Firstly, this option requires £3,017,000 additional grant funding over and above the £5,495,000 grant funding approved in principle and there is a risk that this will not be awarded. Secondly, there is a risk the Council does not secure a sufficient capital receipt from the potential disposal of the Eagleswell site. Set out within this SOC is an outline assessment of the financial risks and the Council’s approach to minimising these financial risks. Table F: Funding of Capital Works Funding Source Status “Do Nothing

Status Quo” (Option 1)

£,000


£,000

“Preferred Option”

(Option 5)

£,000

Council inc. prudential borrowing

Approved 0 6,981 8,238

WG Grant (Phase 1 Band A)

Approved in Principle

0 5,495 5,495

Additional WG Grant

Assumption only

0 0 3,017

WG Grant (Phase 2 Band B)

Assumed 50%

contribution

1,466 1,466 0

Additional Council Match Funding and Capital Receipt

Approval through Capital

Programme

1,466 1,466 3,000

Additional Council funded Asset Renewal

Approval through Capital

Programme

3,950 3,494 1,316

TOTAL FUNDING

6,882 18,902 21,066

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Stakeholder Support 1.5.2.4. In terms of the status of stakeholder support for the project, the Council’s Cabinet at its meeting of 18th November 2013 (Cabinet Minute C2081) has given its support for the principle of the Llantwit Learning Community project, and presently in favour (if viable) of the ambitious Option 5 resolving: “THAT Cabinet agrees its ambition to create a Llantwit Learning Community delivering major investment in Llantwit Major Comprehensive School and a new 420 place primary school on the adjacent site created from the amalgamation of Eagleswell and Llanilltud Fawr primary schools.” 1.5.2.5. In terms of other key stakeholders, at the Council’s Cabinet meeting of 18th November 2013 (Cabinet Minute C2081) authorisation was granted for a consultation exercise to commence from 16th December 2013 for a period of eight weeks. The purpose of the consultation is to assess the level of support for the development of the proposed Llantwit Learning Community to include primary provision by creating the new 420 place English medium primary school alongside the Comprehensive school and Ysgol Gymraeg Dewi Sant (as mentioned the subject of a separate BJC). The outcome of consultation on the proposal to amalgamate Llanilltud Fawr and Eagleswell Primary Schools will be reported to Cabinet on 28th April with a recommendation to publish a statutory notice.

1.6. Management Case

1.6.1. Programme Management Arrangements

1.6.1.1. Section 6 of the SOC identifies the hierarchy of management established for the Council’s Schools Investment Programme and illustrates how this project fits within that hierarchy. The Council has a well-established dedicated Project Board (the SIP Project Board) which meets on a monthly basis and oversees the strategic progress of the SIP and its various projects, with update reports from the SIP Project Sponsor/Senior Responsible Officer (Paula Ham, Head of Strategy, Community Learning and Resources) and other key officers within a SIP Core Officer Project Team. 1.6.1.2. A Gateway 0 Strategic Assessment undertaken in February 2014 gave a delivery confidence assessment RAG of Green/ Amber. The review team concluded: “Our assessment reflects the high level of confidence of all those involved in the Programme – within the Programme Team, the Council and Schools. This confidence is supported by progress so far, the high level of stakeholder engagement and consultation, the cautious approach on funding and affordability, the collaborative relationship with present contractors and flexible and innovative procurement. Particular strengths are the commitment, expertise, responsiveness and engagement of the Programme Team. There

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is close working between staff in learning and skills, estates and the finance directorates working to a single vision and aim and a very open and constructive relationship between Officers and Council Members.” The full report of the Gateway Review team is attached as Appendix H 1.6.2. Project Management Arrangements 1.6.2.1. As outlined in this SOC robust project governance and management arrangements are in place to ensure the successful development of the scheme and production of the OBC. The Vale of Glamorgan Council places a great emphasis on ensuring projects are well managed and has established a comprehensive set of Corporate Project Management Guidelines that staff must adhere to when delivering capital projects of differing sizes 1.6.2.2. The Vale of Glamorgan Council has a good track record in delivering projects on time, to budget and maximising the benefit to the community. The team have successfully delivered Cowbridge Comprehensive School in 2010, are currently delivering the Penarth Learning Community which has gained Constructing Excellence Wales Exemplar (CEW) status, Considerate Contractors Scheme Gold Award and national runner up award. We are also delivering Ysgol Nant Talwg which is a case study project for Welsh Government and has recently been presented to the CLAW Design Group with CEW as a proposal for improving 21st century school design.

1.6.3. Gateway Reviews Arrangements

1.6.3.1. It is intended that a Gate 3 review will be undertaken prior to submission of the OBC and FBC in December 2014.

1.7. Recommendation 1.7.1. The Council concludes that this Strategic Outline Case (SOC) supports in principle the delivery of Llantwit Learning Community and that this ambitious project should be progressed to the Outline Business Case stage for more detailed analysis.

Signed: Date: 16th April 2014 Paula Ham Head of Strategy, Community Learning and Resources Senior Responsible Owner School Investment Programme Board Directorate of Learning and Skills The Vale of Glamorgan Council

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2.STRATEGIC CASE 2.1. Introduction 2.1.1. This Strategic Outline Case (SOC) is for Llantwit Learning Community project. 2.1.2. This SOC has been prepared using the agreed standards and format for business cases in accordance with the HM Treasury’s Green Book, which promotes the “Public Sector Business Cases using the Five Case Model”. The Five Case Model format, comprises the following key components:

the strategic case section: This sets out the strategic context and the case for change, together with the supporting investment objectives for the scheme;

the economic case section: This demonstrates that the organisation has selected a preferred way forward, which best meets the existing and future needs of the service and is likely to optimise value for money (VFM);

the commercial case section: This outlines what any potential deal might look like;

the financial case section: This highlights likely funding and affordability issues and the potential balance sheet treatment of the scheme; and

the management case section: This demonstrates that the scheme is achievable and can be delivered successfully in accordance with accepted best practice.

2.1.3. The purpose of this section is to address the strategic case for the Llantwit Learning Community project, to explain and revisit how the scope of the proposed project fits within the existing corporate and education strategies of the Council and aims to provide a compelling case for change, in terms of the existing and future operational needs of education provision at Llantwit Major.

Part A: The Strategic Context

2.2. Organisational Overview

2.2.1. This SOC is prepared by the Vale of Glamorgan Council in its role as Local Education Authority. The purpose of the SOC is to make the case for investment in the Llantwit Learning Community project, which the Council believes is vital to enable it to deliver its 21st Century Schools Programme. As will be set out in this SOC Llantwit Major Comprehensive School, Eagleswell and Llanilltud Fawr Primary Schools require major capital investment to

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improve their buildings and grounds. The Comprehensive School has received a formal warning letter from the Council in respect of its performance and Eagleswell Primary School is in need of ‘significant improvement’. This SOC puts forward a proposal to deliver high quality accommodation fit for the 21st Century for Llantwit Major Comprehensive School, Eagleswell and Llanilltud Fawr Primary Schools. The improved learning environment will support the improvement journey of these schools. 2.2.2.The Llantwit Learning Community formed part of the Council’s 21st Century Schools Strategic Outline Programme. Following a reduction in the grant intervention rate from 70% to 50% the programme was reduced in line with available Council funding. Members’ requirement at that time to submit a fully funded revised Band A programme resulted in the Llantwit Learning Community being pared down to a refurbishment of Llantwit Major Comprehensive School only. However, the Council remains committed to the Learning Community concept and is well progressed with its delivery of the Penarth Learning Community. It is keen to build on this model, recognising the operating efficiencies that are possible from shared facilities management as well as the impact an improved learning environment could have on the performance of the constituent schools. 2.2.3. The Council’s strategy of using pattern book design for new school buildings means that procurement costs for new builds are a fraction of the price of that achieved by other Councils. The Vale is on course to deliver the first pattern book design school in Wales by September 2014: Ysgol Gymraeg Nant Talwg. This will be followed by a second pattern book design primary school, Ysgol Gymraeg Dewi Sant which will open in September 2015 (refer to 2.2.4. below). This innovative approach coupled with Members’ commitment to reviewing funding sources for the Vale’s School Investment Programme has made it possible to develop a new proposal for the Llantwit Learning Community. This will not only provide a 420 place pattern book design primary school but will also see the delivery of the first comprehensive school building in Wales using this approach. This will be an exemplar scheme and has the potential to influence future procurement decisions at a national level and more importantly, could result in reduced costs across Wales. 2.2.4. It should be noted the Llantwit Learning Community will also include a 210 place Welsh Medium school achieved through expanding Ysgol Gymraeg Dewi Sant. This element of the Learning Community is being implemented as a separate scheme over 2014/15 and 2015/16 and was subject to a separate Business Justification Case. The grant award letter for Ysgol Dewi Sant was received on 3rd April 2014. This particular school, though forming a part of the Learning Community is therefore not considered in this SOC.

2.3. Business Strategies

2.3.1. The proposed Llantwit Learning Community is an ambitious concept for a large-scale capital building project aimed at delivering school buildings to

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meet 21st Century educational needs. The project has been conceived to meet the specific aims and objectives of current national and local educational policies outlined below. National Policy Context: The Welsh Government’s 21st Century Schools Programme 2.3.2. The Llantwit Learning Community project will be carefully devised to achieve a “Strategic Policy Fit” responding to the national aims of the Welsh Government’s 21st Century Schools Programme:

“…Learning Environments for children and young people in Wales aged from 3 to 19 that will enable the successful implementation of strategies for school improvement and better educational outcomes;

A sustainable education system through better use of resources to improve the efficiency and cost effectiveness of the education estate, and which enhances local public service provision; and

A 21st Century Schools Standard for all schools in Wales which reduces recurrent costs, energy consumption and carbon emissions...”

(Source: 21

st Century Schools Summary, March 2010

Welsh Assembly Government, WLGA, CLILC). Local Policy Context: 2.3.3. At a local level the policy context of the project is provided by the Vale of Glamorgan Council’s:

Corporate Plan (2013- 17);

Community Strategy (2011-21);

Learning and Skills Service Plan (2013-17);

Revised Strategic Outline Programme (SOP); and

Schools Investment Programme (SIP).

Corporate Plan (2013-17)

2.3.4. The Vale of Glamorgan Councils’ Corporate Plan (2013-17) attached as Appendix B identifies Learning and Skills as a Priority Outcome aimed to ensure “…Citizens of the Vale of Glamorgan have the skills, knowledge and abilities required to maximise their opportunities…” Under this outcome the Corporate Plan identifies as one of the objectives the authority seeking to:

“…implement the Schools Investment Programme including Penarth Learning Community, the phased remodelling of Llantwit Major Comprehensive School,

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the extension of Ysgol Dewi Sant and Ysgol Nant Talwg and schemes in relation to the Barry cluster of schools.” (LS1)

Community Strategy (2011-21);

2.3.5. The Vale of Glamorgan Council has a duty under the Local Government Act 2000 to prepare a Community Strategy to promote the economic, social and environmental wellbeing of the area and contribute to the achievement of sustainable development. The authority’s Community Strategy (2011-21) attached as Appendix C identifies ten Priority Outcomes. Priority Outcome Six is “Learning and Skills”, which states:

“…People of all ages are able to access co-ordinated learning opportunities and have the necessary skills to reach their full potential, helping to remove barriers to employment.”

2.3.6. The Community Strategy makes clear that the Council is committed to the Welsh Government’s transformational change agenda and states that the authority and relevant partners will aim to “…ensure 21st Century schools and college capital investment developments contribute to transformational change…”

Learning and Skills Service Plan (2013-17). 2.3.7. The Council’s Learning and Skills Service Plan (refer to Appendix D) is key component of its planning framework. It supports the delivery of the Corporate Plan (2013-17) and ultimately the overarching Community Strategy (2011-21) and the delivery of the day to day business activities of the Council. The Learning and Skills Service Plan provides a four year overview of the Directorate’s work and sets out how it contributes towards achieving the key outcomes and objectives as identified in the Corporate Plan. It outlines what the Directorate is trying to achieve, how we will monitor progress and what success will look like. 2.3.8. The Service Plan for Learning and Skills is informed by and reflects:

Welsh Government’s National priorities for school improvement: reducing the achievement gap due to poverty, improving standards in literacy and numeracy and ensuring that the department effectively promotes pupils’ wellbeing;

The performance profile of schools and the results of school inspection reports;

Our own self-evaluation processes, our previous year’s work as a Directorate, emerging findings for development and our Directorate Self-evaluation Report which inform and underpin the work of the Directorate;

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Our contribution to national ambition as set out in the Welsh Government’s implementation plan ‘Improving Schools’ launched in October 2012; and

Our vision for Education 2015. Revised Strategic Outline Programme (SOP) 2.3.9. The Welsh Government launched the 21st Schools Programme in March 2010 at which time projects would receive up to 70% grant funding across four three-year bands starting in April 2012. However, due to reduced levels of capital funding, in July 2011 it was announced that Local Authorities would be required to fund 50% of the capital costs. In addition the start date of the programme was deferred to April 2014 and the first band of funding extended to six years. In light of the reduced funding along with other authorities across Wales the Council submitted a revised Strategic Outline Programme (SOP) in November 2011 attached as Appendix E. The Welsh Government confirmed in December 2011 that the full programme submitted by the Council had been approved in principle subject to final approval of business cases to be submitted for each project in due course. The Council’s revised 21st Century Schools SOP includes four projects:

I. Completion of Ysgol Nant Talwg to meet increased parental demand for welsh Medium primary education in Barry;

II. Completion of Ysgol Gymraeg Dewi Sant to meet increased parental

demand for welsh Medium primary education in Llantwit Major; III. Remodelling of Llantwit Major Comprehensive School to resolve

existing car parking and bus drop off problems, remodelling or replacement of existing buildings to meet 21st Century Schools standards including upgrading of heating, ventilation and electrical systems to meet current needs, improvements to energy efficiency to reduce CO2 emissions arising from the use of the buildings, enhanced sporting facilities and site wide adaptations to improve disabled access; and

IV. Remodel two primary schools in the Barry cluster and reorganise

schools to reduce surplus capacity and increase welsh medium provision to meet continued increasing parental demand.

School Investment Programme (SIP) 2.3.10. To consolidate the recent history of Welsh Government and Vale of Glamorgan Council funding in schools and the planned capital investment for large scale new build / remodelling projects in to a single document the School Investment Programme (SIP) attached as Appendix F has been prepared by the Council. The document highlights the major projects already completed within the programme and the evolving funding streams available to the Vale of Glamorgan Council to undertake major capital projects such as

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the Llantwit Learning Community, culminating in the proposed 21st Century schools programme, due to start in 2014 with the Band A schemes listed above.

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Part B: The Case For Change

2.4. Investment Objectives

2.4.1. The Business Investment Objectives of the project are set in Table 1: Table 1: Business Investment Objectives

Business Investment Objective

Description

Objective 1: Strategic Fit

To ensure the project is devised to comply with the national and local policy context for education as per the Welsh Government’s 21st Century Schools Programme, the Vale’s Corporate Plan, Community Strategy, Learning and Skills Service Delivery Plan, SOP and SIP.

Objective 2: Educational

To deliver a project that will cater for the educational needs and preferences of the local community and provide school accommodation and resources fit for the 21st Century. This will enable the maximisation of the use of ICT in learning and will provide a learning environment which will support the achievement of improved educational outcomes.

Objective 3: Financial

In terms of capital the aim is to deliver within the available budget school accommodation fit for the 21st Century;

and

In terms of revenue the aim is to deliver new school accommodation that will:

(a) be energy efficient, and (b) provides for an efficient use of teaching resources.

Objective 4: Sustainability

To deliver new school accommodation that minimizes the impact on the environment by designing the new build elements to achieve BREEAM Excellent and for remodelled buildings to incorporate energy saving measures.

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To deliver sustainable benefits to those living in the area, particularly those out of work.

2.5. Demand for School Places

2.5.1. This section describes the current and projected demand for school places in the Llantwit area.

Llantwit Major Cluster 2.5.2. The Llantwit Major cluster of schools comprises Llantwit Major Comprehensive School, Eagleswell Primary School, Llanilltud Fawr Primary School, Ysgol Gymraeg Dewi Sant, St Illtyd Primary School, St Athan Primary School and Wick Church in Wales Primary School. 2.5.3. The cluster has been associated with high levels of surplus capacity for many years. As of January 2013 four English medium primary schools had in excess of 10% surplus capacity with the average across the sector standing at 15.53%. This is forecast to increase to 15.69% by 2018 if housing development sites allocated in the Deposit Local Development Plan are excluded. As at January 2013 St Athan Primary had in excess of 25% surplus capacity (34.87%) which is forecast to decrease to 28.57% by 2017, conversely the surplus capacity at Eagleswell is forecast to increase from 19.52% to 22.86% over the same period. 2.5.4. The Deposit Local Development Plan includes 290 dwellings in Llantwit Major and a further 1,210 at St Athan. 215 of the dwellings are allocated in phase one of the LDP (2011 – 2016), 640 in phase 2 (2016 – 2021) and 645 in phase 3 (2021 – 2026). Projections of the number of pupils which could emanate from new housing development demonstrate that the Council will need to retain its current capacity in the primary sector in the Llantwit Major and St Athan areas. In addition to housing development, the MOD has notified the Council of its plans to move the 14 Signals Regiment to MOD St Athan in 2018. Communication from the MOD states: “I can confirm that MOD are presently conducting an Assessment Study which will determine the footprint and outline costings for the proposed development and this is due to report in early May, so that a business case can be put forward for final Project Budget approval. It is anticipated that the MOD will be applying for planning consent next year in parallel with the appointment of building contractors, such that the development is likely to commence in 2016, with completion and move in scheduled for some time in 2018. The new Unit will consist of around 562 military personnel of all ranks and some of them will have accompanying family, with children of both Junior and Senior School age.” Primary aged children from the MOD South Base at St Athan are in the catchment area for St Illtyds Primary School in Llantwit Major. A number of

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children residing at the MOD base and in St Athan also attend Eagleswell and Llanilltud Fawr Primary Schools in Llantwit Major. 2.5.5. The Council operates a linked feeder school system for Llantwit Major Comprehensive School. The admission numbers (places available) at the linked feeder primary schools totals 196 which is in line with the Comprehensive school’s admission (intake) number of 210. Rhws primary is a dual feeder for Llantwit Major and Barry secondary schools. Pupil projections assume that 40% of children leaving Rhws Primary will apply for Llantwit Major Comprehensive, 34% will apply for Barry Comprehensive and Bryn Hafren and 26% for other schools. 2.5.6. Within the Llantwit Major Comprehensive catchment area the Draft Deposit Local Development Plan (2011-26) includes the allocation of residential sites in Llantwit Major, St Athan and Wick totalling 1600 homes along with a further 737 in Rhoose, which is a dual feeder for both Llantwit Major and Barry Comprehensive schools. Applying the pupil yield formula to these developments it is expected to yield 579 secondary aged children of which 425 children are anticipated to choose English Medium education. At present these housing developments are not included within the pupil projections as the potential start date for the development is not known. 2.5.7. The surplus capacity in Llantwit Major Comprehensive School as at PLASC 2014 was 25.6%. There were 896 pupils on roll compared to a capacity of 1,205. The capacity of the new and remodelled school will be 1,050 which, on the basis of current pupil numbers, would result in a reduction in surplus capacity of 14.7%. As with other secondary schools in the Vale, projections indicate further reductions in pupil numbers up to around 2016. Pupil projections for Llantwit Comprehensive School show numbers increasing in 2017 and they will remain reasonably constant thereon. Surplus capacity at September 2017 onwards would be around 15% without planned housing developments. This figure would potentially reduce further to around 5% when approved housing/MOD developments are factored in. 2.5.8. This SOC focuses on Llantwit Major Comprehensive School, Eagleswell Primary school and Llanilltud Fawr Primary School. The current status quo for these schools is as follows:

2.6. Business Needs

2.6.1. Educational Performance


2.6.1.1. The Estyn Inspection 2009 judged educational performance at Llantwit Major Comprehensive School to be good overall. Estyn recommended that the school ‘continue to work with the UA (unitary authority) to improve the quality of accommodation’.

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2.6.1.2. Although GCSE performance in science is strong, performance in maths has flat-lined and in English has declined since the inspection. The proportion of students gaining five good (A* - C) grades at GCSE including maths and English has declined and is lower than similar schools elsewhere in Wales. The school has been in band 4 in all 3 years. 2.6.1.3. The local authority and Central South Consortium are working closely with the school to raise standards through the provision of targeted support and challenge. In autumn 2013 the council issued a formal warning letter to the school to improve the standards of pupil attainment. If the targets are not met the Council will intervene at the school. The Governing Body and Headteacher are responding with energy and determination to these challenges and there are early indications of improvement. 2.6.1.4. Building on the work to secure a rapid increase in pupil attainment the development of the Llantwit Learning Community (LLC) provides an opportunity to further secure improved performance and to build and deliver high aspirations for later years. It is proposed to develop ‘stretch’ targets for the school as part of the LLC programme. Eagleswell Primary School 2.6.1.5. Eagleswell Primary School was inspected in February 2014 and was judged to require significant improvement. The school is currently developing a post inspection action plan (PIAP) to address the recommendations in the inspectors report: R1 Improve standards of extended writing in English and across the

curriculum

R2 Improve standards in Welsh in key stage 2

R3 Ensure that the key stage 2 curriculum meets statutory requirements

R4 Use the existing good practice in the school to improve the quality of teaching

R5 Ensure that senior leaders address underperformance robustly

R6 Distribute leadership roles and responsibilities effectively and hold leaders to account

2.6.1.6. The authority will also prepare a statement to support the improvement at the school which will include statutory interventions to ensure timely and significant improvement. Close working with Llanilltud Fawr ahead of amalgamation as well as active engagement in the South Wales Challenge lead by the Central South Consortium will also be important drivers of improvement. The development of the Llantwit Learning Community is seen as a vital strategy for continuing to raise standards, improve provision and strengthen leadership and governance. It is proposed to develop ‘stretch’ targets for the school as part of the LLC programme.

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Llanilltud Fawr Primary School 2.6.1.7 Llanilltud Fawr Primary School has good overall performance and is categorised in category A by the Council/Central South Consortium. Standards in the Core Subject Indicator (English, maths and Science) are consistently in the top two quarters when compared to other schools over the last four years. The school currently has an acting Headteacher and the development of the Llantwit Learning Community will provide an opportunity to attract a candidate of the highest quality to lead the new school, to enable the strengths of the school to inform the development of the amalgamated primary school and to develop ‘stretch targets to build on the school’s achievements to date. 2.6.2. Buildings


2.6.2.1. The school is in need of enhancement. It consists of nine separate buildings ranging in age from the mid 1960’s to the early 2000’s when three double demountable classrooms were added to the school. The main block dates from 1993 and was constructed following fire damage to the previous building. Declining pupil numbers have enabled the Authority to remove five demountable classroom buildings along with the demolition of the pupil support centre in the last three years. This provision has been re-located to another building at the school. The school occupies a large site in excess of the current area recommendations. With the exception of the main block all buildings on the site are in a poor condition and require major investment to be brought up to current standards. The cladding and flat roofs are reaching the end of their effective life and heating and electrical systems require renewal in the near future. Eagleswell Primary School 2.6.2.2. As with the comprehensive school, Eagleswell Primary School requires investment in its premises. It was built in the early 1970’s and comprised separate infant and junior schools which were amalgamated in 2000 and physically linked via a covered corridor. The buildings are generally in a poor condition with numerous flat roof leaks, upgrading works required to the heating, poor quality toilets and a double demountable classroom which is nearing the end of its effective life. 2.6.2.3. The school is located on a large site measuring approximately six acres in the centre of a housing estate to the north of Llantwit Major, though the school buildings are located in the centre of the site which limits the use of the land available. The school experiences a high number of surplus places which was partly addressed in the short term by the relocation of classes from a double demountable classroom into the main school building but the school will continue to see an increase in surplus capacity to 2018.

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Llanilltud Fawr Primary School

2.6.2.4. The school’s main building was built in the early 1950’s by the Bristol Aircraft Company diversifying after World War II and is aluminium framed and clad. Following structural failure of the roof in other examples of this type of structure, regular structural inspections are carried out to provide early warning of deterioration of the building. The school also consists of a separate nursery and reception class block along with two demountables. The single classroom demountable was installed in approximately 2000 and is in good condition, the other demountable provides three interlinked classrooms and is in poor condition despite repairs carried out by the school. As the structural aluminium frame has gone past its construction life span, investment in the fabric on areas such as re-roofing and a new boiler are uneconomic and unsustainable.

2.6.3. Pupil Data


2.6.3.1. Llantwit Major Comprehensive School had 965 pupils on roll in January 2013. Pupil Level Annual School Census 2013 attendance data for Llantwit Major Comprehensive School reveals the following:

1,037 secondary school age pupils living within the Llantwit Major schools cluster and a further 483 living within the Rhoose area. Rhoose is a dual feeder for both Llantwit and the Barry comprehensive schools;

Of the 965 pupils on roll at Llantwit Major Comprehensive School, 935 (97%) reside within the school’s catchment area (755 from the Llantwit and surrounding area and 180 from Rhoose). 30 pupils (3%) attend the school from outside the school’s catchment area of which 11 are from Barry, one from Cowbridge, one from Penarth and 17 live outside of the Vale of Glamorgan area;

of the 1,520 pupils living within the Llantwit Major catchment area 935 children (62%) attend Llantwit Major Comprehensive school. 240 children (16%) attend Cowbridge, 71 (5%) opt for Welsh medium provision at Ysgol Gyfun Bro Morgannwg and 69 (5%) opt for denominational education;

2.6.3.2. As stated in paragraph 2.5.7. above, the surplus capacity in Llantwit Major Comprehensive School as at PLASC 2014 was 25.6%. The Llantwit Learning Community Scheme will reduce the capacity of the school from 1,205 to 1,050, a reduction of 155 places which, on the basis of current pupil numbers, would result in a reduction in surplus capacity to 14.7%. Surplus capacity at September 2017 onwards would be around 15% without planned housing developments. This figure would potentially reduce further to around 5% when approved housing/MOD developments are factored in.

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Eagleswell Primary School 2.6.3.3. Eagleswell Primary school currently has 169 pupils on roll and is a linked feeder school for Llantwit Major Comprehensive. Pupil Level Annual School Census 2013 attendance data for Eagleswell reveals that:

169 children on roll of which 89 (53%) are resident within the school's designated catchment area;

80 children (47%) attending the school live outside of the school catchment area of which 3 children (2%) attend who live outside the Vale of Glamorgan area;

Of the 80 out of catchment area children 35 (21%) attend from the St Illtyd Catchment, 26 (15%) from the St Athan catchment and 8 (5%) from Llanilltud Fawr catchment;

In total 268 school age children live within the schools designated catchment area out of which 89 (33%) attend Eagleswell with the other 179 (67%) attending other Vale schools. There are sufficient children in the schools catchment area to meet the pupil capacity of 210 places;

Over the last three years an average 36 children have been born in the school's catchment area each year compared to an admission number of 30 at the reception intake.

Llanilltud Fawr Primary 2.6.3.4. Llanilltud Fawr Primary School is a linked feeder school for Llantwit Major Comprehensive. As at the Pupil Level Annual School Census (PLASC) 2013, there were 198 children on roll. The PLASC 2013 attendance data for Llanilltud Fawr reveals the following:

198 children on roll of which 85 (43%) are resident within the schools designated catchment area;

113 children (57%) attend the school who live outside of the school catchment area of which 1 child (1%) attends who lives outside the Vale of Glamorgan area;

Of the 113 out of catchment area children 15 (8%) attend from St Athan catchment, 48 (24%) from St Illtyd catchment and 45 (23%) from Eagleswell catchment;

In total 171 school age children live within the schools designated catchment area out of which 85 (50%) attend Llanilltud Fawr with the other 86 (50%) attending other Vale schools. The catchment area of the school does not generate sufficient children to meet the 210 place capacity of the school; and

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Over the last three years, on average, 21 children have been born in the school catchment area each year compared to an admission number of 30 at the reception intake.

2.6.3.5. Whilst there is a considerable amount of movement across catchment areas in Llantwit Major and the surrounding area the number of children residing in the catchment area for the two schools (439) and the average number of children born in these catchment areas in each of the last three years (57) supports the establishment of a 420 place school with an admission number of 60.

2.6.3.6. As stated above, Llantwit Major Comprehensive, Eagleswell Primary and Llanilltud Fawr Primary school buildings are all in a poor condition with a limited useful life expectancy remaining from the existing buildings. For any school, its site (i.e. the buildings and grounds) provide the infrastructure which support learning and development. There is clear evidence that the physical elements in the environment of a school can be shown to have discernible effects on teachers and learners. An inadequate learning environment can have detrimental effects on concentration, mood well-being, attendance and, ultimately attainment.

2.6.3.7. The Llantwit Learning Community project aims to address the need to raise standards, enhance the buildings and grounds at Llantwit Major Comprehensive School, Llanilltud Fawr and Eagleswell Primary Schools to bring them up to 21st Century school standards and to reduce surplus capacity at the comprehensive school.

2.7. Potential Business Scope and Key Service Requirements

2.7.1. To conclude as outlined above there is clearly a business need to improve the buildings and grounds of these schools, and this will be addressed by the Llantwit Learning Community project by delivering accommodation fit for the 21st Century for Llantwit Major Comprehensive School and for the two primary schools. By doing so, the Vale of Glamorgan Council will create a high quality learning environment for the staff, pupils and parents that will maximise the opportunity to achieve improved educational outcomes.

2.8. Main Benefits Criteria

2.8.1. The “Preferred Option” must satisfy existing and future needs of learners, employers, staff and the community. The Council also considers that the development of the Llantwit Learning Community will provide real economic benefits for the local community and the wider Vale. It is critical that the scheme delivers sustainable benefits to those living in the area, particularly those currently out of work. With a strategy of targeted recruitment and training, the Vale of Glamorgan Council is committed to creating

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opportunities for local residents and long-term workless people to move into sustainable jobs.

2.8.2. This section describes the main outcomes and benefits associated with the implementation of the project in relation to business needs as identified in Table 2:

Table 2: Investment Objectives and Benefits Criteria

Investment objectives Main benefits criteria


Strategic Fit

Delivery of a project that complies with:

the national policy context for education as per the Welsh Government’s 21st Century Schools Programme;

the local policy context as per the Vale’s Corporate Plan, Community Strategy, Learning and Skills Service Delivery Plan, Education 2015, SOP and SIP.


Educational


cater for the educational needs and preferences of the local community;

provide school accommodation fit for the 21st Century, thereby maximizing the opportunity to achieve improved educational outcomes;

reduce surplus capacity resulting in education resources being used more effectively;

provide new facilities for use not only by the schools comprising the LLC but also by other schools in the area and the community.

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Financial


in terms of capital to deliver within the available budget school accommodation fit for the 21st Century;

in terms of revenue the aim is to deliver new school accommodation that will be (a) energy efficient, and (b) provides for an efficient use of education resources;

generate revenue efficiencies through shared facilities management made possible by co-location of the schools;

maximisation of use of assets by making them available to other schools outside of the LLC and local community.


Sustainability


minimize the impact on the environment by designing the new build elements to achieve BREEAM Excellent;

for remodelled buildings incorporate energy saving measures;

achieve EPC A rating;

for every £1M in contract value provided, the contractor will provide a minimum of 80 person weeks of employment for a ‘new entrant’ from a source to be agreed with the Council;

provide new opportunities for new entrants, trainees and those leaving education, including those who are NEET;

use and promote local procurement and work with local suppliers to develop their capacity;

provide an opportunity to work with local education providers and training bodies on targeted recruitment and training (including but not limited to Cardiff and the Vale College and local schools).

Definitions:

New Entrant: a person who is leaving an educational establishment or a training provider or a non-employed person, school or college leaver or an adult who has not been employed within the construction industry.

Person Week: a person employed for five days on the site.

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2.9. Main Risks

2.9.1. The main risks associated with the project are shown in Table 3, together with measures to minimise or mitigate each risk.

Table 3: Risks and Counter Measures

a) Financial Risks

Risk Item

Likelihood Consequence/ Impact

Mitigation/ Minimisation

1. Insufficient Capital Funding

Low

Project cannot commence or would have to be reduced in scope.

Ensure robustly costed scheme and quality Business Case submission to Welsh Govt. Ensure the Eagleswell site is rigorously marketed as a development opportunity.

2. Insufficient Revenue to operate the new school accommodation

Low

School would not be operationally affordable.

As part of the design process complete lifecycle costings to ensure school is designed to be operationally affordable. Ensure the school is designed to minimize running costs.

b) Educational Risks

Risk Item



3. Disruption to the delivery of the educational service for the pupils during the development.

Low

Undermines the educational outcomes of the schools during the construction period.

Ensure the project is project managed and implemented with the aim of minimizing disruption to the learning activities of the schools.

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4. End user needs not met. The completed scheme fails to deliver a high quality learning environment that improves educational outcomes

Low

Undermines the educational outcomes of the schools following completion of the project.

Ensure the Head, Governing Body, staff and pupils are consulted at an early stage to ensure the school is designed to meet their end user needs.

5. Failure to effectively amalgamate Eagleswell and Llanilltud Fawr Primary schools into a single 420 place school

Low Undermines the educational outcomes of the schools following completion of the project.

Ensure that the Head, Governing Body and staff are fully informed of the proposal and appreciate the improvements that this can achieve.

c) Design/Initiation Risks

Risk Item



6. Planning Permission Refused

Low

Project delay/failure

Ensure early pre planning discussions with Development Control

7. Outline planning for the Eagleswell site is declined

Low Project delay/failure

Consultation and early discussion with planning and members

8. Design and Preparation of Pre Contract Tender docs not completed on time

Low

Project delay and ultimately the school/classrooms are not opened in time.

Develop a robust Programme

d) Build Risks

Risk Item



9. Threat to health and safety of pupils and staff and general public during works

Low

Injury and Fatality

Works area to be secured with high fencing, gates, health and safety

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signage. Contractor to carry out Risk Assessment and Health and Safety planning.

10. Noise, dust and disturbance affecting delivery of education at the schools

Low

Undermines ability of staff and pupils to work

If possible works to be focused on maximising as much progress as possible during school holidays. Contractor to prepare and implement methodology that will minimise noise, dust and disturbance.

11. Poor weather

Low

Time delays and increased costs

Contractor’s programme to accommodate risk of poor weather.

12. Ground Conditions/ Contamination

Low

Increased costs and potential delays

Ensure a contingency sum is in the budget and allowance within the Programme

e) Operational Risks

Risk Item



13. Maintenance problems encountered

Low

Increased maintenance and asset renewal costs

Construction Contract to include a 12 months defects liability period.

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2.10. Constraints

2.10.1. As with all large scale capital build projects, Llantwit Learning Community will have to be delivered within a number of constraints as outlined in Table 4:

Table 4: Project Constraints

Constraint Description Cost

All large-scale capital building projects are faced with financial constraints and the project will have to be carefully managed from inception to completion to ensure it is delivered within budget.

Time

Time is also a generic constraint facing large-scale building projects due to the need to achieve physical and financial completion within grant deadlines of the Welsh Government’s 21st Century Schools Programme.

Quality

Quality is also a constraint for the project with the need to deliver a high quality educational accommodation fit for the 21st Century that accords with Welsh Government grant requirements e.g. BREEAM Excellent for new build elements etc. The quality of the scheme is also determined by the Planning system etc.

Ensuring Continued Operation of the Existing Schools

A key constraint is the need to ensure the continued operation of the existing schools whilst facilitating the physical construction of the new school accommodation.

Site Constraints

As with all sites the design and physical delivery of the build project will be constrained by the character of the site, its size, location and topography.

Planning and Building Regulations

As with all developments the project will have to be devised to be designed and delivered carefully within the parameters set by the planning system and building regulations.

Legal

Finally, a key constraint is the legal framework that the project will need to be delivered. For example, as a school project involving the amalgamation of two

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primary schools the project will need to accord with the Schools Standards and Organisation (Wales) Act 2013 and the School Organisation Code, Statutory Code Document 006/201. The development will also need to take into account any legal constraints within the title for the land, and legal regulations associated with the construction process etc.

2.11. Dependencies

2.11.1. The project is subject to the following dependencies (i.e. the external influences on the project that need to be in place to make a success of the investment) that will be carefully monitored and managed throughout the lifespan of the scheme.

At a national level continued political support for the 21st Century Schools programme/Welsh Government Funding;

At a local level continued political support from the elected members for the Council’s Schools Investment Programme;

Support of key stakeholders e.g. the Head, staff, governors, pupils and parents;

Statutory Approval in accordance with the requirements of The Schools Standards and Organisation (Wales) Act 2013 and the School Organisation Code Document No. 006/201;

Wider community support for the project within Llantwit ; and

Developers willing to purchase Eagleswell for a price that raises sufficient funds.

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3. THE ECONOMIC CASE

3.1. Introduction

3.1.1. In accordance with the Capital Investment Manual and requirements of HM Treasury’s Green Book (A Guide to Investment Appraisal in the Public Sector), this section of the SOC documents the wide range of options that have been considered in response to the potential scope identified within the strategic case.

3.2. Critical Success Factors (CSFs)

3.2.1. The key CSFs for the Llantwit Major Community project are set out in Table 5:

Table 5: Critical Success Factors

CSF1:

Business Needs: The Preferred Option must satisfy the existing and future educational needs of learners and staff and the needs of the wider community;

CSF2:

Strategic Fit: The Preferred Option must fit within the national and local policy context for education as set out in this SOC;

CSF3:

Benefits Optimisation: The Preferred Option must provide the best solution to ensure that future demand and provision of learning services can be met at the required standard of performance;

CSF4: Achievability: The Preferred Option must deliver the best means of delivering the degree of transformation envisaged whilst being acceptable to learners, employers, staff and the community

CSF5:

Affordability: The Preferred Option must be affordable in terms of capital investment and life cycle revenue cost.

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3.3. The Long-Listed Options

3.3.1. The following Long List of Options for the project, identified in Table 6 have been considered: Table 6: Long List of Options

Option 1: “Do Nothing in Band A/Status Quo” including repairs to Eagleswell and Llantwit Major Comprehensive funded from Asset Renewal and building a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020);

Option 2: Deliver a “remodelled” Llantwit Major Comprehensive School (using Band A funding) and an amalgamated new 420 place primary school on the Eagleswell site for Eagleswell and Llanilltud Fawr (funded from the disposal of the Llanilltud Fawr site);


Option 4: Deliver an “enhanced” Llantwit Major Comprehensive School (using Band A funding), repair Eagleswell (using Asset Renewal funding) and build a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020 at the earliest);


Option 6: Deliver an “enhanced” Llantwit Major Comprehensive School only (using Band A funding) including repairs to Eagleswell to be funded from Asset Renewal and building a new Llanilltud Fawr on its existing site.

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Note: When reading the above Long List please note: An “Enhanced” Llantwit Major Comprehensive School (estimated to cost circa 15,000,000) is a scheme that allows for the refurbishment of the main school building to a high standard and replacement of all the remaining buildings with one new building using pattern book design as has been used by the Council for Ysgol Nant Talwg in Barry. A “Remodelled” Llantwit Major Comprehensive School is a scheme (estimated to cost £12,476,000) that allows for the refurbishment of the existing buildings to a good standard along with the removal of buildings which are in the poorest condition. It will not address the issue of there being a number of separate buildings across the site, which present a challenge to effective asset and facilities management.

3.4. Scoping Options

3.4.1. Option Appraisal

Option 1: Do Nothing in Band A/Status Quo

Description:

This option would involve retaining the status quo whereby Llantwit Major Comprehensive School and Eagleswell remain unchanged i.e. by not implementing a major capital build project to enhance the schools. Eagleswell and Llanilltud Fawr remain separate primary schools, Eagleswell and Llantwit Major Comprehensive would be maintained using the Council’s Asset Renewal funding. It is thought under this scenario that Llanilltud Fawr could fail within five years (it has been assumed in 2017/18 for the purposes of this analysis) therefore demountables will need to be utilised as an interim solution and the building replaced under Band B 21st Century Schools Funding, whilst it is appreciated that this is not necessarily a “Do Nothing” option, due to the high risk of building failure, and the high cost of demountable hire it is felt that there is not a “Do Nothing” option therefore a “Do Minimum” option has been considered for the purposes of this analysis.

Advantages:

The main advantages are:

this option would result in the short term in a lower capital cost;

there would be less disturbance to staff, pupils and wider community as a result of not implementing the major build project;

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part of the Council’s capital monies earmarked for the major build project would be freed to be spent elsewhere on the Council’s education estate.

Disadvantages:

The main disadvantages are that:

with the exception of a new Llaniltud Fawr (Band B) achieving improved educational outcomes would be more challenging due to the remaining suitability and condition issues of the school buildings at Eagleswell and the Comprehensive;

Eagleswell and Llantwit Major Comprehensive school buildings that are in a poor condition would remain so and would fail to receive the major investment required for them to be brought up to current standards although repairs would be made using available Asset Renewal funding;

Llanilltud Fawr Primary School’s aluminium framed and clad main building that was built in the early 1950s would remain at risk of structural failure of the roof; due to the nature of its construction further investment is not possible and could lead to school closure. There remains the risk of failure prior to the Band B funding becoming available and in this situation the Council would use demountables on a short term basis;

if the school building at Llanilltud Fawr does fail this would potentially have a significant impact on the educational outcomes for the pupils at the school and the short term use of demountables is unlikely to fully meet current curriculum requirements;

Conclusion:

Doing nothing (i.e. the status quo) is possible because this is the current situation or status quo. However, in the medium to long term it would not satisfy the business needs of the Council and the schools. It would mean (with the exception of a new Llaniltud Fawr in Band B) that achieving improved educational outcomes would be more challenging due to the remaining suitability issues of the other existing school buildings at Eagleswell and the Comprehensive. Other achievable options are available to deliver improved and more suitable accommodation.

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Option 2:

Description

This option proposes the delivery of a “remodelled” Llantwit Major Comprehensive School (using Band A funding) and an amalgamated new 420 place primary school on the Eagleswell site for Eagleswell and Llanilltud Fawr (funded from the disposal of the Llanilltud Fawr site). Advantages

The main advantages are that:

this option would achieve the refurbishment of the existing comprehensive school buildings to a good standard along with the removal of buildings which are in the poorest condition utilising available funds from Band A;

an amalgamated new 420 place Primary School would be built for Eagleswell and Llanilltud Fawr. Amalgamating the two primary schools would achieve revenue savings in the region of £210,000 per annum due to efficiencies resulting from economies of scale;

a capital receipt would be generated from the disposal of the Llanilltud Fawr site.

Disadvantages


this option is not considered viable because the estimated capital receipt from the disposal of the Llanilltud Fawr site is substantially lower than the estimated receipt from the disposal of Eagleswell site, resulting in an increased shortfall in funding to deliver the new 420 place school;

it would not address the issue of there being a number of separate buildings across the Comprehensive school site, which present a challenge to effective asset and facilities management;

in addition, wider efficiencies which could be achieved through the Llantwit Learning Community as a result of the comprehensive school and primary school(s) sharing one site and associated coordinated facilities management would not be realised.

Conclusion:

This option is not affordable because the estimated capital receipt from the disposal of the Llanilltud Fawr site is significantly lower than the estimated receipt from disposal of the Eagleswell site thereby increasing the amount of additional grant required from Welsh Government.

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Option 3:

Description:

This option (the “Current Scheme”) proposes the delivery of a “remodelled” Llantwit Major Comprehensive School (using Band A funding), repair Eagleswell (using Asset Renewal funding) and build a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020 at the earliest). As with Option 1 there will be the risk of Building Failure at Llanilltud Fawr prior to 2020 and it is has been assumed for this analysis this could occur in 2017/18 therefore the cost of demountable hire over the period has been included in the analysis.

Advantages:


the existing buildings at the comprehensive school would be refurbished to a good standard and the removal of the buildings which are in the poorest condition utilising available funds from Band A;

Eagleswell could be improved by way of repairs using available Asset Renewal funds;

Llanilltud Fawr would be accommodated in a new BREEAM Excellent school building on its site using Band B funding which is due to commence in 2020.

Disadvantages:


there would be no capital receipt available under this scheme as it would not result in the disposal of Council owned land;

there is a risk with this option that the Llanilltud Fawr building may structurally fail before the Band B funding becomes available in 2020;

there is the risk of disturbance to staff and pupils if there is failure of the building at Llanilltud Fawr, within this option it has been considered that if this happens that the Council would use demountables on a short term basis and seek 21st Century schools funding under Band B to build a new school;

if the school building at Llanilltud Fawr does fail this would potentially have a significant impact on the educational outcomes for the pupils at the school;

whilst existing buildings at the Comprehensive School would be refurbished it would not address the issue of there being a number of separate buildings across the site which present a challenge to effective asset and facilities management. Although this option

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addresses the condition of the buildings it will not fully address suitability issues. There is also a risk that unforeseen costs could arise during refurbishment.

Asset renewal works would be required at Llantwit Comprehensive on the buildings that do not benefit from the scope of the “remodelled” Llantwit Comprehensive Scheme.

this option does not result in amalgamating the two primary schools and therefore misses the opportunity to generate revenue savings associated with amalgamation;

an opportunity would be missed to support the delivery of improved standards at Eagleswell school through the provision of a 21st Century learning environment;

in addition, wider efficiencies which could be achieved through the Llantwit Learning Community as a result of the comprehensive school and primary school(s) sharing one site and associated coordinated facilities management would not be realised;

The work to the schools would not be let as one contract resulting in increased costs.

Conclusion:

This option is possible as funding is available to deliver a remodelled Comprehensive School and to facilitate repairs to Eagleswell, and if Band B funding becomes available a new Llanilltud Fawr school building could be provided. However, its main disadvantage is that there would be no capital receipt available under this scheme e.g. from the Eagleswell site, and there would also remain the risk with this option that the Llanilltud Fawr building may fail before Band B funding becomes available in 2020.

Option 4:

Description:

This option proposes the delivery of an “enhanced” Llantwit Major Comprehensive School (using Band A funding), repair Eagleswell (using Asset Renewal funding) and build a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020); Advantages: The main advantages are that:

it would allow for the refurbishment of the main comprehensive school building to a high standard and replacement of all the remaining buildings with one new building using pattern book design as has been used by the Council for Ysgol Nant Talwg in Barry;

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Eagleswell would be improved by way of repairs using available Asset Renewal funds;

Llanilltud Fawr would be accommodated in a new BREEAM Excellent school building.

Disadvantages:


this option would not be affordable because there is insufficient Band A funding to deliver an “enhanced” Comprehensive school and there is no capital receipt available under this scheme as it would not result in the disposal of the Eagleswell land;



this option does not result in amalgamating the two primary schools and therefore misses the opportunity achieve revenue savings associated with amalgamation;

by retaining the existing distribution of schools the wider efficiencies which could be achieved through the Llantwit Learning Community as a result of the Comprehensive school and primary school(s) sharing one site and associated coordinated facilities management would not be realised.

potential revenue savings for the schools through the shared use of support services will not be realised.

Conclusion:

This option is not affordable because there would be no capital receipt available under this scheme e.g. from the Eagleswell site, and there would also remain the risk with this option that the Llanilltud Fawr building may fail before the Band B funding becomes available.

Option 5: Maximum Scope for Improvements and Cost Effectiveness (“the Preferred Option”)

Description:

This option proposes the delivery of an “enhanced” Llantwit Major Comprehensive School and an amalgamated new 420 place English

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Medium Primary School for Eagleswell and Llanilltud Fawr built on the existing Llanilltud Fawr site – (all let as one contract using Band A funding, a capital receipt from the disposal of the Eagleswell site and £3,017,000 additional Welsh Govt funding). Advantages:


it would allow for the refurbishment of the main school building to a high standard and replacement of all the remaining buildings with one new building using pattern book design as has been used by the Council for Ysgol Nant Talwg in Barry;

the provision of new buildings and facilities and development of an innovative learning environment will enable leadership to focus on improving performance across the schools rather than be distracted by building issues.

a new 420 place amalgamated primary school using pattern book design would be built on the same site as the Comprehensive for Eagleswell and Llanilltud Fawr (BREEAM Excellent);

amalgamating the two primary schools would achieve revenue savings in the region of £210,000 per annum due to reductions in staffing costs and efficiencies resulting from economies of scale;

avoids the need for Band B funding, which may not be available until 2020 and therefore overcomes the concern with the potential failure of the Llanilltud Fawr building;

efficiencies realised through sharing a site and having coordinated facilities management;

the procurement arrangement whereby the developer would build the new primary school prior to the Eagleswell site being released avoids the cost of temporary accommodation;

economies of scale and associated cost savings from letting the works as one contract;

capital receipt generated from disposal of Eagleswell site.

Disadvantages:


it requires £3,017,000 additional grant funding from the Welsh Government.

It requires a more complex procurement arrangement.

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Conclusion:

This option is possible and would provide the maximum scope for improvements and cost effectiveness not only in relation to the build but also subsequent running costs. For this reason it is therefore “the Preferred Option”. It would result in the delivery of an ambitious scheme benefiting the Comprehensive, Eagleswell and Llanilltud Fawr, that would achieve the Llantwit Learning Community vision. The provision of a comprehensive school building using pattern book design would build on the ground breaking work the Vale has carried out in the primary sector. This would be the first pattern book design comprehensive school in Wales and could be promoted by the Welsh Government as an exemplar in terms of the competitive cost of delivery.

Option 6:

Description

This option proposes the delivery of an “enhanced” Llantwit Major Comprehensive School only (using Band A funding), Eagleswell will be repaired using Asset Renewal funding. It is thought under this scenario that Llanilltud Fawr could fail within five years (it has been assumed in 2017/18 for the purposes of this analysis) therefore demountables will need to be utilised as an interim solution and the building replaced under Band B 21st Century Schools Funding. Advantages


it allows for the refurbishment of the main school building to a high standard and replacement of all the remaining buildings with one new building (BREEAM Excellent) using a pattern book design as has been used by the Council for Ysgol Nant Talwg in Barry;

Eagleswell could be improved by way of repairs using available Asset Renewal funds;

Llanilltud Fawr would be accommodated in a new BREEAM Excellent school building on its site using Band B funding which is due to commence in 2020 (at the earliest).

Disadvantages


this option is not affordable because there is insufficient Band A funding to deliver an “enhanced” comprehensive school and there is no capital receipt available under this scheme as it does not result in the disposal of Council owned land;

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there is the risk of disturbance to staff and pupils if there is failure of the building at Llanilltud Fawr, within this option it has been considered that if this happens that the Council would use demountables on a short term basis and seek 21st Century schools funding under Band B to build a new school.

if the school building at Llanilltud Fawr does fail this would potentially have a significant impact on the educational outcomes for the pupils at the school.

this option does not result in amalgamating the two primary schools and therefore misses the opportunity achieve revenue savings associated with amalgamation;

by retaining the existing distribution of schools the wider efficiencies which could be achieved through the Llantwit Learning Community as a result of the Comprehensive school and primary school(s) sharing one site and associated coordinated facilities management would not be realised.

Conclusion

This option is not affordable because there is insufficient Band A funding to deliver an “enhanced” comprehensive school. It would also not address the business needs for Eagleswell.

3.4.2. Overall Conclusion: Scoping Options

3.4.2.1. As identified in the table below Options 2, 4 and 6 are immediately discounted because they are not affordable. This leaves Options 1, 3, and 5 as Possible Options. The table below (Table 7), which has been prepared by the Council’s SIP Core Officer Project Team, summarises the assessment of options 1, 3, and 5 against the Council’s Business Investment Objectives and CSFs and concludes that the Preferred Option that potentially offers the greatest benefits is Option 5.

Table 7: Summary Assessment of Scoping Options

Reference to: Option 1 Option 2 Option 3 Option 4 Option 5 Option 6

Investment objectives:

1. Strategic Fit 1 2 3

2. Educational 2 2 3

3. Financial 2 Not affordable 2 Not 2 Not

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affordable affordable

4. Environmental 1 2 3

Critical Success Factors:

1.Business need 1 2 3

2. Strategic fit 1 2 3

3. Benefits Optimisation

1 2 3

4. Achievability 1 2 2

5. Affordability 2 2 2

TOTAL SCORE 12 18 24

Summary Possible

Do Nothing

Discounted/

Not Affordable

Possible

Discounted/

Not Affordable

“Preferred Option” that has potential to generate maximum scope for improvements and VFM

Discounted/

Not Affordable

(Note: Within the above table each of the remaining options are attributed a score ranging from 3 for Good, 2 for Fair down to 1 for Poor in relation to how well that option potentially meets the Business Investment Objectives alongside the Critical Success Factors. Those options that are not affordable and therefore not achievable are not awarded a score and are identified as Discounted/Not affordable).

3.5 Short-Listed Options

3.5.1 Overview

3.5.1.1. The ‘Preferred’ and ‘Possible’ options identified in Table 7 above have been carried forward into the Short List for further appraisal and evaluation. All the options that were discounted as not affordable have been excluded at this stage.

3.5.1.2. On the basis of this analysis, the recommended short list for further appraisal at OBC stage is identified in Table 8 as follows:

Table 8: Short List of Options

Option 1: “Do Nothing/Status Quo” including repairs to Eagleswell and Llantwit Major Comprehensive funded from Asset Renewal and building a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020);


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3.6. Indicative Economic Costs 3.6.1 The indicative costs for the shortlisted options are identified in Table 9 as follows: Table 9 – Indicative Costs of the Short List of Options



Option 1: Do Nothing/Status Quo - including repairs to Eagleswell and Llantwit Major Comprehensive funded from Asset Renewal and building a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020) Capital

Revenue

6,882

0

5,176

0





1,712 1,468


Non- cash releasing benefits See Appendix G See Appendix G

Total

8,594 6,644



Option 3: (the “Current Scheme”): Deliver a “remodelled” Llantwit Major Comprehensive School (using Band A funding), repair Eagleswell (using Asset Renewal funding) and build a new Llanilltud Fawr Primary School on its existing site (using Band B funding which is due to commence in 2020);

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Capital

Revenue

18,902

2,997

16,450

1,731





1,712 1,468



Total 23,611 19,649



Option 5: (“the Preferred Option”): Deliver an “enhanced” Llantwit Major Comprehensive School and an amalgamated new 420 place English Medium Primary School for Eagleswell and Llanilltud Fawr built on the existing Llanilltud Fawr site - all let as one contract (using Band A funding, a capital receipt from the disposal of the Eagleswell site and Additional Welsh Govt funding); Capital

Revenue

21,066

8,688

19,185

5,085


Less cash releasing benefits -9,107 -6,128

Add quantified risks 0 0



Total 20,647 18,142

3.6.2. As shown in the table above, the indicative Economic Costs show that despite the higher Capital cost of the “Preferred Option” (Option 5) and the need to Prudentially Borrow to fund this option, the “Current Scheme” (Option 3) is slightly more costly in terms of both discounted and undiscounted costs. This is because the “Preferred Option” generates revenue savings and benefits from an assumed Capital Receipt on the Eagleswell site. Another key distinction is that Option 5 the “Preferred Option” is the only option that fully mitigates the risk of building failure at Llanilltud Fawr within the next five years, both Options 1 and 3 include the cost of demountable hire as a quantified risk which would be the interim solution should the school building at Llanilltud Fawr fail. It should be noted that there are a number of benefits and costs (as set out in Appendix G) that cannot be quantified at this point in the scheme.

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4. THE COMMERCIAL CASE

4.1. Introduction

4.1.1. This section of the SOC outlines the commercial case focusing on in outline terms the procurement strategy for the delivery of the Llantwit Major Learning project.

4.2. Procurement Strategy 4.2.1. The Council envisages procuring this capital build project in accordance with the Council’s Contract Standing Orders and Financial Regulations and in line with EU regulations. 4.2.2. The Preferred Option (Option 5) to deliver an “enhanced” Llantwit Major Comprehensive School and an amalgamated new 420 place English Medium Primary School for Eagleswell and Llanilltud Fawr built on the existing Llanilltud Fawr site is intended to be let as one contract. 4.2.3. The anticipated project value requires that external designers and contractors are procured using an EU Procurement Directive compliant process. The Council will competitively tender and select a contractor under the SEWSCAP framework This will save time as the contractors on the said framework have already been short listed in effect through the OJEU PQQ process. This will require the contractors to submit tender prices and take part in a pattern book design competition process. The successful designer and contractor will be selected against scored Quality and Price award criteria. 4.2.4. In terms of the contract it is presently proposed to utilise an NEC 3 Option C with design. It is intended to facilitate early contractor involvement together with a collaborative approach in order to reduce risk and to endeavour to deliver the greatest benefits to the scheme; an approach supported by the Welsh Government, Constructing Excellence in Wales and the 21st Century Schools Programme. 4.2.5. Consideration is being given to selling Eagleswell at market value (subject to Section 123 of the Local Government Act) to the contractor thereby minimizing the risk of securing a purchaser for the site ensuring a capital receipt. This approach would also enable Eagleswell to remain operational within the site until the new amalgamated primary school has been completed 4.2.6. The Council will contractually require the contractor to maximise local skills training, employment and supply chain opportunities at a South Wales level similar to the Penarth Learning Community Also, all tier 1 sub-contractor opportunities would be posted on the Welsh Government’s Sell2Wales website, and a local “Meet the Contractor” event(s) would be held to ensure local contractors and material suppliers have the opportunity to be made aware of the commercial opportunities from the build project. The council will also look to maximise the community benefits from the project.

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4.2.7. The Council’s Property Section has recent and ongoing experience managing the delivery of major capital build projects, e.g. the completed £21.5 Million Cowbridge Secondary School, and the ongoing £49 Million Penarth Learning Community and the first pattern book design school in wales, Ysgol Nant Talwg which will be complete by July 2014. 4.3. Required Services 4.3.1. The required services are briefly as follows:

Project Management and Cost management consultant services including advising on utilisation of pattern book design and construction solutions;

Main Works Contractor; and

Property agent for advice on the sale of land.

Architect to prepare outline planning permission. 4.4. Risks 4.4.1. The main risks associated with the delivery of the capital building project have been identified in Section 2 but are also outlined below. As set out in Section 6 of this SOC through its well established project management and risk management procedures the Council will seek to minimise and mitigate the above risks. 4.4.2. At this stage, the risks identified below by the Council are high level risks based on our experience of major multi million pound capital build projects for schools. A more detailed and comprehensive analysis of the risks to project delivery will be provided at OBC stage. 4.4.3. The key risks are financial and hence these are identified first. This financial risk is addressed and how it will be managed in the next section, the Financial Case. Planning is also a key risk in terms of the delivery of the Learning Community development and in terms of redeveloping Eagleswell for alternative uses (e.g. a supermarket and housing necessary to raise a sufficient capital receipt). a) Financial Risks:

Insufficient Capital Funding;

Failure to dispose of Eagleswell and therefore no capital receipt;

Insufficient revenue to operate the new school accommodation;

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b) Educational risks:

Disruption to the delivery of the educational service for the pupils during the development. (Note – also refer to Operational risks);

End user needs not met. The completed scheme fails to deliver a high quality learning environment that improves educational outcomes;

Failure to effectively amalgamate Eagleswell and Llanilltud Fawr Primary schools into a single 420 place school resulting in a detrimental impact on attainment.

c) Design/Initiation Risks:

Planning permission refused;

ground conditions;

design and preparation of Pre Contract Tender documents not completed on time;

outline planning permission refused for Eagleswell;

procurement risk – unable to develop suitable package to offer to the market.

d) Build Risks:

Threat to health and safety of pupils and staff and general public during works;

noise, dust and disturbance affecting delivery of education at the schools;

poor weather; and

ground conditions/contamination.

e) Operational Risks:

Maintenance problems encountered. 4.5. Programme

4.5.1. In terms of Programme the aim is to facilitate the project in accordance with the Outline Project Plan identified in Section 6 of this SOC. This aims to see the completion of the schools by the Summer of 2017, with their occupation in Autumn 2017.

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5. THE FINANCIAL CASE

5.1. Introduction

5.1.1. The purpose of this section is to set out the indicative financial implications of the project. It should be noted the detailed analysis of the financial case including affordability takes place at OBC stage. A report was recently submitted to the Council’s Cabinet of 18th November 2013 and this addressed this issue and compared the “Preferred Option” (Option 5) alongside Option 3, which is known as the “Current Scheme”. In addition to the options considered in the recent Cabinet Report, for completeness Option 1 the “Do Nothing or Status Quo” has also been included in the financial analysis.

5.2. Summary of Financial Appraisal

5.2.1. Focusing on the options in the short list; the “Do Nothing” (Option 1), the ambitious “Preferred Option” (Option 5) compared to the “Current Scheme” (Option 3), the proposed costs and funding are set out in Tables 10, 11 and 12. 5.2.2. There are a number of risks associated with the funding of Options 1, 3 and 5. These are based around the risk of additional grant funding not being awarded by the Welsh Government or awarded at a reduced contribution. The funding of the “Preferred Option” (Option 5) also assumes that a contribution will be received from a capital receipt as a result of the sale of the Eagleswell site, there are risks associated with the value of the contribution, however the funding model assumes a realistic contribution and the risk mitigation identifies alternative sources of funding for the scheme if no capital receipt is realised from the site. Also included within Table 12 are various approaches to mitigate the risks through, application for additional grant funding under Band B of the 21st Century Schools Programme in addition to the increased use of receipts from the sale of surplus school sites.

5.2.3. It should be noted as background information that the estimated cost of a 420 place school with nursery using pattern book design is estimated to be £4,750M. The “enhanced” Llantwit major Comprehensive School scheme (defined on Page 10) would cost an estimated £15M bringing the estimated total cost of the scheme to £19,750M (excluding asset renewal). £12,476,000 is built in to the Council’s current Capital Programme for the “remodelling” of Llantwit Major Comprehensive School (also defined on Page 40) between 2015/16 - 2017/18. The Eagleswell site would be potentially released for a capital receipt, which would be retained in the School Investment Programme as previously agreed by Cabinet. Additional funding would be found using Prudential Borrowing of £2M the debt charges for the borrowing will be funded from revenue savings generated from the amalgamation of the primary schools.

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Table10: Costings

Costing of Capital Works


(Option 1)

£,000’s


£,000’s

“Preferred Option” (Option 5

subject to OBC)

£,000


0 12,476 15,000

Merge Llanilltud Fawr & Eagleswell Primary Schools

0 0 4,750

Asset Renewal on Enhanced Llantwit Comprehensive

0

0 991

Asset Renewal on Amalgamated School

0 0 325

Asset Renewal on New Llanilltud Fawr

84 84 0

Repair Eagleswell funded through Asset Renewal

1,126 1,126 0

Repair Llantwit Comprehensive Asset Renewal

2,740 2,284 0

Replace Llanilltud Fawr Primary School

2,932 2,932 0

TOTAL COST OF WORKS

6,882 18,902 21,066

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5.2.4. Overall affordability

5.2.4.1. The existing and potential additional funding sources for the project are set out in Table 11 below. Table 10: Funding of Capital Works Funding Source Status “Do Nothing

Status Quo” (Option 1)

£,000


£,000

“Preferred Option”

(Option 5)

£,000

Council Funding inc.Prudential Borrowing

Approved 0 6,981 8,238

WG Grant (Phase 1 Band A)

Approved 0 5,495 5,495

Additional WG Grant

Assumption only

0 0 3,017

WG Grant (Phase 2 Band B)

Assumed 50%

contribution

1,466 1,466 0

Additional Council Match Funding and Capital Receipt Contribution

Seeking Approval through Capital

Programme

1,466 1,466 3,000

Additional Council Asset Renewal

Seeking Approval through Capital

Programme

3,950 3,494 1,316

TOTAL FUNDING 6,882 18,902 21,066

5.2.4.2. The “Do Nothing or Status Quo” option (Option 1) incurs costs associated with asset renewal at Eagleswell and Llantwit Major Comprehensive School. In addition, under this option the Council will continue to carry the significant risk of building failure at Llanilltud Fawr and it has been concluded by our internal Property section that asset renewal at this site is uneconomic due to the nature of the building. Therefore the costs associated with building failure have been quantified within this financial analysis through the inclusion of the proposed scheme to replace Llanilltud Fawr using Band B 21st Century Schools funding. The risk of building failure has been quantified to a greater extent in the Economic Case through the inclusion of costs for demountable classrooms which will be used as an interim solution should the building fail. 5.2.4.3. As shown in the SOC the Council had identified Option 3 as its “Current Scheme”. In respect of this option the Council has the majority of the funding within its capital programme (£12,476,000 2015/16 to 2016/17) to deliver a remodelled Llantwit Major Comprehensive School (identified in its revised SOP). The Council aims to deliver Option 3 if it is not possible to

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deliver a more ambitious scheme. The repairs to Eagleswell and Llantwit Major Comprehensive buildings (not impacted by the “remodelling”) would be funded from Asset Renewal Funding and the construction of a new Llanilltud Fawr would be subject to Welsh Government 21st Century Schools Band B funding due to commence in 2020. As with Option 1 above the risk of building failure prior to the 21st Century Schools Band B funding being available has been reflected in the Economic Case through the inclusion of costs for demountable classrooms which will be used as an interim solution should the building fail. 5.2.4.4. The Cabinet at its meeting of 18th November 2013 agreed its aspirations to deliver a more ambitious scheme in the form of Option 5 (subject to more detailed assessment at OBC stage) an amalgamated 420 place English Medium Primary School from Eagleswell and Llanilltud Fawr built on the existing Llanilltud Fawr/Llantwit Major Comprehensive School Site, and an enhanced Llantwit Major Comprehensive School. This option is potentially affordable but is subject to a number of financial risks associated with the funding sources. These financial risks are firstly that the Council does not secure additional grant funding from the Welsh Government or it is awarded grant at a reduced level, and secondly the Council does not secure a sufficient capital receipt from the potential disposal of the Eagleswell site. 5.2.4.5. Set out below in Table 12 is an outline assessment of the financial risks and the Council’s approach to minimising these financial risks. The table considers three scenarios whereby the project could be at financial risk, and then identifies how the financial risk identified could be mitigated. 5.2.4.6. The sums identified represent the additional Council Funding required under each of the three scenarios. For example with Scenario 1 below, for the “Preferred Option” the Council would have to find additional funding amounting to £3,017,000, in Scenario 2 £3,017,000 and in Scenario 3 £6,017,000. Table 12: Financing Risks Assessment


(Option 1) £,000

Current Scheme (Option 3)

£,000

Preferred Way Forward/Option

(Option 5) £,000

Total Cost of Works (from Table 9)

6,882 18,902 21,066

Total Funding (from Table 10)

6,882 18902 21,066

Financing Risk Assessment – *Potential Additional Funding

Scenario 1: Additional Welsh Government Grant for Enhanced Scheme and Amalgamated Primaries Not Approved Total Financial Risk (Scenario 1)

0 0 3,017

Scenario 2: No additional Welsh Government Grant is approved for the Comprehensive School or for merging of Primary Schools. The Welsh Government Grant is approved to replace Llanilltud Fawr but at 30% contribution not 50% as

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assumed above

Total Financial Risk (Scenario 2)

586 586 3,017

Scenario 3: No Capital Receipt, No Additional Grant available from the Welsh Government for any Option.

Total Financial Risk (Scenario 3)

1,466 1,466 6,017

Risk Mitigation: RM1. Defer Merger Works until Band B of 21st Century funding the amount available depends on what level of grant is approved assume 30%.

0 0 -1,508

RM2.Use Receipts from the sale of Surplus School Sites* (Use of this funding would be at the expense of other future schemes), increase prudential borrowing.

-2,932 -2,932 -4,509

TOTAL OF RISK MITIGATION

-2,932 -2,932 -6,017

*The Council is currently planning to sell surplus land at Dinas Powys and Ysgol Maes Dyfan although we currently plan to use this funding for phase B of the School Investment Strategy there may be the potential to use some to support these schemes.

5.2.4.7. Hence, there are a number of scenarios that may give rise to financial risks to the delivery of the project. As outlined above for either Options 1, 3 or 5, the Council has considered ways of mitigating these financial risks. 5.2.4.8. Notably, amalgamating the two primary schools as is proposed in Option 5 would achieve revenue savings in the region of £210,000 per annum due to efficiencies resulting from economies of scale. Net savings would be used to fund the £2M Prudential Borrowing required to finance the scheme. Redundancy costs have not been included in the above figure. The saving would not be fully realised until the amalgamated school transfers to the new school building. The Learning Community would benefit from shared facilities with further efficiencies being realised through coordinated facilities management.

5.2.4.9. If additional capital funding to deliver the Llantwit Learning Community were to be realised through the sale of the Eagleswell school site the sale process would need to be carefully considered. Traditionally the site would be sold and payment made when the site is transferred to the new owner. In this scenario temporary accommodation would be required to provide schooling to the pupils attending Eagleswell primary whilst the new school is built. The supply, installation, hire and removal of temporary

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accommodation will be a substantial additional cost that will not provide any long term benefit for the Local Authority.

5.2.4.10. Two alternative approaches have been used by other Local Authorities to avoid the costs incurred by the need for temporary accommodation. Either the site could be sold in exchange for the construction of a new school with the land being handed over only when the new school is complete. Alternatively payment for the site could be required in advance of the site being released to allow the new school to be built whilst the pupils remain in the Eagleswell school building. For both of these options the Local Authority would receive a lower capital receipt to cover the financing costs incurred by the developer. These options would however reduce the risk for the Local Authority associated with the sale of sites when the actual sum achieved from the sale is not known until after the Council has paid for the new building to be funded from the sale. 5.3. Stakeholder Support 5.3.1. In terms of the status of stakeholder support for the project, the Council’s Cabinet at its meeting of 18th November 2013 (Cabinet Minute C2081) has given its support for the principal of the Llantwit Learning Community project, presently favouring in effect (if viable) the ambitious Option 5 resolving: “THAT Cabinet agrees its ambition to create a Llantwit Learning Community delivering major investment in Llantwit Major Comprehensive School and a new 420 place primary school on the adjacent site created from the amalgamation of Eagleswell and Llanilltud Fawr primary schools.” 5.3.2. In terms of other key stakeholders, at the Council’s Cabinet meeting of 18th November 2013 (Cabinet Minute C2081) authorisation was granted for a consultation exercise to commence from 16th December 2013 for a period of eight weeks. The purpose of the consultation is to assess the level of support for the development of the proposed Llantwit Learning Community to include primary provision by creating the new 420 place English medium primary school alongside the Comprehensive school and Ysgol Gymraeg Dewi Sant (as mentioned the subject of a separate BJC). The outcome of consultation on the proposal to amalgamate Llanilltud Fawr and Eagleswell Primary Schools will be reported to Cabinet on 28th April with a recommendation to publish a statutory notice.

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6. THE MANAGEMENT CASE

6.1. Introduction

6.1.1. This section of the SOC addresses the ‘achievability’ of the scheme. Its purpose is to set out the actions that will be required to ensure the successful delivery of the scheme in accordance with best practice.

6.2. Programme Management Arrangements

6.2.1. The Llantwit Learning Community project is an integral part of the Vale of Glamorgan Council’s 21st Century Schools Investment Programme (SIP). As stated previously the Council’s SIP document highlights the major projects already completed within the programme and the evolving funding streams available to the Vale of Glamorgan Council to undertake major capital projects such as the Llantwit Learning Community, culminating in the proposed 21st Century schools programme, due to start with the (revised) Band A schemes in 2014/15 to 2019/20:

Completion of Ysgol Nant Talwg to meet increased parental demand for Welsh Medium primary education in Barry.

Completion of Ysgol Gymraeg Dewi Sant to meet increased parental demand for Welsh Medium primary education in Llantwit Major.

Remodelling of Llantwit Major Comprehensive School to resolve existing car parking and bus drop off problems, remodelling or replacement of existing buildings to meet 21st Century Schools standards including upgrading of heating, ventilation and electrical systems to meet current needs, improvements to energy efficiency to reduce CO2 emissions arising from the use of the buildings, enhanced sporting facilities and site wide adaptations to improve disabled access.

i. Expansion of Welsh Medium primary provision in Barry through

the enlargement of Ysgol Gwaun y Nant to 420 places and the construction of a new building to accommodate Oak Field Primary to facilitate this enlargement.

ii. Remodelling of Colcot Primary, Barry to address suitability issues

and improve teaching and learning areas. 6.2.2. The 21st Century School Programme SOP was originally submitted to the Welsh Government in October 2010, and at the request of the Welsh Government revised in November 2011 to include only Band A projects. The revised SOP was agreed with the Welsh Government in December 2011 and is attached as Appendix E.

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6.2.3. The Vale of Glamorgan Council for the delivery of its Schools Investment Programme (SIP) has a well-established process for project governance for the Programme. As illustrated in Figure 1 (which identifies the hierarchy of management established for the Council’s Schools Investment Programme and how this project fits within that hierarchy) the Council has a well-established dedicated Project Board (the SIP Project Board) who meet on a monthly basis and oversee the progress of the SIP and its various projects, with update reports from the SIP Project Sponsor/Senior Responsible Officer (Paula Ham, Head of Strategy Community Learning and Resources) and other key officers within a SIP Core Officer Project Team. 6.2.3. A Gateway 0 Strategic Assessment undertaken in February 2014 gave a delivery confidence assessment RAG of Green/ Amber. The review team concluded: “Our assessment reflects the high level of confidence of all those involved in the Programme – within the Programme Team, the Council and Schools. This confidence is supported by progress so far, the high level of stakeholder engagement and consultation, the cautious approach on funding and affordability, the collaborative relationship with present contractors and flexible and innovative procurement. Particular strengths are the commitment, expertise, responsiveness and engagement of the Programme Team. There is close working between staff in learning and skills, estates and the finance directorates working to a single vision and aim and a very open and constructive relationship between Officers and Council Members.” The full report of the Gateway Review team is attached as Appendix H

6.3. Project Management Arrangements

6.3.1. The success of any capital project whether large or small depends very much on whether it is being managed efficiently and effectively. The Vale of Glamorgan Council places a great emphasis on ensuring projects are well managed and has established a comprehensive set of Corporate Project Management Guidelines that staff must adhere to when delivering capital projects of differing sizes. Derived from PRINCE 2 (Projects In Controlled Environments) the Council’s Corporate Project Management Guidelines provide a method for the controlled delivery of projects of all sizes and differing levels of complexity. The Guidelines are therefore flexible and adaptable and can be tailored accordingly. 6.3.2. The Vale of Glamorgan Council has a good track record in delivering projects on time, to budget and maximising the benefit to the community. The team have successfully delivered Cowbridge Comprehensive School in 2010, are currently delivering the Penarth Learning Community which has gained Constructing Excellence Wales Exemplar (CEW) status, Considerate Contractors Scheme Gold Award and national runner up award. We are also delivering Ysgol Nant Talwg which is a case study project for Welsh

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Government and has recently been presented to the CLAW Design Group with CEW as a proposal for improving 21st century school design. Outline Project Reporting Structure & Outline Roles &Responsibilities

6.3.3. The proposed Llantwit Learning Community will be the responsibility of the SIP Project Sponsor/Senior Responsible Officer (Paula Ham, Head of Strategy, Community Learning and Resources). 6.3.4. The project will be managed and delivered by the Council’s Property Section on behalf of the Client department, Learning and Skills. The Client Project Manager will be Jane Wade (Operational Manager, Property Section) strictly in accordance with the Council’s Corporate Project Management Guidelines. The Client Project Manager will be responsible for:

the daily management of the project from inception through to full physical and financial completion;

Facilitating the procurement of the project in accordance with the Council’s Contract Standing Orders and Financial Regulations and in line with EU regulations;

managing in house multi-disciplined officers as required; and

commissioning and managing specialist consultants as required, putting in place arrangements for the management of the Main Works Contract.

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Figure 1 – Project Governance Chart

CABINET

SIP PROJECT BOARD

S. Davis (Managing Director and Director of Resources); J. Hill (Chief Officer, Learning and Skills);

P. Ham (Head of Strategy, CL & Resources); J. Wade (OM, Property);

M. Haynes (School Org and Buildings Manager) and M. White (Major Projects Manager);

SIP PROJECT SPONSOR & SENIOR RESPONSIBLE OWNER

P. Ham (Head of Strategy, Community Learning and Resources)

SIP CORE OFFICER PROJECT TEAM

P. Ham (Head of Strategy, Community Learning and Resources); J. Wade (OM Property);

M. White (Major Projects Manager); and M. Haynes (School Organisation and Buildings Manager).

Llantwit Learning Community Project

Client Project Manager:

J. Wade, Operational Manager (Property Section)

Contractor:

To be determined

Key Stakeholders:

Pupils Parents

Head Teacher, Teachers and Support & Admin School Governing Body The Local Community

The Council The Welsh Government.

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6.4. Outline Project Plan

6.4.1. Table 13 below sets out the key milestones for the delivery of the project:

Table 13: Key Milestones

Milestone Activity

1. Submission of SOC to Welsh Government December 2013

2. Statutory Consultation and Amalgamation of Eagleswell and Llanilltud Fawr:

Statutory Consultation re amalgamation of Eagleswell and Llanilltud Fawr (16 December to 10 February 2014);

Report outcome of consultation to Cabinet (28 April 2014);

Statutory Notice Period for Consultation (6 May 2014 to 3 June 2014);

Objection Report to Cabinet (30 June 2014);

Decision Notification (7 July 2014);

Amalgamate Eagleswell and Llanilltud Fawr (September 2015)

December 2013 to September 2015

3. Appoint Master Plan Architect February 2014

4. Submit Outline Planning Application for Eagleswell Redevelopment

June 2014

5. Planning Permission for Eagleswell Redevelopment

September 2014

6. Outline Business Case (OBC)

7. Financial Business Case (FBC)

(It is proposed that these are submitted together)

December 2014

8. Appointment of Framework Contractor July 2014

9. Submit Planning Application for Learning Community

March 2015

10. Planning Approval for Learning Community June 2015

11. Start on Site July 2015

12. Physical Completion July 2017

13. Occupation September 2017

14. End of Defects Liability Period for Learning Community Works Contract

July 2018

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6.5. Use of Special Advisers

6.5.1. To deliver the project the Council intends to appoint specialist advisers to provide Construction Project Management and Cost management consultant services including advising on possibility of pattern book design and construction solutions.

6.6. Gateway Review Arrangements

6.6.1. A Gate 0 (strategic assessment) took place in February 2014. The Delivery Confidence Assessment RAG status given by the review team was green/amber. Three recommendations were included in the report and these will be addressed before the submission of the OBC for this scheme. It is intended that a Gate 3 review will be undertaken prior to submission of the OBC and FBC in December 2014.

6.7. Recommendation

6.7.1. The Council concludes that this Strategic Outline Case (SOC) supports in principle the delivery of Llantwit Learning Community and that this ambitious project should be progressed to the Outline Business Case stage for more detailed analysis.

Signed:

Date: 16th April 2014

Paula Ham (Head of Strategy Community Learning and Performance)

Learning and Skills Directorate, The Vale of Glamorgan Council

Senior Responsible Officer

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APPENDICES

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APPENDIX A Site Plan.

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Appendix B: Corporate Plan (2013-17)

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Appendix C: Community Strategy (2011-21)

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Appendix D: Learning & Skills Service Plan (2013 – 17)

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Appendix E: Revised Strategic Outline Programme (SOP)

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Appendix F: Schools Investment Programme (SIP)

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Appendix G: Economic Analysis – Indicative Costs of the Short Listed Options

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Appendix H: Gateway Review 0: Strategic Assessment

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LLANTWIT LEARNING COMMUNITY THE VALE OF GLAMORGAN.

LEARNING AND SKILLS DIRECTORATE THE VALE OF GLAMORGAN COUNCIL

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