CABINET 9/9/2014 – FOR INFORMATION
AGENDA ITEM 7
BOROUGH OF POOLE
ENVIRONMENT OVERVIEW AND SCRUTINY REPORT
4 SEPTEMBER 2014
ALLOTMENT POLICY REVIEW
PART OF THE PUBLISHED FORWARD PLAN YES
STATUS - Strategic
1. PURPOSE
1.1 To provide Members with information about progress against stated policy aims within the 2011 Allotment Policy.
1.2 To outline the current situation regarding allotments in Poole, including financial position, management and social issues.
1.3 To recommend a review of allotments to consider policy, systems and provision.
2. RECOMMENDATIONS
2.1 That Members recognise the progress made in allotment management since the adoption of the 2011 Allotment Policy.
2.2 That Members recommend to Cabinet that an allotment review is undertaken, in line with criteria in Appendix 1 and that its conclusions are reviewed by Environment Overview and Scrutiny Committee within the next 12 months.
3. BACKGROUND
3.1 Borough of Poole adopted the current Allotment Policy in 2011[1]. Management of allotments moved from Leisure Services to Environmental and Consumer Protection Services (E&CPS) in 2012 as part of the transfer of open space functions.
3.2 A summary of current allotment provision and systems is provided in Appendix 2.
3.3 The 2011 Allotment Policy stated that a policy review would be carried out every two years. This has not yet been undertaken.
4. PROGRESS AGAINST 2011 ALLOTMENT POLICY
4.1 An assessment of progress against the 2011 policy has been undertaken in summer 2014. Appendix 2 provides a brief summary of progress for all 25 policy statements. Four key areas have been considered in more detail below: i) finance, ii) provision and demand, iii) management, and iv) equalities.
4.2 Finance
4.2.1 Policy Statement 22 of the 2011 Allotment Policy sought to ensure long-term financial sustainability through achievement of a full cost recovery position within 3-5 years (i.e. by 2016). For an average sized plot (c.120m2) allotment rents have increased annually by £9.60 per year since 1 October 2012[2] with a view to achieving this financial sustainability. In 2014 the average rent is £60.85 per plot per year.
4.2.2 The 2014/15 budget forecasts show that the provision of allotments will cost Borough of Poole £44,200[3]. This equates to £143 per plot, meaning that provision is currently subsidised on average £82.50 per plot.
4.2.3 The financial profiling which occurred as part of the 2011 Policy did not include officer costs and therefore did not reflect the full cost of allotment management. It is now estimated that full cost recovery will not be achieved for a further five years (i.e. 2021) if the current rate of rent increases occurs with no additional actions.
4.2.4 Additional actions to reduce allotment running costs are being investigated. In 2014 skip provision has been reviewed with skips to be removed from all sites from the end of the year. This will result in estimated annual savings of £6,200 per year from 2015/16 onwards.
4.3 Allotment Provision and Demand
4.3.1 The allotment waiting list has been reduced significantly as a result of successful application of the 2011 Policy, from c.1100 in 2011 to 622 at the end of July 2014. This has included plot splitting, cleansing of the waiting list and removal of multiple plot holdings.
4.3.2 Demand for the current total of 481 allotment plots remains high, with waiting lists varying depending on the site requested. Plot sizes vary significantly, with the average c.120 metres squared. Best practice suggests that some demand can be met by the provision of smaller plots. Where possible plot divisions are being made.
4.3.3 There has been an increase in provision of alternative ‘growing spaces’ such as community gardens. Notable examples include Poole Housing Partnerships New Roots Community Gardens and the Friends of Turner’s Nursery Community Orchard.
4.4 Allotment Management
4.4.1 The management of allotments is currently split between Borough of Poole and its grounds maintenance contractor, Continental Landscapes Ltd. These arrangements mean that there is potential for some duplication of staff resources which requires further analysis.
4.4.2 Policy Statement 1 of the 2011 Policy relates to self-management of sites by Allotment Associations. This has not been progressed due to a lack of appetite from existing associations and the significant resources needed to support this.
4.5 Equalities
4.5.1 Policy Statements 11 and 12 of the 2011 Policy relate to equalities issues. There are currently 43 plots (c.9%) held by Access to Leisure and Learning scheme members. Currently 4% of Poole residents are members of the Access to Leisure scheme, meaning that the proportion of discounted members is about twice the baseline rate.
4.5.2 A number of charities or community groups have allotment plots, including Headway and the Community Outreach and Support Team (COAST). There is currently no priority for such groups on the waiting list and no provision that would meet special needs (e.g. raised beds). Individual plot holders have received support with specific issues, for example the provision of a disabled parking space adjacent to one plot.
5. BENEFITS OF ALLOTMENTS AND COMMUNITY GARDENS
5.1 There is a wealth of information on the health-and-wellbeing and social benefits of growing spaces such as allotments or community gardens. These include:
- A way to access value for money vegetables and fruit, thereby promoting a healthier diet.
- An opportunity for outdoor exercise and social interaction for a healthier lifestyle and increased wellbeing.
- The retention of green space in the borough and the promotion of biodiversity by offering habitats for flora and fauna.
- Contribution to the borough’s sustainability as growing food locally reduces ‘food miles’.
- Supports the growing of food, which avoids unnecessary packaging and thereby reduces the amount of household waste produced.
- Environmental concerns supported through absorption of carbon dioxide and increased soak away opportunities for rainfall.
- Encourages a community focus in usage of public spaces and provides learning opportunities.
5.2 Whilst the current Allotment Policy delivers on some of these benefits by default through the provision of allotments, it is managed primarily for provision of land for food production as required through statutory/legislative duties.
6. ALLOTMENT REVIEW
6.1 In light of the initial analysis of the 2011 Allotment Policy, officers recommend that an Allotment Review is undertaken to consider the purpose, policies, processes and provision of allotments in Poole.
6.2 A review of the overall purpose of allotments should consider:
- Public demands (who wants allotments? how many of them? where do they want them? why?).
- Health and wellbeing and social benefits (physical activity, nature deficit, community cohesion).
- Local food production (carbon reduction, 'food miles').
- Land management/biodiversity/environmental sustainability.
6.3 Once the purpose has been defined, further analysis of the areas outlined in Appendix 1: Outline Scope for Allotment Review, should be conducted.
6.4 The review needs to be considered within the overarching system conditions of achieving long-term financial sustainability and officer resource.
7. FINANCIAL IMPLICATIONS
7.1 As set out in 4.2, the provision of allotments costs Borough of Poole c.£44k per annum as at 2014/15. The existing aims from the 2011 Allotment Policy for full cost recovery by 2016 will not be achieved through implementation of the current policy and processes.
7.2 By conducting an allotment review with the aim of achieving financial sustainability, the Council will be able to determine the options for allotment provision going forward to minimise financial risk.
8. LEGAL IMPLICATIONS
8.1 If a local authority believes that there is a demand for allotments; they have a statutory duty to provide a sufficient number of plots under Section 23 of the Small Holdings and Allotments Act 1908.
8.2 Allotments are covered by a wide range of legislation dating back to the 1908 Act, with various updates and changes through to guidance from the Secretary of State in 2014.
8.3 There is the potential for any major changes to the Borough’s holding and provision of allotments to provoke legal challenge, for example through land disposal or unreasonable rate increases. Statutory sites have specific legal protection with strict criteria for any application to dispose of land requiring consent of Secretary of State[4]. Criteria include consideration of:
- Identification of replacement plots which requires suitable land to be available in locality.
- Demand based on waiting lists.
- Reason for disposal.
- Consultation with NSALG (National Society of Allotments and Leisure Gardeners).
9. RISK MANAGEMENT IMPLICATIONS
9.1 In addition to the Legal and Financial Implications outlined above, there are reputational risks associated with changes to allotment policy or provision. Allotments are emotive and there have been a number of cases of negative publicity associated with local authority decisions elsewhere. This risk needs to be managed carefully as part of any review.
10. EQUALITIES IMPLICATIONS
10.1 Through the recommended Allotment Review, the Council will consider fully how the 2011 Allotment Policy and any revisions, including to purpose, can seek to widen accessibility of the benefits associated with allotments to all residents. Due to the links between gardening and health and wellbeing benefits, particular focus will be put on disabilities and mental and physical health.
SHAUN ROBSON, HEAD OF ENVIRONMENTAL AND CONSUMER PROTECTION SERVICES
Contact officer: Ian Poultney, Environmental Development Manager, Ext 1761
Appendix 1: Outline Scope for Proposed Allotment Review
Appendix 2: Current Position and Report on Progress
Current Position:
· 481 plots across 8 different sites:
Site name: / Total plot area - Sq. metres / No. of plotsAlder Farm / 12,682.55 / 95
Blake Dene / 2,266.50 / 17
Broadstone / 8,255.10 / 74
Bushell Mill / 14,253.00 / 112
Hamworthy / 2,261.50 / 24
Tatnam Farm / 12,205.50 / 101
Whitecliff / 780.00 / 7
Widdecombe / 5957.00 / 51
· All designated as statutory sites except Hamworthy. Statutory status affords specific legal protection to the land provided for allotments.
· 622 applicants on waiting list.
· Waiting times hugely variable depending on demand and site availability (from c.18 months at Alder Farm, to decades at Whitecliff).
· The average size of a plot is 121.70 Square metres with average annual rent of £51.11. Cost of average size plot will rise to £60.85 from 1st October 2014.
· 43 plots currently held by members of the Access to Leisure and Learning scheme allowing each a current discount of 40% reducing to 35% from 1 October 2014.
· Full information about the allotment sites in Poole is available at www.boroughofpoole.com/leisure-and-culture/parks-and-open-spaces/allotments/ .
· This includes information on the Allotment Associations for some of the sites. Links are also provided to general allotment information and guidance e.g. NSALG, National Society of Allotments and Leisure Gardeners, recognised as the leading national organisation upholding the interests and rights of the allotment community across the UK.
1
Appendix 2: Current Position and Report on Progress
Progress Report for 2011 Allotment Policy
Area / Policy Statement / Progress since 2011-12ALLOTMENT MANAGEMENT / Policy Statement 1 – Self Management of Allotment Sites / · Self-management has not progressed due to lack of appetite from allotment associations and the high level of officer resource needed to progress this.
· NSALG opinion that formation of Allotment Associations to take on self-management role is difficult for existing sites but can work well when new sites created.
· Current Associations in place are Alder Farm, Tatnam Farm for that site and Broadstone, Bushell Mill.
Policy Statement 2
– Allotments restricted to Poole Residents / · Strict application of policy for entry to waiting list and on allocation of plots for Poole residents only.
Policy Statement 3
– Waiting List Management / · Waiting list closed and cleansed in 2011-12. List now reopen.
· List reduced from over 1100 to approx. 600.
INCREASING PROVISION / Policy Statement 4 – Seeking New Allotment Provision / · No additional provision since 2011. Land has been assessed for suitability for allotment provision (e.g. at Tucker’s Field in 2013) but this has not been progressed due to financial constraints (i.e. wouldn’t be cost effective) or other demands on the space.
Policy Statement 5
– Allotment Provision by Other Landowners / · No formal allotments provided by other landowners in Poole.
· A number of alternative food growing projects have been established across Poole including PHP New Roots Scheme, community gardens set up at sheltered housing sites (restricted to tenants use only), school gardens (e.g. Hillbourne, The Quay School, Turlin Moor).
Policy Statement 6
– Strengthening Planning Policy / · Reference to Allotment Policy is included in the Poole Site Specific Allocations and Development Management Policies DPD adopted by Council in 2012. Allotments and community growing areas are included within green infrastructure with recognition of their benefits and value-Protection stated within DM9.
· There has been difficulty reconciling the planning policy statements with meaningful delivery i.e. a large development ‘should’ provide some allotment provision but is unfeasible to have 1-2 individual plots without any form of management.
Policy Statement 7 – Supporting Funding Bids / · The Council has not been asked to support any funding bids from other organisations.
· Limited external funding is available for traditional allotment provision.
Policy Statement 8
– Cessation of Multiple Plot Holders / · All individuals holding multiple plots were identified, given the choice of which plot they would like to retain and made to give up the other plots they held. This contributed to fall in waiting list numbers.
· Application of Policy of one plot per person established for all plot holders.
Policy Statement 9
– Plot Division / · Plot divisions have taken place when possible and have increased the number of plots by approx. 70.
· Plot divisions continue however the number of larger plots is now falling.
· Plot size below 65 sq metres is deemed as not viable as does not allow for best horticultural practice such as crop rotation.
Policy Statement 10
– Community Orchards / · Community orchards have been delivered by joint working with the Friends of Turners Nusery (who created a wildlife friendly orchard in 2013 at Turners Field) and through some PHP New Roots community gardens.
EQUAL-ITIES / Policy Statement 11 – Fairness for All
Policy Statement 12 – Prioritisation of Car Parking Spaces / · Where individual requests for adjustments have been made these have been delivered where viable.
· Current waiting list application only requires name and address, special requirements and needs are noted if volunteered but are not actively requested.
· Charities e.g. Headway, Mind currently hold allotment.
SITE FACILITIES / Policy Statement 13
– Composting and Recycling / · Frequency of provision of skips has been reduced from once a month to two blocks of three months at the start and end of the growing season. Skips to be removed from all sites at the end of 2014.
· Guidance on composting and waste management provided on website.
Policy Statement 14
– Rainwater Collection / · Most plot holders with sheds have drainage systems to catch and recycle rainwater.
Policy Statement 15
– Toilet Provision / · Provision and maintenance at Alder farm via allotment association.
TENANCY AND LEASE ISSUES / Policy Statement 16
– Lease Agreements / · New agreements to reflect 2011 policy have been issued to all plotholders.
Policy Statement 17
– No Sub-letting Permitted / · Two instances of sub-letting discovered with tenancies terminated.
Policy Statement 18
– Deceased Plot Holders / · Policy applied on an individual basis to reflect the sensitivities of the situation.
Policy Statement 19
– Poor Cultivation / · New tenancy agreements set out standard of cultivation so it is clear to plot holders what is expected:
25% of plot cultivated within first three months of commencement of tenancy.
75% of the plot cultivated within first year.
95% thereafter.
Policy Statement 20
– Plot Terminations / · Since 2011 c.25 plot holders have had their agreements terminated for non-compliance and 16 for non-payment.
· An additional c.125 have given up their plot. It is likely that part of this is due to stricter rules from the Allotment Policy.
Policy Statement 21
– Non-residents of Poole / · Policy continues to be enforced as situations arise.
PRICING AND CHARGING / Policy Statement 22
– Financial sustainability / · Good progress on achieving financial aims from 2011 policy through implementation of annual rent increases of £0.08 per sq metre.
· Accounting processes have now changed, with staffing allocations attributed directly to allotment budgets. This means that full cost recovery will not be achieved by 2016.
Policy Statement 23
– Discount rates / · Service Unit Head has delegated powers to set discount rates.
· Access to Leisure and Learning discounts will be 35% from 1 October 2014 (reducing to 20% from 1 October 2017).
WILD-LIFE / Policy Statement 24
– Valuing Biodiversity / · Advice on biodiversity is provided to plot holders through the website.
Policy Statement 25
– Bee Keeping / · Updated Bee keeping policy issued to four plot holders over 3 different sites.
· No problems identified.
10