THE ROYAL PARKS
FRAMEWORK DOCUMENT
APRIL 1993
FOREWORD
London's Royal Parks are unique historic landscapes renowned for their horticultural excellence and diversity, and regarded with affection by visitors of all ages and cultural backgrounds. The Royal Parks provide havens of peace and beauty together with recreational facilities for young and old alike in the midst of our capital city.
The quality of the Royal Parks depends on exceptional standards of management. I believe that the establishment of the Royal Parks Agency will ensure that the unique character of the Parks is preserved and enhanced in accordance with their Royal and historic status, and will provide the additional flexibility to develop and extend their traditional role in the life of the city.
This document sets out the framework within which I am delegating to the Chief Executive the responsibility for managing the Royal Parks. I am confident that, with its managerial freedoms, the Agency will achieve the highest standards of excellence and service to the public.
I wish all the Agency's staff success.
PETER BROOKE
Secretary of State for National Heritage
Contentsparagraph
1. Status and Responsibilities
Executive Agency1.1
Title1.2
Agency Responsibilities and Staffing1.3
Location1.4
Ministerial Responsibility1.5
Accountability to Parliament1.6
The Permanent Secretary1.7
The Chief Executive1.8
Parliamentary Select Committees1.9
Arrangements with the Royal Household1.10
2. Aims and Objectives
Aims2.1
Objectives2.2
Performance Measures and Targets2.3
3. Finance, Planning and Control
Finance3.1
The Corporate Plan3.2
Annual Report3.3
Management Accounts3.4
Role of Central Divisions in the Department of National Heritage3.5
Advisory Group3.6
Delegations to the Chief Executive3.7
Use of Departmental Common Services3.8
Internal Audit3.9
External Audit3.10
4. Pay and Personnel
Status and Conditions of Staff4.1
Appointment of Chief Executive4.2
Personnel Delegation4.3
Consultation with Staff4.8
5. Framework Document
Review5.1
Publication5.2
Annexes
Geographical Responsibilities of the AgencyA
Matters to be covered in the Corporate PlanB
Terms of Reference for the Advisory GroupC
Delegations to the Chief ExecutiveD
1. Status and Responsibilities
Executive Agency
1.1 The Royal Parks Agency was established as an Executive Agency of the Department of National Heritage on 1 April 1993. This document sets out the aims and objectives of the Agency, its relationship with the Department of National Heritage and its accountability to Ministers and Parliament. It also describes the framework of financial planning and control which will apply.
Title
1.2 The Agency's full title is the Royal Parks Agency. It normally uses the title "The Royal Parks". In this document it is referred to as "the Agency". The Department of National Heritage is referred to as "the Department".
Agency Responsibilities and Staffing
1.3 The Agency is responsible for managing and policing the Royal Parks in London - St James's Park, The Green Park, Hyde Park, Kensington Gardens, Regent's Park, Primrose Hill, Greenwich Park, Richmond Park and Bushy Park. It also manages or polices a number of other areas listed in Annex A. In order to fulfil these responsibilities, the Agency employs managerial and professional staff together with the Royal Parks Constabulary, whose remit is to maintain law and order in the Parks and certain other areas. On establishment the Agency employed approximately 263 staff.
Location
1.4 The Agency is located in The Old Police House in Hyde Park.
Ministerial Responsibilities
1.5 The Chief Executive is responsible to the Secretary of State, who may designate another Minister in the Department to assist. The Secretary of State will determine the policy objectives of the Agency, the financial framework and the allocation of financial resources, including key targets to be achieved. He/she also approves the Corporate Plan. The Secretary of State will not normally become involved in day to day management.
Accountability to Parliament
1.6 The Secretary of State is answerable to Parliament for the Agency's policy and operations. However, Members of Parliament are invited to deal directly with the Chief Executive on matters of day to day management affecting the Parks. The Secretary of State will deal with cases which raise questions of policy or resource allocation to the Agency.
The Permanent Secretary
1.7 The Permanent Secretary of the Department is the principal Accounting Officer, and is the main adviser to the Secretary of State on matters affecting the Department as a whole, including allocation of resources and finance. In order to ensure that there is a high standard of financial management in the Department overall, the Permanent Secretary must be satisfied that the Agency has adequate financial systems and procedures in place both to promote the efficient and economical conduct of its business and to safeguard financial propriety and regularity.
The Chief Executive
1.8 The Chief Executive is responsible for the day to day management of the Royal Parks and is responsible to the Secretary of State and accountable to Parliament for the Agency's performance and operations. The Permanent Secretary has designated the Chief Executive as Agency Accounting Officer, whose main responsibility is to ensure that the public funds allocated to the Agency are spent effectively and efficiently and in accordance with the proper procedures. In addition, the Agency Accounting Officer is responsible for the Agency meeting the requirements of Government Accounting, for observing any general guidance issued by the Treasury or the Office of Public Service and Science, and for putting into effect any recommendations of the Public Accounts Committee, other Parliamentary Select Committees or Parliamentary authority which have been accepted by Government.
Parliamentary Select Committees
1.9 The Permanent Secretary and the Chief Executive are both liable to be summoned to appear before the Public Accounts Committee and other Select Committees within their respective responsibilities. In practice, when a Committee's interest is confined to the day to day operations of the Agency, Ministers will normally regard the Chief Executive as the most suitable person to appear on their behalf.
Arrangements with the Royal Household
1.10 Although the Royal Parks belong to the Queen in right of the Crown, the Secretary of State has responsibility under the Crown Lands Act 1851 for their funding, management, upkeep, security and presentation to the public. The Lord Chamberlain receives the Agency's Corporate Plan every year for information and is consulted on any proposals which would affect the Queen's direct interests.
2. Aims and Objectives
Aims
2.1 The Agency's aims are to manage the Royal Parks so that they:
a. offer peaceful enjoyment, recreation, entertainment and delight to those who use them;
b. are enhanced, protected and preserved for the benefit of this and future generations; and
c. are managed with efficiency and effectiveness and in accordance with the principles of public service as set out in the Citizen's Charter.
Objectives
2.2 The Agency's specific objectives are:
a.to increase the enjoyment of visitors, giving priority to pedestrians, installing and sustaining high standards of horticulture and design and ensuring that law and order are tactfully maintained;
b.to attract an increased range of visitors through publications, publicity, talks, local events and celebrations, open days, promotions, articles,
advertising and marketing;
c.to protect the Parks from every kind of encroachment contrary to their purpose so that the public of future generations can enjoy them to the full;
d.to maintain free access to the Parks for the public whilst developing suitable opportunities for increasing income;
e. to procure, organise and monitor all services in ways which ensure value for money;
f. to conserve buildings in the Parks that are of special architectural and historic interest; and
g.to meet such financial and other performance targets as the Secretary of State may determine after consultation with the Chief Executive.
Performance Measures and Targets
2.3 The extent to which these objectives are being achieved will be
measured each year by assessing the Agency's success in meeting a number of key targets, which will be set out each year in the Corporate Plan.
2.4 The key targets to be set by the Secretary of State will include:
- Financial targets;
- Efficiency targets;
- Visitor satisfaction targets; and
- Such other specific targets as he/she may determine from time to time.
3. Finance, Planning and Control
Finance
3.1 The Agency is financed from a section of the Heritage Vote, which is cash limited; this covers all current and capital programme expenditure by the Agency together with direct administrative costs. The Agency operates under a system of gross running cost controls. All receipts generated from the normal business operation of the Agency are appropriated in aid of the Vote. 50% of receipts in excess of those forecast in the main Supply Estimates may, subject to Parliamentary approval, be used to fund additional current or running cost expenditure.
The Corporate Plan
3.2 The Chief Executive will prepare each year a Corporate Plan which will include those matters set out in Annex B. It will be sent to the Secretary of State in March after prior consideration by the Advisory Group as appropriate. The Secretary of State's approval of the Plan will constitute authority for the Agency to conduct its business. The approved Corporate Plan will be published.
Annual Report
3.3 The Agency will produce annual financial accounts which will be on an accruals basis for 1994/95 onwards in accordance with an accounts direction issued by HM Treasury. They will be audited and laid before Parliament prior to the Summer Recess. The accounts will be published together with the Chief Executive's annual report which will summarise the activities and performance of the Agency during the financial year being reported upon.
Management Accounts
3.4 The Agency will keep proper accounting records and operate financial and management accounting systems which enable management to review performance including income, costs, commitments, cash flow and manpower against agreed budgets. The Agency will submit regular reports to the Department on its overall performance against key targets for finance, efficiency and quality of service.
Role of Central Divisions in the Department of National Heritage
3.5 The responsibility for advising the Secretary of State rests with the senior official in charge of built heritage issues in the Department (Grade 3), advised by the Principal Establishment and Finance Officer on personnel and finance matters, and by the sponsor division on other matters. The main specific responsibilities will be to discuss with the Agency and to provide advice to the Secretary of State on:
- the Corporate Plan, including strategic objectives, the Public Expenditure Survey resources needed and capital investment programmes;
b. the annual financial and performance targets;
c. achievements against financial and performance targets;
d. performance pay for the Chief Executive;
e. Parliamentary Estimates, Appropriation Accounts and Annual Reports and Accounts;
f. expenditure falling outside financial delegations;
g. the adequacy of financial systems; and
h. any changes required in this Framework Document.
Advisory Group
3.6 In providing advice, the Grade 3 needs to be able to judge the Agency's plans and proposals together with its performance in the context of the Agency's targets. A small Advisory Group with relevant experience in finance, management and horticulture drawn from outside the Department has therefore been established under the chairmanship of the Grade 3 to provide advice relevant to its expertise. The Group's terms of reference are at Annex C. The Advisory Group will not exercise any line or executive functions. The Chief Executive will normally be invited to attend meetings of the Advisory Group.
Delegations to the Chief Executive
3.7 The Agency will be free to conduct its affairs in accordance with the Corporate Plan as approved by Ministers. The Chief Executive has delegated authority over the Agency's finances subject to the limits set out in Annex D. Beyond those limits, or in circumstances which involve unusual or contentious features or significant future commitments, the Agency will consult the Department. If Treasury approval is required, the Agency will normally deal direct with Treasury, keeping the Department fully informed.
Use of Departmental Common Services
3.8 The Agency is responsible for obtaining all services but may, by agreement, obtain them from the Department or through a contract placed by the Department. Such services would normally be on a repayment basis. The Agency may call upon the Department for advice and will not normally be charged for this.
Internal Audit
3.9 The Chief Executive is responsible for the Agency's internal audit arrangements and for ensuring that they accord with the objectives and standards set out in the Government Internal Audit Manual. In addition, the Department's auditors will have right of access to the Agency in performing the work necessary to give an assurance to the Department's principal Accounting Officer. The Department will bear the cost of any such examinations.
External Audit
3.10 The Agency will be subject to external audit by the Comptroller and Auditor General.
4. Pay and Personnel
Status and Conditions of Service
4.1 The staff of the Agency are civil servants on permanent appointment, period contracts or casual terms. They are subject to Civil Service terms and conditions of service except as may be otherwise agreed with the Department and HM Treasury or the Office of Public Service and Science in the interests of the efficient management of the Agency. The provisions of the Principal Civil Service Pension Scheme will continue to apply.
Appointment of Chief Executive
4.2Appointment of the Chief Executive will normally be by recruitment through open competition. The appointment will be made by the Secretary of State for National Heritage and will be for a fixed term which may be extended subject to a performance review.
Personnel Delegation
4.3 Subject to the matters set out in paragraphs 4.4 - 4.6 below, the Chief Executive has full delegated authority and responsibility for:
a.determining the organisation of the Agency and the numbers, grades and functions of its posts;
b. the selection and appointment of suitable staff to fill those posts on permanent appointment, period contracts or casual terms;
c. the personnel management, training and development of Agency staff;
d.compliance with all legal and central requirements in particular those governing fair and open competition, equal opportunities, health and safety, inefficiency and discipline and personnel security.
4.4The Chief Executive will have regard to the Department's policies on staffing and grading, and to any advice received from the Department on these matters.
4.5The Principal Establishment and Finance Officer retains responsibility for the personnel management of the Agency's permanent administrative staff at Grade 7 and above. Changes to the numbers or grades of posts at or above Grade 7 (or equivalent specialist grades) or significant changes in the functions of such posts require the agreement of the Principal Establishment and Finance Officer.
4.6 Departmental and Agency staff will have equal access to promotion opportunities and vacancies for permanent and period appointments, whether they occur within the Agency or elsewhere in the Department. Selection will be on the basis of fair and open competition.
4.7The Department has right of access to the Agency to perform manpower audit work necessary to give an assurance to the Principal Establishment and Finance Officer.
Consultation with Staff
4.8The Chief Executive is responsible for industrial relations and will ensure that effective arrangements are implemented to consult staff and their representatives. The Agency will attach importance to promoting job satisfaction for all members of staff.
5. Framework Document
Review
5.1 The Framework Document will be reviewed jointly by the Department and the Agency on 1 April 1996 or before then by agreement among the Agency, the Department and the Treasury. The Secretary of State or the Chief Executive may propose amendments to it at any time. These would be subject to the approval of the Treasury and the Office of Public Service and Science. Staff and their representatives will be consulted on changes.
Publication
5.2 Copies of the current Framework Document will be available in the libraries of both Houses of Parliament.
Annex A
GEOGRAPHICAL RESPONSIBILITIES OF THE
AGENCY
(i) Areas managed and policed by the Agency
Royal Parks
St James's Park
The Green Park
Hyde Park
Kensington Gardens
Regent's Park
Primrose Hill
Greenwich Park
Richmond Park
Bushy Park
Other areas
Brompton Cemetery
Victoria Tower Gardens
Parliament Square Gardens
Grosvenor Square Gardens
(ii) Additional areas maintained by the Agency
Nos 10, 11 and 12 Downing Street Gardens
Canning Green
St Margaret's Church Green
Poet's Green
Longford River (except in Hampton Court
Home Park)
(iii)Additional areas policed by the Royal Parks Constabulary
Tower Gardens
The Natural History Museum Gardens
Abingdon Street Garden
Hampton Court Park
Hampton Court Gardens
Hampton Court Green
Annex B
MATTERS TO BE COVERED IN THE CORPORATE PLAN
1. The Corporate Plan will be rolled forward each year and will include:
a. the Agency's main strategic objectives and the means and costs of achieving them, including the estimated call on the taxpayer;
b. an appraisal of the previous year showing achievement against targets;
c.an Annual Business Plan for the financial year immediately ahead, including the budget for the year, key external targets set by the Secretary of State and principal internal targets set by the Chief Executive; and
d. a strategy and spending proposals for the three following years, based on alternative resource scenarios.
2. The Corporate Plan will be based on individual plans for each Park, but will be presented as a consolidated plan for the Agency.
3. The following will be covered in the Corporate Plan:
- charging policy and income forecast;
- major events planned;
- initiatives on the presentation of the Parks;
- implementation of the Citizen's Charter;