State of Sutton - A Borough of Contradictions

The State of Sutton: A Borough of Contradictions
Foreword by Councillor Paul Scully Leader of the Opposition, Sutton Council
A report on the successes and failures in different policy areas affecting the lives of Sutton residents.
Summer 2009
Table of Contents
Table of Contents
Foreword by Councillor Paul Scully Introduction Adult Social Services: Transforming The Hidden Service Which Can Affect Everyone Crime, Antisocial Behaviour and Fear Decent Homes: Raising The Bar In Public Housing Education and Young People: Opening the Door of Opportunity to Local Children Borough Wellbeing: Youth Provision, Sport and Leisure Transport, Planning & The Environment: Broad Aims, Narrow Delivery Council Culture: The Council of Contradictions ii iv 1 25 41 55 79 99 139
Acknowledgements
Undertaking the writing of a tome such as this is quite a daunting prospect. It was made very much less so by the assistance of the many council officers and people from Suttons various partner organisations, who gave their time freely in explaining the operations within their departments and the challenges that they face. As ever, they were professional in their approach. We never asked them to step over the boundary into party politics. They never once were doing. Our policy group process is designed to be as party neutral as possible. We have our Conservative principles to apply to the issues, but we are keen to ensure that we are helping to build a Sutton for everyone. Therefore the input from people with a particular expertise or interest but not associated with any political party was invaluable. David Armitage is but one example. A local magistrate, junior football referee and active member of a popular church in Wallington, his extra input was vital. Similarly Mike Whalley, retired director of Microbiology at Great Ormond Street her considerable experience as a long-standing local chair of governors and educationalist. Finally, our thoughts have been put into words by the inestimable Jason Hughes, the Conservative Groups Political Researcher. His meticulous research and patience has made this ambitious project come alive. The footnotes, a particular joy to him, are all his. Careful proof-reading saved his bacon on more than one occasion, but theres bound to be a few mistakes. Thats the joy of sticking your head above the parapet. allowed us to ask questions that with our collective experience, we would not have considered. Jane Pascoe brought did. Tours of departments and field visits were organised and it was clear that they were rightly proud of what they
State of Sutton:
A Borough of Contradictions
Foreword by Councillor Paul Scully, Leader of the Opposition, London Borough of Sutton
I moved to Sutton twenty-two years ago. In that time, Ive moved to Carshalton, commuted to London and Brighton and worked from home. My two children went to local nurseries, ensure that the Council reflects their wishes. We need to ensure that we have the Council and what other Local
looked at all that is good and bad about Authorities are doing that might work in Sutton. This report is the start of that process.
primaries and now two of the excellent secondary schools in Wallington. Like many residents in the Borough, I enjoy
In The State of Sutton: A Borough of
Contradictions, we have reviewed almost every area that the Council touches on, identifying the areas that need further
living here. The location is convenient,
there are many good parks and it is an raise a family. Only the most tribally loyal Liberal
investigation in order to develop a robust strategy to deliver a better service with value for money at the forefront of our in local government. At a time when
attractive place for people who want to
minds. We are entering an austere period Westminster is abuzz with talk of giving has meant that money is unlikely to to do better with less.
Democrat would disagree with the notion that Sutton could still be a far better place to live. Sutton Council benefits
Councils increased powers, the recession follow. So, we need to find fresh thinking
from some very hard working staff and it has become ever more apparent over the last couple of decades that one thing is missing from the jigsaw; a strong political leadership from the lead Boroughs 180,000 residents.
It may be that the Council is not the best example, the relationship with the
organisation to deliver some services. For voluntary sector is strong in Sutton. It may be that we just need to be better organised to address these real concerns. The core overarching contradiction
councillors elected to represent the
It is not enough to take what is given to us by the Council, paying ever higher Council Tax bills to do so and then political establishment.
gratefully tugging our forelock to our
uncovered in this report is that Sutton has limitless potential for delivering a borough that is the subject of envy assets. These include the green characteristics of our suburban around London utilising our natural
Neither is it enough to simply want to manage the Council better than the current administration. Councillors are the strategy of the Local Authority, to
elected by residents of the Borough to set
surroundings, the renowned excellence in our schools, our low actual crime rates, our proximity to London and our relative
ii
Leader of the Opposition, London Borough of Sutton

affluence. However the barrier to fulfilling this potential is the tired political leadership of the Council. Symptoms of this are shown in poorly thought out planning, degrading our suburban reduces the quality of life for our Not everything that the Council does is garden waste fiasco brought together thousands of people from different
Foreword by Councillor Paul Scully
played out in the public eye. The green
backgrounds. Contrast this to the delay to the building of Stanley Park High School that means that the new moderate autistic unit may not be able to take the first eight children in 2010. Assuming that they are educated out of the
inheritance, the high fear of crime that residents, the ingrained inequalities of opportunities for resident pupils, the appalling state of our council housing and the gulf between the Council and local residents in communication.
borough over their remaining seven years at school, the cost to the taxpayer will be more than a million pounds. Often, can have a significant affect on the budget, such is the nature of local factors beyond the control of the Council
This document is also about forward
thinking, meeting the challenges today and reaping the benefits tomorrow. For example, understanding why Sutton is well above the national average for young people with Special Educational Needs; adult social care to promote meeting the challenges of transforming independence rather than over-reliance, as one of the last local authorities to dismantle Victorian long-stay hospitals. All of these issues require bold and
government finance. We need to be of the day.
mindful of this as we address the issues
Sutton Conservatives are ambitious for still and we cannot preserve Sutton in aspic, yearning for days gone by.
the Borough. The world does not stand
However, we must decide on the Borough that we want Sutton to be before we decide what policies to introduce and should resist.
ambitious leadership and being open to
new ideas, not gimmicks, not bluster but to build on here in Sutton. There are
which initiatives and pressures that we
real commonsense action. There is plenty many examples of excellent innovative
This report is the first stage in tackling the ensuing debate will highlight the
thinking in other local authorities. We do not need to reinvent the wheel. Boldness have been several times over the last couple of decades, when Sutton has sought to pioneer projects without due is very different from recklessness. There
these difficult questions and I hope that benefits that have been seen elsewhere in London, and are long overdue here in Sutton.
consideration. Fortnightly bin collections, gas-powered rubbish trucks and the 35 per bag green garden waste collection
were all decisions that had to be reversed in a hurry at great cost to the taxpayer. The controversial 8.5million Sutton Life put in peril by pride rather than logic.
Councillor Paul Scully
Centre risks being another project that is
iii
State of Sutton:
Introduction
Although we have tried to make this report as comprehensive as possible, we have not been able to tackle every issue within these pages. Whether it be whole topics, such as Street Cleaning or particular topical problems like the shortfall of school places in the Borough, we take them just as seriously as the topics that made it into the book. We will conproblems identified. Analysis has been as objective as possible. Politicians can debate our will be treated with caution. tinue to work on them in the weeks to come in order to formulate effective solutions to the differences of opinion, it is a discussion document after all, but we hope that typing errors
The grey boxes within the chapters are additional commentary. There is plenty of leeway as to what is commentary and what is narrative, but you will get the picture as you read on. Please do let us know what you think and join in the debate.
www.changesutton.org.uk
stateofsutton@suttonconservatives.org.uk
iv
Transforming The Hidden Service That Can Affect Everyone
Adult Social Services:
The State of Sutton: A Borough of Contradictions Adult Social Services: Transforming The Hidden Service Which Can Affect Everyone
State of Sutton:
Introduction
The Hidden Service
Adult Social Services accounts for the
Sutton Council should examine how
accessible its services are in this area. It should look at whether it is promoting the services residents are entitled to.
second largest spend in Sutton Council at 71.2million.1 As a local authority, its social care function is an area of huge importance in the Councils work. It is era of very significant transformation, most vulnerable residents. Yet it is a hidden service. It does not also an area of policy going through an affecting the lives of many of Suttons
Personalisation: The Independence and Empowerment Agenda

Independence and choice in adult social care are core themes in the policy changes currently taking place. The 2005
Government Green Paper Independence, Well-being and Choice 2 sets out a vision for maintaining the independence of the individual by providing greater control
dominate local newspaper headlines, nor does it ride rampant in party political glamorous. But it is vital to so many contradiction in our Borough of leaflets. It is not high profile and it is not people. This presents a seemingly core Contradictions, as a low profile service of paramount importance to a significant number of people in the borough.
and choice over how their needs are met. In short, it is intended to be centred on the person.
It also sets out to shape a vision for adult social services with an emphasis on preventing problems and ensuring that the NHS come together on a shared
local authority services and the work of agenda. It also seeks to help maintain the that any risks in attaining greater
Most people will need some kind of adult social service during their life whether care following hospital. Sutton should profile of its hidden service. through age, disability or intermediate examine what more it can do to raise the
independence of individuals and, notably, independence are shared with that individual and balanced against the benefits.
In 2006, this vision was reinforced in the
An additional contradiction might be that as a consequence of its low profile hidden service nature, many Sutton residents who are entitled to social services in this area may be missing out. of their entitlements, lack sufficient
say: a new direction for community services.3 This paper detailed the radical
and sustained shift in the way in which there is greater personalisation. It sets services are to be delivered, ensuring that the goal of giving people a stronger voice so that service-users themselves are the major drivers of service improvement.
White Paper, Our health, our care, our
This may be because people are unaware confidence to access them, or may be too proud to ask for them through fear of stigma.
These shifts in policy are to be welcomed because they aim to present high-quality
1. Figures from 2007/08, from total gross spends of 404.9million. 2. Department of Health publication, 21 March 2005. 3. Department of Health publication, 30 January 2006.

support, meeting peoples aspirations for independence and greater control over their lives, and also making services needs. flexible and responsive to individual will place on adult social services. Sutton
is not immune to this. It is, in fact, on the For example, the closure of long-stay increased the number of adults with
frontline of dealing with the time-bomb. hospital Orchard Hill, in Carshalton, has learning disabilities in community-based needs.5
As a local authority, Sutton is at the frontline of policy and service transformations. It is fortunate to have
residential services, tailored to individual
such hard working and dedicated staff in embracing this agenda, working to make it reality in the delivery of council services.
Because of Britains cradle to grave
welfare system some people will need Suttons budget in this area is for life
lifelong care services. Presently, 20% of long services and 80% is for adult social rising, Sutton Council has a clear costimperative for fostering intelligent
Transforming social care carries a degree of risk but the rewards will be great. the Council will have to become a Promoting independent living means that helping hand rather than a crutch.
care services.6 With the elderly population
commissioning. This can cause frictions eligibility criteria. The policy shift
The Demographic Time-Bomb: Intelligent Commissioning

Commissioning is jargon for how
between what is termed as need against towards personalised services in the
transformation agenda will inevitably have a knock-on effect as to how we commission our services.
Primary Care Trusts (PCTs) fulfil their
duties to provide effective health and local population. It includes
care services that meet the needs of the responsibilities ranging from assessing population needs, prioritising health and services, and managing service providers. The pressures of
4
These are tough choices for any local authority. As the demographic timebomb ticks and the policy ethos of social services modifies accordingly, smarter value from tight budgets becomes critical. commissioning and the maximisation of
outcomes, the procurement of products
commissioning on PCTs vary considerably.
This should be viewed as an opportunity as well as a challenge. Commissioning should be seen as a vital tool in fostering greater independence and the delivering of the personalisation agenda.
The United Kingdoms ageing population has been described as a demographic time-bomb in terms of the pressure it
4. A useful definition can be found at the Department of Health website, see: http://www.dh.gov.uk/en/ Managingyourorganisation/Commissioning/DH_865 5. Orchard Hill was home to over 100 adults with learning disabilities and formed the last of its kind as an oldstyle long-term care hospital. Some adults with complex needs remain in NHS care. 6. Figure provided by Mr Shaun O-Leary, Executive Head of Learning Disabilities, Adult Social Services and Housing, Sutton Council. 17 July 2009.
State of Sutton:
Cherishing Our Voluntary Sector In A Post -Bureaucratic Era
It has too often been the case that local authorities think that they are the only organisations in a position to deliver for voluntary sector organisations succeed not because of it. They do not need to groups and consultations to come up area. Their work, often on shoestring budgets, complements the transformation agenda with the creativity and dedication that characterises the voluntary sector.
elderly or vulnerable residents. Too often despite Suttons local political leadership, wait for Sutton Council committees, focus with answers. They know what needs to the job.
As a local authority, Sutton must examine what more it can do to help our voluntary sector organisations to flourish. They are the engine room of Suttons community and without their input, the consequences would be disastrous for carers.
be done and they just want to get on with
vulnerable residents, their families and
Voluntary sector organisations like the
First Contact With The Hidden Service

The Access Team
Behind closed doors in the Civic Offices,
Sutton Centre for Independent Living and Centre (SCC)8 are critical. SCILLs Learning (SCILL)7 and the Sutton Carers Sherwood Caf in Collingwood Road is an excellent example of an extra facility, which is open to general public as well as service users. The flexibility of SCILL and its staff is obvious and their work is having a beneficial impact on the
tucked away behind the scenes, lives The Access Team call centre. This new team is the first point of contact for adult social services. They deal with issues at source or they signpost them to other available services which do not require assessment. Calls might cover: emergencies via Safe Call adaptations to homes services.
vulnerable adults who use their services, helping to develop skills, independence and confidence. SCC, in its own words, is there to provide care for those who care for others. This Sutton. It provides advice, activities, to have a life of their own. organisation works for and with carers in health and social events to enable carers
requests for occupational therapy (OT) assessments of need for adult social
The rise of voluntary organisations like SCILL and SCC signifies one of the last death knells to a bureaucratic era.9
Calls are entered into the Paris computer handled by the Access Team are shown below in Figure 1. Over a three month period since April 2009, the volume of
system. A breakdown of the types of calls
We support the powerful contribution of voluntary sector organisations in this

8. See: www.carers.org/sutton
calls dealt with through first contact at
source or signposted to other available
7. A registered charity, and part of The Princess Royal Trust for Carers, see: http://www.scill.org.uk/ 9. We will examine the concept of the Post-Bureaucratic Era and its significance for the London Borough of Sutton in the Council Culture chapter.
Transforming The Hidden Service That Can Affect Everyone Figure 1.10
Access Team Calls June 2009
Children Social Services Safe Call Info and sign posting 40% 43% Sign posted to assigned worker
10%
7%
services has risen. Safe Call has also increased.
service needs can be adequately logged, signposted and dealt with in different departments.
The number of calls solved at source at
first contact have increased from 68% to early days and data is evolutionary, indicate that as the Access Team becomes more established, its
72% from April to June. Although it is still preliminary call volume data seems to
Equipment Services) forms the largest
OT and ICES11 (Integrating Community
part of the Access Teams referrals using the Paris system, as shown below. Figure 2 shows the trends from the older system which had duty desks (Social Worker First Contact, East and West District and Learning Disabilities). It shows an
effectiveness in dealing with issues at for other services) is increasing. The Access Team brings a more holistic
source (without the need for signposting
incremental decrease in the number of referrals in the East and West districts, and in OT/ICES, since the transition to a
approach to dealing with first contact social services calls so that different
united Access Team. This coincides with
Figure 2.
Trends Analysis All Referrals Oct 08 - June 09
700 600 500 400 300 200 100 0 Oct- Nov- Dec- Jan08 08 08 09 Feb- Mar- Apr- May- Jun09 09 09 09 09 First Contact East West OT/ICES Learning Disabilities
10. Figures provided by the Access Team on 10th July 2009. 11. ICES is a Department of Health funded initiative across health and social care to develop community equipment services in England to remove unnecessary barriers for users and to modernise services.
State of Sutton:
A Borough of Contradictions Figure 3.

2008-2009 Comparison of End of Month OT Waiting Lists
180 160 140 120 100 80 60 40 20 0
Waiting List Numbers
159 136 101 99 108
158
2008 2009 45 43 39
60
Feb
Mar
April
May
June
Months 2008 vs 2009
the rise of calls being solved at source since April 2009. The OT/ICES services can help disabled point.
12
The creation of the Access Team is a step in the right direction. Its 96% Good the Access Teams professional and motivated staff. Speedy resolutions need of adult social services. Any caller satisfaction rate is a reflection of
residents stay in their homes after crisis home such as handrails, a level-access shower, a stair lift or a ramp for wheelchair use.
13
It can include adaptations to the
improve the quality of life for residents in measure which gives residents a quicker solution to their problem is good news.
These early results are encouraging because the figures show that the amount of referrals is reducing in the ICES referrals. This is happening
The Hidden Service: Why Transform It?

Demographic Time-Bomb Disposal
The demographic time-bomb facing Britain is ticking. Our advances in healthcare, public health and society
East and West districts, as well as for OT/ concurrently with the increasing numbers of caller issues being solved at source their issue. thus giving callers a quicker resolution to
OT services are invaluable to residents. residence in the traditional home.
They help to maintain independence and Performance data for OT end of month waiting lists also shows impressive improvements with the establishment of the Access Team (shown in Figure 3.).
changes mean people are living longer.
Expectations of what is needed to live a been higher. Life expectancy has
dignified and independent life have never increased dramatically with the number of older people doubling since 1931. Between 2006 and 2036, the number of
12. This is a term used by social workers to define the point at which a vulnerability/disability takes place creating a social service need. 13. Useful definitions can be found here: http://www.independentliving.co.uk/ot.html

people aged 85 plus in England is projected to rise by 180%, from 1.055million to 2.959million.14 Current
Dual ImperativesResources and Independence

In diffusing the demographic time-bomb, let us first look at resources. Local government is already feeling the
figures for Sutton show that 19% of the population is aged 60 plus. This is expected to rise to 21.8% in 2026.
15
With an increasing part of the population living a lot longer, conditions such as of children with complex disabilities surviving well into adulthood. The dementia will rise, along with the number
budgetary pressures; a recent survey
from the Local Government Association authorities (84%) are facing additional costs for 2009-2010 as a result of demographic change, equating to an
(LGA) shows that a large majority of local
projected numbers of people aged 50 to rise by 53% by 2021.

16
plus with learning disabilities is expected is likelihood that the comparable rise will be higher because of the closure of Orchard Hill and Suttons above average percentage of young people with learning disabilities.17 Local authorities are having aspirations of an ageing population, to change in order to meet the needs and providing them with the best opportunity possible. In Sutton, there
average of 1.715million per authority.18 Sutton faces the same challenges and is simply unsustainable. changing accordingly. The old system is
Secondly, prevention is better than cure. Sutton Councils high level vision provides that the emphasis should be on
and support to live as independently as is
Depending on the individuals level of need, the tailoring of services or preferable for people to live as personalisation provides that it is independently as possible in their own homes. In turn, this also enables the maximum support and resource
enablement and early intervention to promote independence rather than involvement at the point of crisisTo achieve this sort of transformation will mean working across the boundaries of social care with services such as housing, benefits, leisure and learning, transport and health.19 The old social work concept of Care Management is no longer
deemed appropriate. The emphasis is now on people taking control of their
lives through self-directed care. Thus with early signposting and prevention, their crisis point and therefore find assessment to maximise their independence. people with needs will be able to avoid themselves better prepared for a needs
allocation to go to those with the greatest need. Personalisation has dual strategic imperatives; firstly, the effective use of independent living.
resources and secondly, the promotion of
15. Sutton and Merton PCT: Joint Strategic Needs Assessment, Nov 2008. 16. Ibid.
14. Local Authority Circular, Department of Health. LAC (DH) (2008) 1, 17 January 2008, p.3.
17. 7% of Suttons school population have a Statement of Special Education Need above the national average of
3%. SEN Statements have a wide spectrum of needs, widely varying in severity and complexity. See: Reducing Reli(DfES Research Paper) 11 February 2004
ance on Statements: An Investigation into Local Authority Practice and Outcomes, Anne Pinney, Audit Commission,
18. LGA, April 2009.
Executive Report, December 2008.
19. High Level Vision for Personalisation in Sutton (Version 3.0), Adult Social Services and Housing, Sutton Council.
State of Sutton:
Personalisation: Suttons Route To Independent Living?

our say: a new direction for community services, summarises personalisation as
tailoring services to the needs and preferences of service users. The overall The Green Paper, Our health, our care,
live their lives as they wish without the heavy handed control of old fashioned care management.
vision is that the state should empower citizens to shape their own lives and the services they receive.20 Service users can
In practice it means re-examining the Sutton Council as a service provider.
relationship between the service user and Service users shape their own care model models. The person becomes the centre of the service. Service users will receive support from Sutton Council staff to design their own support and care
The purpose of direct payments is to give recipients control over their own life by providing an alternative to social care services provided by a local council. A financial payment gives the person flexibility to look beyond off-the-peg service solutions for certain housing, employment, education and leisure activities as well as for personal assistance to meet their assessed needs. This will help increase opportunities for independence, social inclusion and enhanced selfesteem. 21
It is intended that the users of adult
freed up from professionally devised care
social services will become empowered by the use of direct payments, enabling them to choose, independently, what they will spend their budgeted money on. It is on the professionals employed by the intended to reduce service users reliance State to determine, in lieu of the client, resources should be used. As stated
arrangements based on that which suits them best. Care planning is therefore shift brings in directional control of unified with the service users. This policy resources by the service user. Direct
what care services are required and how above, this signifies a re-examination
payments and individual budgets are how service users will have that resourcebased control over their care services.
and a readjustment of the individual and the Council, as an organ of the State. The role of a local authority is shifted to that of a facilitator for services through the administration of direct payments.
Direct Payments: An Empowering Alternative To Social Care?

Sutton Council has a duty to administer
Care Services for Carers and Childrens Services (Direct Payments - England) Regulations 2003. The guidance
accompanying this item of secondary legislation states:
direct payments under the Community
This philosophy is to be welcomed
because it empowers individuals and
forms a route to independent living. To the terms of the Social Contract are being rewritten.
use a term often used in political science,
In reducing the reliance of service users
on Sutton Council, the quality of life of its

21. Direct Payments Guidance: Community Care, Services for Carers and Childrens Services (Direct Payments) Guidance England 2003 20. Our health, our care our say. 2006

clients will increase because of greater independence and self-enhancement. The deprivation of liberty that can services is therefore reduced. accompany the need for adult social Sutton Council considers all applications for direct payments but currently people below on the Department of Healths eligible for direct payments.25 who are assessed as Medium Low24 or
adult social care eligibility criteria are not
An individuals need for adult social opportunity and ability to live an independent existence.
services should not deprive them of the
Clients with direct payments can choose to use them for a combination of services, for example direct payment for home care/personal assistants and the provision of a day centre place. Sutton
According to Sutton Councils Direct are eligible to receive payments:
Payments Policy,22 the following people
Council assesses whether the allocation cost effective as the directly provided
of direct payments to clients is at least as service otherwise arranged. For example, administering direct payments for home care to avoid higher residential costs. The dual imperatives of cost and long-term calculations.
1. Older disabled people aged 16 years
and over who qualify for Fair Access with any kind of impairment, and people disabled by illness (for
To Care Services.23 Defined as people
the long-term value will be considered in
example, this includes mental illness, arthritis and HIV/AIDS). The disability may be short-term as well as longterm.
independent living can be met by such
2. Carers aged 16 and over who provide or intend to provide a substantial amount of care for someone aged 18 or over where the council is satisfied that the person being cared for is eligible to receive community care payments in respect of services to themselves but not for services in
In keeping with the emphasis of choice pool their direct payments.
and empowerment, Suttons clients can
The assessment process for a direct assessment of need.26 This includes
services. Carers may receive direct
payment is conducted through a normal financial and risk assessments. This is followed by developing a written plan the identified needs of the client, detailing care services designed to meet accompanied by a discussion with them to receive via direct payment. Once the care plan is agreed, the level of direct then administered through the Adult
3. To be eligible for direct payments a person must be willing and able to manage direct payments (alone or with support) and must also be willing to set up a separate bank account for direct payments for audit purposes.
respect of the person they care for.
regarding the type of services they wish
payment is sought from a manager and
23. Fair Access To Care Services Guidance on eligibility criteria for adult social care, Department of Health, 1 January 2003. 24. Ibid. See eligibility criteria, pp.4-5. 26. Section 47(1) National Health Service and Community Care Act [1990]. 25. Direct Payments Policy, p.6.
22. Direct Payments Policy, Adult Social Services and Housing, Sutton Council, Version 4, January 2009.
State of Sutton:
Social Services finance team to the account.
clients separate or nominated bank
Case Study: The Kent Card, Kent County Council

Conservative-run Kent County Council Kent Card. has embraced direct payments with the
The inclusion of the client in the
assessment of direct payments is
encouraging. After all, it is for their care. The rates of pay for personal assistants is set by the Council and reviewed annually. Personal assistants are employed by service users via direct payments.
Working with the Royal Bank of Scotland, it has produced the card to administer direct payments for individuals thus removing the need for cash, bank accounts, cheques or any other
Specialist skills for personal assistants remuneration rates on an individual
may be taken into account when setting service user basis. Round-the-clock
paperwork. The Council loads the Kent Card with the agreed direct payments can then top-up their card with any additional contributions.27 funds for the client. Kent Card holders
respite care can be funded through direct payments but for not more than four services can be purchased via direct nursing home services cannot. weeks in any two-month period. Day payments but permanent residential or
It is still early days for the direct
payments scheme as a part of the
personalisation agenda. Any scheme
which promotes independent living to increase the wellbeing of clients with adult social service needs is to be encouraged. The Kent Card is VISA associated and can be used in over 20 million outlets worldwide and in nearly 850,000 in the United Kingdom, online and over the telephone. All Kent Cards are protected with Chip and PIN technology, which cardholders
There are risks associated with
independent living arrangements like
direct payments. It signifies the removal of a crutch to clients from a centrally its replacement with a helping hand. This means that the Council and its planned and administered care plan and
will be asked to use when making face to association with Verified by Visa, thus
face transactions. It is also RBS Secure in enhancing security online when making
clients should be risk aware, not risk averse. Independence carries risk but the rewards are great.
purchases with participating merchants.
27. Guide to Kent Card KCC Administrator Guide Version 1, November 2007.
10

The card circumvents some of the
problems associated with typical direct
Throwing Away The Crutch: Risk Aware, Not Risk Averse

The public sector is often accused of being culturally risk averse. Recent research shows that public sector
payments including complex and costly and the difficulty and anxiety for some clients in opening and maintaining conventional bank accounts.
record keeping, the auditing of accounts
The card provides an audit trail, giving the local authority greater structural control over the finances and seeing that
employees have a lower risk tolerance This is particularly the case when service area in question.
than their private sector counterparts.29 financial planning is at the heart of the
funds are properly spent. It is easy for the client to use, and they can even nominate a secondary cardholder to support them in the use of the card. Cardholders
experience reduced dependency on care managers to manage finances and care plan expenditure.
As the need for intelligent commissioning grows and cultural frameworks adapt in order to accommodate it, financial planning finds itself at the heart of the provision of adult social services in Sutton. The policy shift and service
The Kent Card scheme has notable convenient and secure method of
benefits for individual cardholders. It is a receiving direct payments. The card reduces dependency and gives the their allocated money is spent. individual choice and freedom over how
delivery changes in adult social services do not lend themselves to traditionally risk averse cultural predispositions in local government social care services. The fear of failure in traditional care services can paralyse much needed reforms and service improvements in
The scheme carries benefits to Kent The use of the card, with its ease of payments more attractive to more people.
28
County Council as the service provider. access and convenience, has made direct With less paperwork, not only
short, trying new things. Public services fail daily in a variety of different ways, for example, failure to prevent crime and the fear surrounding it, family breakdown, persistent unemployment and other social problems which face our
is bureaucracy reduced for the service user, it is also reduced for the local
authority in administering the scheme. Sutton should look closely at this imaginative way of delivering the learn from the Kent Card. personalisation agenda to see what it can
community. But without an agreement among decision makers, political or responsibility for bold decisions to administrative, to accept risk and take improve our council-provided services, needed change will not take place as effectively as it could and should.30
28. Presentation made by Jean Penney, Project Manager, Independent Living, Kent County Council, to the Smart Card Networking Forum 2nd May 2007, Wolverhampton. 29. Evidence of lower risk tolerance among public sector employees, Michael J Roszkowski, John E Grable, Journal
Paper No.5, Conservative Party, June 2008, pp.63-64.
30. See: 5.6 Risk Aversion in A Strong Society: Voluntary Action in the 21st Century, Responsibility Agenda, Policy
of Occupational and Organisational Psychology, Volume 82, Number 2, June 2009 , pp. 453-463.
11
State of Sutton:
A positive attitude to risk and decision making is at the heart of transforming our social care services. Assessments of need, under the National Health Service and Community Care Act, can carry life-long cost burdens as a
Even a Department of Health guidance need for a good approach to risk in order to meet the personalisation
consequence of a cradle-to-grave welfare state. In effect, one piece of paperwork can cost millions of pounds and can lock the client into a lifetime of dependence on the Council. There can be frictions demonstrable need. At worst, an overemphasis on eligibility can inadvertently form a crutch to some between eligibility for services and real
document acknowledges that there is a
A Guide to Best Practice in Supported Decision Making 31 says:
agenda. Independence, Choice and Risk:
The governing principle behind good approaches to choice and risk is that people have the right to live their lives to the full as long as that does not stop others from doing the same. Fear of supporting people to take reasonable risks in their daily lives can prevent them from doing the things that most people take for granted. What needs to be considered is the consequence of an action and the likelihood of any harm from it. By taking account of the benefits in terms of independence, well-being and choice, it should be possible for a person to have a support plan which enables them to manage identified risks and to live their lives in ways which best suit them.
The fear of failure has previously become paralysing in local government and it must not do so here in Sutton. The
clients and an aversion to the inevitable, yet healthy risks that come with more independent living.
The Council should be a helping hand to the client wherever possible. It should rather than risk averse, thus enabling them to shape their own destinies through independent living. ensure that the individual is risk aware,
The Council should lead by example and be risk aware rather than risk averse. Sutton is fortunate to have forward-
thinking staff who fully understand the
need to embrace personalisation and the helping hand rather than the crutch role for Sutton Council. In transforming social care services, there is a huge role for the market to play. Bureaucratic in-house care management
determination of elected politicians to avoid having to save face can cost the services. In achieving the personalisation agenda, Sutton Council must have a realistic and its clients. proportional attitude to managing risk for Councils clients improvements to their
services are not as competitive at driving as flexible private sector market forces. The Governments reform model32 highlights key roads for the implementation of the personalisation
down costs and promoting independence
agenda, designed to achieve the goal of better care and support in adult social care, see Figure 4.
31. Executive Summary, 21 May 2007, pp. 1-2.
32. Local Government Circular (LAC DH 2008 1) & Our health, our care, our say (2006).
12
Transforming The Hidden Service That Can Affect Everyone Figure 4.
Shaping a flexible market for social care provision is a key to the personalisation agenda. It will enable greater choice for
Clients who are treated as consumers/ that they lacked with the old-style the care management culture.
customers will have the power of choice controlling model for social care under
the independent client as well as helping to tackle the budgetary pressures which accompany traditional care management are expensive. Managed risk through a social services can make significant
services. Low risk in-house care services more business-focused approach to adult savings as well as helping the client off the social services crutch. Intelligent commissioning will help to shape a social care provision. A market-
Often, when people find themselves
coming to the Council for adult social
care services it is a last resort. The point of crisis at which a need becomes clear has been described by frontline staff as achieve the aims of transforming social care at this point of bereavement by becoming a helping hand in utilising the benefits of a localised social services bring. market and all the choices that it can akin to bereavement. The Council can
strong, varied and flexible market in orientated business-like approach to the management of care services that uses be used to drive up the standards of Suttons adult social care services. choice and a consumer-based focus, can
William Beveridge came to describe the attitude of the welfare state as giving a
13
State of Sutton:
man with a broken back a crutch because needs to throw away the crutch for as all it sees is the limp.
33
Sutton Council
alike have said that despite Sutton
providing a good service they feel kept being adequately disseminated in general.35
many clients as possible, and by mending the broken back of reliance, clients will and less. need the crutch of care management less
in the dark with a lack of information
Inadequate communication with staff and clients can prevent the personalisation agenda from filtering down to those who would most benefit from its changes. If potential clients are not adequately made aware of their entitlement to social care services, they are not empowered as of the personalisation agenda.
A key obstacle to Sutton Council offering itself as a helping hand in the provision of adult social care services is breaking and communicating entitlement.
down the stigma attached to the service
Promoting The Hidden Service: Tackling Stigma And Communicating Entitlement

Whether we like it or not, adult social services is not always accessible to those a stigma and many people are simply
individuals. Empowerment is at the heart
Both stigma and poorly communicated entitlement pose challenges to the accessibility to adult social services for residents. The Council must do all it can to break down stigma and to promote can help to achieve this. accessibility. The simplicity of messages
who need it. For some, the service carries unaware of their entitlement to services.
Adult social care professionals in Sutton have told us that there needs to be simplification in how personalisation
The language of social services has been embedded into its framework.34
described as having stigmatising content
services are offered. As outlined earlier,
the point of crisis, at which a disability becomes apparent and the need for care arises, can have much of the emotional hallmarks of bereavement. One
Social stigma can prevent disabled people from claiming what is entitled to them through pride particularly among older
people thus impeding care services and consequently having a negative impact on their quality of life.
a disability is like a bereavement, and the last thing you need is a pile of booklets and paperwork to deal with. The Council
should therefore make this point of crisis and to overcome.
professional at SCILL told us: Learning of
Staff surveys commissioned by the
as easy as possible to come to terms with
Council have found that many within and without Sutton Council feel that they do not know what is going on with the
Professionals working for Sutton Council and in the voluntary sector have told us
current pace of change. Clients and staff
34. Choosing Language: Social Service Framing and Social Justice, Dr. Colleen Vojak, British Journal of Social Work, (2009) Volume 39, pp. 936-949. 2009 Executive Summary. 35. Social Care Focus Groups 2009, Research Report by Westminster Council, London Borough of Sutton, March
33. William Beveridge, 1st Baron Beveridge, closely associated with the development of the welfare state.
14

that jargon often scares clients and staff alike. The staff survey indicates that communication and briefings are needed on an increased scale. But we need to remember that these are trained, This is a step in the right direction, but the Council should do more to make adult social care services more accessible to those who need them and to those and fear of stigma. who may be avoiding them through pride
dedicated and experience staff who still clients themselves? Jargon was even described by one very experienced real fear factor for clients.
find the jargon frustrating, so what about
The Council must realise that such packs some residents, especially those coming personal point of crisis.
can be daunting and even intimidating to to terms with their disabilities after their
voluntary sector worker at SCILL as a very
Home visits from care support officers
provide information and explanation on services like direct payments, financial monitoring and brokerage support. This to address some of the more daunting clients, for example, the personal
The Council needs to realise that there unaware of its existence. In turn, the
are many residents who need care but are Council is unaware of the people who more comprehensive ways of raising
kind of personalised service can also help implications of personalisation for some management of finances via direct
need care. It needs to look at better and awareness of the availability of adult care services, thus improving accessibility. It should be noted, however, that it should be a safety net rather than a fishing net.
payments. Some social services clients, controlling care management, find it
many of whom will have been reliant on difficult to cope with such changes and will still require more traditional social services direction.
Transforming Social Care: The Views Of Staff And External Clients

The Councils personalisation staff survey provides valuable insight into how the transforming social care agenda has performed in the eyes of staff and clients.37 The key findings illustrate: A lack of information in general. Positive attitudes to change, but than just theory. practical examples are needed rather
The Council has to accept that to many
residents, this truly is a Hidden Service. A significant number of people are simply as a consequence are unknown to the Council. One resident has told the Council: A lot of people are just not unaware of what is available to them and
together a new Adult Social Services & The pack contains eight booklets
known to social services at all, but badly need care.36 The Council has put
Housing Information Pack for residents. explaining services such as Safeguarding Vulnerable Adults, Direct Payments, Fair Vision and Hearing Services.
36. Ibid, p.10.
Staff criticisms of correct job security.
implementation and uncertainties for
Access, How to Get Help For Others, and
Staff would like more training.
More support needed from managers.
37. The staff survey consulted over 100 staff and 25 external clients. The focus grounds are not designed to be statistically reliable but rather to produce a sounding board for ideas and for discussion.
15
State of Sutton:
The majority of views expressed by staff indicated that there is a perception that the new policy arrangements will tailor and that the client would have greater the service more to the individual client control over his life, but that the sheer work in practice caused worry. of staff said that Sutton had previously
They dont consult people who are at the frontline of change.

It was felt that information was not circulated effectively and that this impeded the creation of a consistent core message. One employee even went as far as to say that Sutton Council was Disastrous on some changes.
been Not good at managing change.
logistics of the agenda and how it would
There were some specific criticisms on were on the personalisation changes, facing questions from clients.
how well briefed frontline staff felt they because it is frontline staff who will be
Understanding Change
The perception of poor communication means that some staff do not feel as the current changes. As highlighted employee said: though they know what is going on with earlier, they feel kept in the dark. One
Frontline staff need to be fully briefed on the personalisation changes. They are at the coalface of service delivery. They to handle queries from clients. must be in a positive, informed position
Change Needed
The survey found that the staff felt that service, change was needed. Many felt
despite Sutton Council providing a good that bureaucracy was an issue, with one
big muddle. Another staff member complained: They want us to spend a lot of time in an office-based situation rather than being with the service that needs your input. 38 Target driven
bureaucracy was seen as unhelpful, with staff favouring more emphasis on instead.
39
participant describing the situation as a
government has sent are these directions down and Sutton has to comply with them, but as far as I know thats as far as Ive got. Ive got absolutely no idea the effect on me personally and thats my biggest concern.40
Some employees described themselves as some think that managers themselves dont fully understand the changes. bewildered at the changes and that
It seems very general. What the
providing a good standard of social care
The views of staff are very important. They are the people spearheading personalisation on the frontline. Senior staff in the Adult Social Services and Housing department (ASSH) should look into holding regular or semi-regular focus groups, similar to those carried out by Westminster City Council earlier this year.
Experience of Change
Staff members have mixed views on how and a degree of suspicion dogged the
38. Staff Survey, p.3. 39. Ibid, p.4. 40. Ibid. p.4.
changes had been carried out in the past changes currently underway. A member
16

Staff concerns over their difficulties in changes had not got off to a very good
understanding the changes are reflected worker commented: Im not clear at the
in their concerns for service users. A care
start and that more needed to be done to understand more about certain groups, for example older people, so that needs. changes can be shaped around these
moment how its going to work for people that dont have the capacity to manage their finances and to orchestrate their care plans. Another said they thought
there would be greater risk of financial changes. The concerns were primarily built up many years of reliance on therefore find it difficult, if not changes. abuse as a result of the personalisation focused on older clients who may have prescribed care management and would distressing, to deal with some of the
This is an important element of the
personalisation agenda. The goal is for person centred care plans. Understanding the needs of certain groups is essential. Similar to our suggestion with staff, the social care focus group exercises to evaluate clients perceptions and
Council should look into regular, planned
experiences of personalisation changes. This can be used as a type of market of a flexible, varied and strong local
The goals of the personalisation agenda are worthy and demonstrate a huge cultural shift in the provision of adult
testing for services in the development market for adult social care services. Every decent business knows its
social care. But we need to remember changes easily and that some are
that some clients will not adapt to the dependent on more directed care
customer base. With the Council acting as a helping hand through the provision of should use direct communication with clients, through focus groups to understand priorities. This will then direct payments and Individual Budgets it
management. This is particularly the case for older residents. These different abilities to cope with change need to be ingrained into the Councils work in this area.
enable the Council to shape a strong local market according to these needs.
Frontline staff are telling us that not
everyone can cope with independent
living via the personalisation changes.
External Clients
The general opinion of surveyed external clients placed an emphasis on the link training. Some clients thought that between the quality of care provided and changes were being made because of financial implications rather than an increase in provision.41 From the client
41. Ibid, p.10.
perspective, there was a feeling that the
17
State of Sutton:
The Second Hidden Service: The Voluntary Sector Case Studies

There is a second Hidden Service in the world of adult social care in Sutton. The eye, but works tirelessly to provide
rather than a traditional day centre. In registered charity. Since then it has flourished from only providing day
1996 it became fully independent as a
services, to providing numerous services designed to help people with disabilities live full and independent lives.
voluntary sector is often out of the public support services to adults with social care needs and those who live and work with them every day. Many of us will never encounter their services, but for a a life-line.
The Centre provides courses and activities for disabled local residents to them to learn new skills to gain achieve personal goals, and encourages independence. Courses and activities include computer classes, a fully accessible gym, individual cooking pottery and art.
significant number of residents they form
sessions, creative expression, craft,
Sutton is fortunate to have such a vibrant voluntary sector as the beating heart of our boroughs civil society. The British Sutton. The Sutton Centre for the Voluntary Sector (SCVS)42 is an
SCILL offers a comprehensive range of
tradition of voluntary action is strong in
support, including a payroll service and a financial administrative service (FAS) for people who find it difficult to open a to handle the finance side of direct bank account, or those who choose not payments. It offers a Person Centred
organisation which we can all truly be proud of. SCVS works to promote a in our community. innovative and effective voluntary sector
Planning (PCP) service. Several Sutton learning disabilities to help shape
Council employees work with people with achievable plans for the future, in order structured plans.
Two voluntary sector organisations, in
particular, are having a very real impact for adults with physical and/or learning disabilities, these are Sutton Centre for and the Sutton Carers Centre (SCC). Independent Living and Learning (SCILL)
to realise goals and aspirations through
Representatives from the Conservative Group have visited the centre in Robin Hood Lane. What they saw was highly learning disabilities, who himself
Case Study: Sutton Centre for Independent Living and Learning (SCILL)
SCILL was set up in late 1994 by Sutton Council, following consultation with disabled adults who asked for a centre which would promote independence
42. See: www.suttoncvs.org.uk
impressive. They met Charlie, a man with volunteers at the SCILL-run Sherwood Caf. Charlie serves tea and coffee to customers and helps out in the kitchen. The caf is open to disabled adults as well as members of the public and it was clear by the volume of customers that it the caf has turned a 3000 profit. was popular. In the 2nd quarter of 2009
18

Councillor Paul Scully met members of personalised planning model had
the PCP team who told him that the new achieved excellent results. One member of staff told Paul how one of his clients had woken up after spending literally
Case Study II: The Sutton Carers Centre (SCC)

The definition of a carer is someone who, without payment, provides help and who would otherwise be unable to disability. support to a friend, neighbour or relative manage because of frailty, illness or
years of sleeping through his day services in the corner. Now, through PCP, he was awake and alert with a plan to realise his personal aspirations by learning skills to foster his own independence. The transformation was described as
amazing. Conservative visitors also saw

a painting class in progress with adults in painting and etching. enjoying the supervision of trained staff
Most carers would not recognise
themselves under the term 'carer'. They are just people trying to cope as best they can while helping to look after
someone who needs their help. This is where SCC steps in. The stated aim of SCC is to care for those who care for
It was obvious that the staff at SCILL are deeply motivated and enthusiastic about what they do. It was disappointing that some staff members told us they felt
others. It can often be the case that

carers have an undiagnosed and
much more could be done by the Council to break down bureaucratic barriers and jargon and overly technical and formal
unrecognised need for care themselves. events to help carers live a life of their own.
SCC provides advice, activities, and social
red tape for example, the heavy use of
meetings, in order to help SCILL to work closer with the Council. Staff members told us that they felt as though they were outsiders at some meetings because of the use of impenetrable jargon.
SCC provides carers, young and adult, a place to go with voluntary sector professionals to talk to. During a visit to the Centre in Benhill Avenue, Councillor for advice. The carer had reached her Scully met a carer who had come to SCC breaking point because her husbands
In short, SCILL is the voluntary sector avatar of the personalisation agenda.
alcoholism had recently deteriorated. She was her husbands carer despite being wheelchair bound herself.
SCILL provides an invaluable service to
the people of Sutton who need their help; they do so on shoestring budgets and on their own initiative. The least the Council can do is to live up to its partnership more accessible for this jewel in our voluntary sector crown. working credentials and make meetings
SCC advice, information and support services cover a wide range of topics including money matters, assessments, much more. SCC has a Young Carers
aids and adaptations, carers respite and Service Manager who provides a focus on young carers too. The Centre also runs a free benefits check service to see that
carers and their cared for43 are receiving

43. The term for the disabled person cared for by the carer.
19
State of Sutton:
the right levels of financial support. A welfare benefits specialist from the Citizens Advice Bureau is available at the Centre weekly to advise carers of their entitlements.
Case Study Conclusions: Voluntary Sector

The Engine Room of a Post-Bureaucratic Approach
Our look at the voluntary sector in Sutton has not been all-pervasive but, instead, has been an attempt to show that the
hard work of our voluntary sector is the
engine room of Suttons civil community. Conservative Leader David Cameron has said that the old politics of controlling centralisation and bureaucratic
neatness44 is simply not working. He is

Sutton Carers is one of 144 carer centres across the UK, part of a network created in 1991.
right. In May this year he set out his
vision for a wholesale re-examination of
how we approach voluntary action in our State accordingly. He wrote:
As has been outlined earlier in this
public services and the relationship of the
chapter, too often residents fail to claim awareness or through stigma. The SCC staff have shaped a comfortable and seek advice.
their entitlements either through a lack of
understanding environment for carers to
Unclaimed benefits like a carers
allowance, disability allowances, pension credit, council tax benefit, income support, housing benefit and working tax credit can make a real difference to the for. quality of life for the carer and the cared
SCC make a large contribution to the
quality of life of carers and consequently those receiving care in Sutton. However, unfamiliar with the SCC and the helpful are simply missing out. we still do not know how many carers are services it provides, and how many carers
[T]he argument that has applied for well over a century that in every area of life we need people at the centre to make sense of the world for us and make decisions on our behalf simply falls down. In its place rises up a vision of real people power. This is what we mean by the PostBureaucratic Age. The information revolution meets the progressive Conservative philosophy: sceptical about big state power; committed to social responsibility and non-state collective action. The effects of this redistribution of power will be felt throughout our politics, with people in control of the things that matter to them, a country where the political system is open and trustworthy, and power redistributed from the political elite to the man and woman in the street. 45
44. Speech made by The Rt Hon. David Cameron MP, 12 May 2008.
45. A new politics: The post-bureaucratic age, The Rt Hon. David Cameron MP, The Guardian, Monday 25 May 2009.
20

Strengthening a vibrant voluntary sector as enshrined in the laudable aims of the Sutton Centre for Voluntary Services is shift from the inflexible notion that we have to wait for our local council or a government department to give us the with vulnerable adults know what the need to tackle them. The concept of It is clear that a reduction in bureaucracy and the ability to turn and retain a profit would be a valuable tool for Suttons sector. adult social services-based voluntary
real people power for Sutton. It signifies a
solutions to problems. Volunteers dealing problems are and they know what they moving out of a bureaucratic era of topdown administration has particularly adult social services in Sutton. strong ramifications for the provision of
It is our contention that there is more that the Council can do to help the voluntary sector. There has been talk of a Voluntary Sector Hub for some time, but this proposal has not come to fruition. Conservative-run Thurrock Council
provides such a hub, called The Beehive Centre. Such a hub would bring most, if not all, of Suttons voluntary sector
A strong and vibrant voluntary sector is a key component in delivering the personalisation agenda. The Council
organisations under one roof. At present organisations are sprinkled over many different venues across the borough in an uncoordinated and haphazard way.47 The preference is for geographic hubs of activity to have shared premises.
works in partnership with the voluntary
sector in this area but feedback received Council is somewhat impenetrable in
by us indicates that the institution of the some areas and that, for example, the could be.
Once again, the Conservative Party has
shown its commitment to increasing the
scrutiny process is not as accessible as it
strength of the community and voluntary sector through more devolved control of community assets. A voluntary sector hub in Sutton would be such an asset. provide such a site with a low or
Nationally, the Conservative Party has stepped up its commitment to the voluntary sector and its enormous
The Council should look at whether it can peppercorn rent. The Carers Centre, for example, would benefit from such an arrangement, as would others paying market rents.48
contribution to the provision of services on behalf of local government. The Shadow Charities Minister has announced that a Conservative Government will enact reforms to radically cut
A hub, bringing all services under one comprehensive and accessible roof, would not only benefit the financial viability of our voluntary sector
bureaucracy and to allow voluntary sector organisations, which are charities, to make a profit from public sector contracts.46
organisations, but would be a key way for the work they do.
Sutton Council to show its appreciation of
47. Building effective local VCS infrastructure: the characteristics of successful support for the local community and voluntary sector, Final Report, Rob Macmillan, Sheffield Hallam University, June 2007, p.4 48. This is a problem identified by the Quirk Review. See: Making assets works: The Quirk Review of community management and ownership of public assets, May 2007.
46. Speech made by the Honourable Nick Hurd MP at a Russam-GMS hosted event, Wednesday 13th May 2009.
21
State of Sutton:
Conclusion
Most people will need some kind of adult social care at some point in their lives. In Sutton, the cost of providing these services is eclipsed only by one other
Direct payments are giving service users a tool to shape their own care and when they want. purchase the services that they want,
budget - education. For many, social care is a Hidden Service, but for some it is life. very visible and vital to their quality of
This report has sought to outline some of the challenges posed by the United Kingdoms demographic shift to an
Independence and choice can lead to a real improvement in quality of life.
increasing ageing population. The oldfor adult social services is simply
style controlling care management model unsustainable for the future, both in independent living.
Of course, there are teething problems
and there are risks involved but staff and client surveys show that service users, on to choose the best care and services for themselves and frankly, who better to the whole, want the fundamental freedom
financial terms and that of hindering
The contradiction in the expensive care noble intentions of the care model it actually hampered the welfaregreater independence through
management model is clear: despite the
make those decisions? Moreover, we are changes and are using them in very
told that some clients have embraced the creative ways. We have also been told
maximising opportunities presented by overdependence. Some vulnerable adults were not given sufficient flexibility and own destiny. freedom to make key choices over their
that older clients are more likely to be tailor our approach accordingly. Not everyone is equipped to deal with reflect that.
daunted by the changes and we need to
independent living and the Council must
As argued throughout this report, we which personalisation gives clients.
welcome the liberty-enhancing potential Nationally, this area of policy is being
Personalisation offers a solution to the dual imperatives of meeting the demographic shift (and the budgetary the freedom of the individual through
transformed. Some have even described kind of liberation.49 Staff from the
pressures it presents) and maximising person centred planning to meet needs. Kent County Council, for example, has been highly creative and successful in
the transforming social care agenda as a Council and the voluntary sector have
already told us that this is making a real difference to the quality of life for clients.
Adults and Housing, London Borough of Harrow).
their application of the changes with the
49. Liberation Welfare: Imagining welfare without dependency, Barry Macleod-Cullinane (Portfolio Holder for
22

Kent Card. The London Borough of their entitlements, thus negatively
Harrow has embraced the changes and users.

50
boasts 20% of Londons Direct Payment local authorities are doing in this area to collate best practice models. We should examine what other
impacting on the quality of life. This
presents a contradiction; the services are there but many are not taking them up, either from a lack of awareness or the risk of perceived stigmatisations -
We wholeheartedly support the work of who are implementing this change
despite needing help and support. The Council has taken steps to make the could still do more to shape easy to Hidden Service more accessible, but it understand messages to promote the
all staff, within and without the Council, agenda. From the Access Team as the officers working in the PCP section at SCILL.
first point of contact, through to council
service and residents entitlements to it. Our case studies have looked at the
voluntary sector in Sutton. Our view is
We welcome the liberty-enhancing potential which personalisation gives clients.

Improvements in communication between senior staff at a strategic level and those on the frontline can and must be made. Independent living is more than just a
clear on the topic: we are very lucky to promoting independent living and
have such a strong voluntary sector. In providing support to carers they are truly invaluable. But are we doing enough to support them? The Council should
seriously look at more ways it can assist the voluntary sector by helping them to promote their work, thus raising awareness and increasing accessibility. The concept of a voluntary sector hub can help to achieve this, especially with Council owes this sector a debt of carries out.
favourable rent from the Council. Sutton gratitude for the excellent services it
concept, it is a quality of life-enhancing opportunity for Suttons adult residents with physical and/or learning disabilities. has reared its head here: staff are working hard to implement these
We need to address the contradiction that
Suttons Hidden Service is being
changes but they do not feel adequately briefed, with some describing their situation as being left in the dark.
transformed, and the changes are
ambitious. Sutton Council should be
equally ambitious for our residents in
Regarding communication, this report has also expressed concern over the have concerns that the traditional stigma for some and that as a accessibility of the Hidden Service. We language of social services still carries consequence residents are not taking up
helping them to shape their own lives Council-directed controlling care management services.
free from overdependence on traditional
There are no limits to what can be achieved.
50. Ibid, p.3.
23
State of Sutton:
24
Crime, Antisocial Behaviour and Fear
The State of Sutton: A Borough of Contradictions Crime, Antisocial Behaviour and Fear
25
State of Sutton:
Introduction
Wherever you go, crime and antisocial behaviour is consistently a top priority for residents. Unsurprisingly, this is the case in Sutton too. In comparison with other low crime rate, according to official London boroughs, Sutton has a relatively figures, but, as will be explored later, this does not collate with the fear of crime in the borough. Sutton, an outer London
Perception and reality on crime and Constant reassurances from the antisocial behaviour are disjointed.
Council, the local police, and the Safer Sutton Partnership do not make local people feel any safer.
In order to tackle this issue we have to understand why there is such fear of crime. Policing used to be about bobbies on the beat, catching criminals and keeping an eye on the neighbourhood through community policing. That is how it was, and that is how people want it to be. In reality, policing across the United Kingdom is constantly changing according to social, political and
borough, is also low on the Metropolitan and resources. Met figures in Figure 1 police force out of the 33 London boroughs.
Police Services priority list for manpower show that Sutton has the third smallest
As in other areas of policy, Sutton is a borough of contradictions with issues surrounding crime, antisocial behaviour According to official figures crime rates
governmental priorities. Because Greater
and the perception of community safety. are low but the fear is high. The majority Conservatives contend that:
London has the largest police force in the country, nowhere else can this change be more visible than with the Metropolitan Police. As a constituent part of the Met, Sutton has also been at the forefront of change in policing.
of Sutton residents do not feel safe. Local
Figure 1.1
Five smallest Met Police forces in Greater London Police Officer Strength
Bromley (population 300,700) s h g u Bexley (population 222,100) o r o B Sutton (population 185,900) n o d Richmond upon Thames (population 180,000) n o L Kingston upon Thames (population 157,900)
360.61 352.97 320.22 305.2 289.93 0 100 200 300 400
Police officer strength
1. For a full list of Police Officer and PCSO Strength in the Metropolitan Police Service of end of November 2008, see: http://www.mpa.gov.uk/downloads/issues/police-numbers/police-numbers.pdf
26
Where We Are Now, The Mechanics of Community Safety: Safer Sutton Partnership & Safer Neighbourhood Teams
The Safer Sutton Partnership
In 2005 Sutton became home to a unique organisation called The Safer Sutton Partnership Service (SSPS). The SSPS is a joint enterprise between Sutton Council and the Met. The Head of the Safer Sutton Partnership brings police officers, police civilian staff and council officers together into a single structure. The current Head of SSPS is a police superintendent who council officer. These dual roles work functions as both a police officer and a well, bringing the managerial expertise of an experienced police officer together with the skills of a civil servant, as a combination of organisations working co -operatively across the private, public, community and voluntary sectors.
Partnership working is keenly promoted Local Government (DCLG).3
by the Department for Communities and
The relevance of partnership is not
immediately clear to people outside local government, who will be unfamiliar with the jargon.
The SSPS can improve accountability in
policing priorities, because the Head of
SSPS reports to the elected councillor with responsibility for community safety. But is this communicated effectively to residents? No, because the majority of residents are totally unaware of this accountability structure.
council officer. This is especially the case given the fact that the post manages the following areas (though this is not an exhaustive list):
The Police Safer Neighbourhood known as SNTs.

2
Teams for each of the 18 Wards,
The SSPS police/council partnership
claims it has delivered improvements, but does it make residents feel any safer? Figures and research suggest otherwise. It is obvious that the majority of the community safety priorities are delivered as long as the job gets done. Partnership working and the SSPS public do not care how policing and
Drugs and Alcohol Action Team. and open spaces).
Two Safer Parks Teams (SNTs for parks Antisocial Behaviour Unit. Police Licensing. Schools and Youth Crime Unit.
Partnership? What is it? And what does that have to do with policing?
Sutton Council is keen to emphasise its partnership culture, and the SSPS is a good example of this. Partnership is local government jargon for a
arrangement means little or nothing to most people outside of Suttons police stations, SNTs, and the council offices. There appears to be a contradiction here. Partnership doctrines imply greater co-operative working with the public and
2. A Ward is an administrative area within a London Borough. Typically they will take their name from the local area, for example: Cheam, Carshalton South and Clockhouse, Worcester Park, etc. A rose tinted description of Council Wards can be seen here: http://www.sutton.gov.uk/index.aspx?articleid=1490 3. For an account of partnership in local government, see: http://www.communities.gov.uk/localgovernment/ performanceframeworkpartnerships/localstrategicpartnerships/
27
State of Sutton:
other organisations to deliver on local Throughout the 1960s the nature of localised community policing was radically altered with the introduction of patrol cars, and radio communication to centralised control rooms. The catalyst
priorities for local improvements, but is be used to measure the success of
this evidenced? Also, what evidence can Suttons efforts in community safety? It is our view that measurement of the fear of crime is a key indicator.
Unit Beat Policing and the greater use of
for this process began during the 1950s in the Met, with expanded use of patrol cars over foot patrols, being implemented by Sir Harold Scott.7 The view at the time being that patrol cars could cover a wider area than the traditional foot patrol, which was increasingly being viewed as too demanding on manpower.
Safer Neighbourhood Teams: Bobbies back on the beat?

In April 2004 the Metropolitan Police
began establishing Safer Neighbourhood in London. Each SNT typically consists of one police sergeant, two constables and
Teams in each of the 624 electoral wards
three Police Community Support Officers (PCSOs).4 The SNT model is an attempt to recapture a local policing ethos with known officers policing a specific area, much in the old style of foot patrols in localised areas, ie neighbourhoods,
perhaps reminiscent of the idealised local policing featured in the BBC television series, Dixon of Dock Green. The Met
local policing style: local people working with local police and partners to identify and tackle issues of concern in their neighbourhood. 5
Highly visible localised policing has long been popular with the public. Research of Constabulary has shown that 70% of surveyed residents think regular foot patrols and dedicated local community policing will have the greatest impact on crime and antisocial behaviour.
6
itself describes the SNT model as: A truly
A visible police presence is a high priority for residents
carried out by Her Majestys Inspectorate
The shift continued and marked the near eradication of the traditional bobby on response patrolling police cars. By the the beat by the 1970s, in favour of rapid 2000s the introduction of the SNT model for policing can be seen as a response to
4. About Safer Neighbourhoods see: http://www.met.police.uk/saferneighbourhoods/about.htm 5. Ibid, see FAQ: http://www.met.police.uk/saferneighbourhoods/faq.htm Thematic Inspection Report to the Scottish Executive, (Dec 9 2002)
6. Narrowing The Gap: Police Visibility And Public Reassurance Managing Public Expectation And Demand, HMIC
7. Sir Harold Scott was Commissioner of the Police of the Metropolis 19451953. He was a civil servant with no drawn from military and policing professional backgrounds.
previous military or policing experience. This was untypical at the time, with many Commissioners having been
28

the increasing public criticism that the police are not visible or accessible.
8
that the PCSO role is intended to be
Figures provided to the Police Federation from the Audit Commission, from a survey on police performance, show that 80% of residents said that they were dissatisfied with the levels of local policing in their area.
largely non-confrontational.10 Unlike once they are out of uniform.
regular police officers their powers cease
Given the limited powers of PCSOs the
public must not be mislead into believing that SNTs are fully comprised of regular police officers with full powers.11 The officer complement of Suttons SNTs should not be misrepresented to residents. There should be a demarcation between warranted police officers and PCSOs.
In Sutton, as with elsewhere in London, each Ward has an SNT which typically has one sergeant, two constables and
three PCSOs. There are exceptions with some of Suttons wards having four or five PCSOs. For example Beddington
9
South and Wallington South both have
Ward has one less constable than most other Wards, although it has four PCSOs, leaving it with only two full time police fluctuations and variances can be officers with full powers. Some of these accounted for because officers move on and replacement and recruitment is pending.
five PCSOs in their SNTs. Sutton South
clear and unambiguous information powers.
It is important that residents are given
about their local police force and its
Back on the Beat: Community Intelligence in Policing?

SNTs, among other things, are an attempt to recapture the traditional community aimed to give the framework for police intelligence model for local policing. It is officers with their ears to the ground, armed with a strong information network and connectivity with local residents, in order to understand the neighbourhood
It is therefore accurate to say that some areas in Sutton have better police provision than others. It should be noted that PCSOs are not
warranted police officers with the same powers as regular police officers. They were introduced by the Police Powers Act [2002] to work with the police, with the same powers of arrest as any normal citizen. Home Office guidelines provide
which they police. If the SNT model is to
succeed then local knowledge is key. This is the return of community intelligence as a vital ingredient for policing and Sutton is a part of this change.12
8. Figures used by the Police Federation as some of the background for the use of Special Constables, see: http:// www.polfed.org/FederationPolicy_Special_Constabulary.pdf 9. A full list can be seen at: http://www.met.police.uk/saferneighbourhoods/boroughs/sutton/ saferneighbourhoods.htm 10. See: http://police.homeoffice.gov.uk/community-policing/community-support-officers/ 11. It should be noted that opinion is divided on the use of PCSOs as salaried uniformed officers working alongside the police. Some have claimed that the money could be better spent elsewhere, whilst others consider them to be a valuable visible police presence. 12. Innes, M. and C. Roberts (2007) Community intelligence in the policing of community safety, in J. Warren, E. Hogard and R. Ellis (eds.) Community Safety: Innovation and Evaluation. Chester: Chester Academic Press
29
State of Sutton:
The return of focus to localised policing based on local knowledge is to be welcomed. Intelligence gathering is an essential tool in combating crime and antisocial behaviour. Each area has a Ward Panel which aims to feed local Constabulary, by Manchester Council,
and in the London Borough of Sutton via the SSPS. Professor Martin Innes is the Director of the UPSI.
priorities into the policing plans for each on a quarterly basis. The Sutton
The methodology for this intelligencegathering project is for SNT officers to homes using laptop computers. The laptops have special software with interview members of the public in their
area. They are public panels and reviewed Community and Police Forum (SC&PF) also operates as a public forum for
13
policing matters, with non-members of
questions designed to identify the signal influence the fear of crime and feelings of insecurity in local areas. Professor Innes provides the following definitions for signal crimes and disorders:
the committee invited to ask questions of SC&PF is an evolution of a committee set up as a recommendation from Lord is intended to provide effective public.
crimes and signal disorders which
senior police officers on policing matters.
Scarmans report into the Brixton Riots. It consultation between the police and
A signal crime is any criminal incident that causes a change in peoples security. behaviour and/or beliefs about their A signal disorder is an act that
SC&PF meetings have the potential to be a valuable forum but they are generally poorly attended by members of the public.
breaches established conventions of of other risks. They can be social or physical in nature.15
social order and signifies the presence
Some members have described the SC&PF as a talking shop which gets little if
anything done.
Like many other council committees and not mean they will be well attended.
forums, just because they are public does
i-NSI: Knowledge is Power

Sutton is also a part of a research project being run by the Universities Police Science Institute (UPSI).14 The Intelligence
Intimidating groups of youths in public spaces frequently form a signal disorder.
Information from the interviews is then sent to analysis at the UPSI at the University of Cardiff which then releases detailed confidential reports made local police and the SSPS. available for partner agencies, ie the
Through Neighbourhood Security Interviews (i-NSI) project is an

being trialled in the Lancashire
13. See: http://scandpf.com/ 14. See: http://www.upsi.org.uk/
intelligence-gathering model currently
15. The Signal Crimes Perspective: A Sixty Second Briefing, National Reassurance Policing Programme, Dr. Martin
Innes, University of Surrey, (Sept 2004).
30

An i-NSI report carried out in Sutton South in June 2006
16
to form trouble hotspots on a grid for method of highly localised crime
uses local interviews
the high street are also of concern to the respondents to this specific survey. such as domestic disputes, noise, damage, verbal abuse and public violence.17 Benhill Road was rife with signal crimes
signal crimes and signal disorders. This mapping provides an example street-bystreet account of incidents that create (example Figure 2).
fear and avoidance in a map form
The result is that SNTs are given highly detailed sources of information in a interview process. stable and structured way with the i-NSI
The Ward is divided into grids based
upon the i-NSI interviews (in blue). Areas affected by signal crimes and disorders are indicated in red. The map below shows areas, roads or points where fear, they would actively avoid.
It provides a rich picture of the area and respondents in a direct and confidential way. Sensitive descriptive data is sanitised.
its problems by engaging with residents/
respondents have indicated that, through
For example, in Sutton Central,
respondents indicated that they would avoid the areas around ASDA and the alleyway by the side of the supermarket
i-NSI has the potential to provide longSutton.
term and detailed intelligence to SNTs in
building. The railway station and pubs in
This is to be welcomed as it arms SNT
Figure 2.
officers with highly localised knowledge.
16. Community Intelligence Report on Sutton Central Ward, Sutton, Colin H Roberts MA, UPSI, June 2006.
17. Ibid, page 9
31
State of Sutton:
The i-NSI project has attracted the praise of the Audit Commission. Praise was particularly given to the initiative in its target areas with specific issues with appropriate responses.18 disproportionately high and we need to understand why. The Liberal Democrat purported status as a safe borough. We contend that: administration repeatedly falls back on its
enabling the Council and its partners to
This creates a perception that the
A key success is that appropriate
Council and its partners are largely crime and antisocial behaviour.
responses are needed for differing areas. One size fits all policing in a borough like Sutton will only prop up existing contradictions between the incidences of crime and the perception of crime and antisocial behaviour.
ignoring local peoples concerns about The Liberal Democrat administration of the Council has shown a clear as the judicious use of dispersal in Sutton. unwillingness to use new tactics, such orders, to tackle antisocial behaviour
Projects like i-NSI can help to break deliver the policing which Sutton residents demand and deserve.
down these contradictions in order to
This is an area of weakness, showing a lack of demonstrable political will to drive crime, and the fears associated with it, down even lower. In accordance with Suttons safe image, figures from the offences in Sutton were reduced by
Safer Sutton: Fact or Fiction?

The Council and the Metropolitan Police routinely assure residents that Sutton borough is the second safest in London. But most residents feel differently. The fear of crime in Sutton is
year 2007/08 show that the number of 13.4%, which accounts for a total of year residential burglary offences
2,068 fewer offences.20 Yet in the same increased by 23.6%, accounting for 155 offences, and gun enabled crime rose by 15 offences, giving a percentage increase of 55.6%.21
Figure 3.19 Total Crimes No. of crimes (12 months to November 08). No. of crimes (12 months to November 07). % change Sutton
Met Total 848,033 881,781 -3.8%
13,618 14,176 -3.9%
18. Audit Commission, Corporate Assessment, para. 105, page 32, (Nov 08) 19. Message from Borough Commander, Chief Superintendent Robert Reed, Metropolitan Police Authority publication: Local Policing Summary, Sutton. 2008, page 4 20. Message from Borough Commander, Chief Superintendent Robert Reed, Metropolitan Police Authority publication: Local Policing Summary, Sutton. 2008, page 4 21. See Met crime figures at: http://www.met.police.uk/crimefigures/index.php.
32

Despite reductions in reported offences perception does not tally and the political leadership of the Council fails to appreciate this.
overall, Sutton appears to have a seesaw effect when it comes to the reduction of crime in some offences, marked by a spike in others. At the time of writing,
Sutton is comparable with the Met as a
National crime statistics from the BCS can prove to be misleading as a source of victim study. Its findings are arguably of limited use in setting policing priorities and have been subject to criticism. The Council and SSPS should use
24 25
whole regarding reported crime figures,
with an average reduction of 3.8% (Fig 3). In contrast, figures from the British Crime Survey (BCS) show that over a longer period the overall crime rate in Sutton is below the England and London average, in accordance with government targets crime remains relatively static.
23
localised knowledge and research in assessing crime figures, rather than national statistics.
(Figure 4).22 BCS also shows that recorded
Constant reassurances from the Liberal Democrat Executive Member for that any view to the contrary is Community Safety that Sutton is safe, and scaremongering will only continue to
It should be noted that as a London
borough, Sutton is judged against official figures indicating crime hotspots like is not surprising that it compares Hackney, Tower Hamlets and Croydon. It favourably in figure 5. Yet the public
breed resentment and a lack of of the Council.
confidence in the political administration
Figure 4.
22. Note: the Y Axis is based on a points scoring system used by the Neighbourhood Renewal Unit at the DCLG to quantify performance on floor targets issued by the Home Office aim of reducing crime by 15%, with the baseline at 2003. See: http://www.fti.neighbourhood.gov.uk/ tion (Local Futures, Dec 2007), page 8. 23. A view shared in The State of Sutton: An Economic, Social and Environmental Profile of Sutton, Capital Ambi24. Government figures missing two million violent crimes, The Independent, Tues 26 June 2007
thursday.shtml
Today programme, see: From 7.34 a.m. 22 July 2004. http://www.bbc.co.uk/radio4/today/listenagain/
25. The BCS has encountered criticism from the former Shadow Home Secretary, Rt Hon. David Davis MP, on the
33
State of Sutton:
A Borough of Contradictions Figure 5.26

Total Number of reported crimes (Jan 08 to Jan 09)
Sutton Croydon Tower Hamlets Hackney 0
13790 32459 27910 29862 5000 10000 15000 20000 25000 30000 35000
Num ber of offences
Recent studies show that despite its safe status, 64% of residents are worried about antisocial behaviour.
27
The reassuring media (Figure 7) will do little to tackle the perceptions of residents.
62% of residents feel as though their area has got worse as a result of crime and antisocial behaviour, as shown in Figure 6.
28
Moreover,
Figures recently presented to the Sutton Community & Police Forum (April 2009) show that Sutton is slipping in its overall 6th in the reported offences index, per thousand residents.29
reported crime figures, falling from 5th to
If a Council tells its residents that they feel safer, does it really have that effect?
Figure 6.
Perceived decline
Q Why do you say the area has got worse?
Crime/Anti-Social Behaviour Environment/Cleanliness Transport Leisure/Shopping Housing Health/Social Services Schools/Education Job/Employment
62% 38% 31% 10% 10% 6% 2% 2%

5
Base: All who say the area has got worse (246) Sutton Residents, 12th October 19th November 2007
26. Illustrative figures obtained from Met Figures Website: http://www.met.police.uk/crimefigures/ 27. Ipsos MORI Residents Survey, Feb 2008, page 22. 28. Ibid. p.14. 29. See, Report for the Sutton Community & Police Forum, Suttons Comparator Boroughs, April 2009. This report accounts for the period 1st March 2008 to 28th February 2009.
34
Crime, Antisocial Behaviour and Fear Figure 7.
Given that residents perceptions of
areas with deprivation, such as St. Helier and Roundshaw. According to research carried out on behalf of Capital Ambition, Sutton has the 7th highest
decline being predominately in the area evidenced in statistics, the Councils
of crime and antisocial behaviour are not leadership should give an honest warts and all account of Suttons standing in this policy area.
inequality score in London and 88th in
reflected in the perception of crime and antisocial behaviour among residents.
Britain as a whole.30 Consequently this is
Safety is not disadvantage
universal:
Pockets
of
For example, the survey results in Figure 8 show that residents in the northern and central parts of the borough are more likely to feel unsafe after dark, and that residents in more southern parts of the borough will feel safe. There is a clear of areas within the borough and the perception of crime and antisocial
Sutton is geographically a small London differences. It is not surprising that this has an impact on crime and antisocial Sutton can be broadly, though not behaviour. The socio-economic gap in
borough with steep social and economic
link between the socio-economic profile
universally, illustrated by the significant difference between the low-density affluent areas like Cheam and Belmont, in comparison to high-density low-income
behaviour.31 The differentials in the fear of crime between the Northern Wards and other ward averages illustrated in Figure 9 are stark, specifically with these
30. The State of Sutton: An Economic, Social and Environmental Profile of Sutton, pp. 7-8. http://www.go-london.gov.uk/LIS/LSOA/Sutton/LsoaIMDRankMap.htm
31. A detailed map of the London Borough of Sutton and its comparison with national deprivation can be seen at:
35
State of Sutton:
F e e lin g s a fe a fte r d a rk b y a re a
Q H o w s a fe d o y o u fe e l w a lk in g o u ts id e in th is n e ig h b o u rh o o d a lo n e a fte r d a rk ?
% U n s a fe % S a fe N e t s a fe +27 -3 +24 +29 -7 +4 B e d d in g to n a n d W a llin g to n S u tto n C h e a m a n d B e lm o n t C a rs h a lto n N o rth e rn W a rd s N o rth C h e a m a n d W o rc e s te r P a rk
32% 46% 35% 30% 47% 43% 39%
59% 43% 59% 59%
47%
personal attack offences showing that residents living in the Northern Wards feel less safe than residents living elsewhere.
whilst still continuing to be an area of feel safer in the surrounding areas of
deprivation, research shows that people Beddington and Wallington than they do in Sutton, North Cheam and Worcester be held to demonstrate progress. Park, and the Northern Wards. This can
The Benhill Estate in Sutton and the most deprived areas in Britain.
32
Roundshaw Estate are in the 10% of the
Roundshaw has been undergoing
In short: the better your area, the safer you feel.
extensive regeneration for 10 years and
Figure 9.33
Fear of Crime: The Northern Wards in comparison with the rest of the borough
d e i r r o w s t n e d i s e r d e y e v r u s f o % 80% 70% 60% 50% 40% 30% 20% 10% 0% 64% 49% 36% 35% 74% 57% 46% 25% 11% r r r r r s s s s s e e e e e d d d d d h r n r h r h r h r h t t t t t a o a a a a s O O O O O Wi W W W W r n n n n n r a r r r r e p e e e e m h h h h h t t t t t o r C r r r r o o o o o N N N N N Different types of 'personal offence Antisocial Car theft Street attack' Racist Burglary robbery attacks behaviour 64%
32. ibid http://www.go-london.gov.uk/ 33. Ipsos MORI figures.
36

Sutton has three police stations servicing 185,500 people.
34
that might include drug taking, squatting The more it accumulates the greater the inducement will be for people to leave
comprise two stations, in Sutton and Wallington, and one police office in station per 60,000 of the Sutton population. This also leaves large Worcester Park. This means one police
These
and arson. The same can be said of litter.
litter present means there will be less of a disincentive not to drop litter.
more litter there.36 Conversely, the more
geographical areas of the borough SNT base.
without a public, visible police station of
If acts of vandalism are quickly remedied and litter is tackled before it accumulates, the likelihood of an escalation in these problems is perceived quality of the area/ minimised. According to the theory, if the neighbourhood does not decline,
Living In Fear Of Crime: The Causes

There are many factors which influence the residential perception of the threat of crime and antisocial behaviour in Sutton. These call for closer examination. Signal residents perceptions of local areas. crimes and signal disorders influence
community confidence is strengthened. This theory has relevance for Sutton. Ipsos MORI figures show that 62% of surveyed residents point to crime and
antisocial behaviour with environmental
and cleanliness coming second at 39%.37
Fixing Broken Windows

Throughout the 1980s and 1990s a
theory emerged from academic circles in
Window Theory.35 The theory contends

vandalism and antisocial behaviour,
the United States. It is called The Broken
that by tackling small instances of crime, major crimes will fall as a consequence. The Broken Window Theory takes its
name from the following example. If a
building has a few broken windows and these windows are not repaired, there is an increased likelihood of vandals breaking more windows and perhaps even to break into the building. The building in a state of disrepair will
Graffiti like this in Sutton South is a perfect example of a signal crime.
As mentioned above the better the area
area is increased, through the reduction of environmental factors such as signal is reduced.
the safer you feel. If the desirability of an
become a magnet of antisocial activities

34. 2007 population estimate
disorders or signal crimes, fear of crime
James Wilson and George Kelling. 37. Ipsos MORI, page 14
35. George Kelling and Catherine Coles, Fixing Broken Windows: Restoring Order and Reducing Crime in Our Communities, Simon & Schuster; 1st Touchstone Ed edition (1 Jul 1998) 36. This example was first used in The Atlantic Monthly, March 1982 in an article entitled Broken Windows by
37
State of Sutton:
Broader use of the i-NSI community are open to casual supervision at all
intelligence model could be utilised to
prevent problems escalating and creating an environment which is conducive for antisocial behaviour.
times. Designs and layouts cater for this accordingly, with the knock-on effect of giving potential offenders the message that they are being observed. Defensible Space There is a need to establish clear space. This is so that there is no
Designing Out Crime

Crime prevention through environmental design (CPTED) is a multi-disciplinary deterring criminal behaviour through approach with the aim of preventing and environmental design. CPTED strategies
distinctions between public and private confusion or ambiguity as to where
rely upon the ability to influence offender decisions before criminal acts take place. Sutton Councils planning strategy includes CPTED strategies in order to The Designing Out Crime
people are allowed to go, at all times of the day. It shows where public space ends and where semi-public, communal or private space begins. Offences are likely to occur when it is unclear as to the status of a domain. Research shows that areas which are physically isolated, with unclear definitions between public and private spaces have higher crime rates. Access and Movement Good designs and layouts play a key role by creating a better connected and more accessible environment without compromising security. Layouts with too many under-used connections and large areas of indirect, poorly-lit and segregated pedestrian routes providing opportunities for crime. A good in tackling crime and antisocial behaviour
tackle crime and antisocial behaviour. supplementary planning document spells out the key principles of CPTED and results.38 actual planning methods that can achieve
Local Ownership The quality of the local environment has a large influence on crime, antisocial environments are attractive and behaviour and fear. It is important that sustainable places where people want to and community identity will encourage area/neighbourhood. Natural Surveillance This principle is based on the notion that and those doing the overlooking form a deterrent to crime and antisocial behaviour because they can witness it. places are safer when they are overlooked
live. A greater sense of local ownership residents to feel a greater pride in their
access to the rear of buildings, can create movement design provides convenient, overlooked and well-used principle to go. routes to get people to where they want
Sutton Council uses CPTED in its development plan policies, prestages, planning decisions and conditions. It also features in Committee. application and planning application
Therefore crime and antisocial behaviour
can be deterred by ensuring that all parts
of the street, footpaths and public spaces
applications to the Development Control
38. Designing Out Crime, Supplementary Planning Document, Environment and Leisure, April 2005
38

The use of CPTED methods is a valuable tool which the Council can use to tackle crime and antisocial behaviour before it happens. things that are happening. For example, the increasingly local ethos of SNT policing with a return to community
intelligence in order to tackle crime, aid detection and also foster prevention.
Prevention is better than cure.
Because Sutton is a collection of villages considerably differ from neighbourhood to neighbourhood. The SNT model is working to address that. But awareness needs to be raised in the community of this service and its local ethos. The management of the SNTs is within the
Conclusion
As we have discussed, crime and antisocial behaviour and the associated fears consistently top the priorities for Yet this should not mean that the residents. This is not unique to Sutton. Councils political leadership, through its very strong influence on policing policies via the SSPS, should not strive to make Sutton the safest borough in Greater
this means that the policing priorities can
remit of the Head of SSPS. This is a good the elected accountable figure in the
thing because the Head of SPSS reports to Councils Executive in this service area, currently entitled the Executive Member for Community Safety. This is a local accountability structure. approach to policing and provides a clear
London.
Political complacency often assuaged by convenient and occasionally misleading statistics, coupled with fatuous pronouncements that Sutton is the
In celebrating this innovation we must be cautious. We must not politicise the police, but in the same token local not be so disconnected with local
second safest London borough does residents. As the accountable face of local government, politicians should
little to allay the fears and concerns of
policing at a strategic policy level should priorities on the ground. The forums set in policing are simply not working. They are talking shops. This must change, even if it means a wholesale rethink of
embrace and reflect the very real fears that dog the lives of residents. As has been stated in this report, constant
up to provide a conduit for local priorities
reassurances from political actors in the Council do little, or indeed anything, to change the imbedded anxiety of residents.
the structures, forums and committees. The mechanics of community safety are there. The tools to tackle crime and antisocial behaviour are there too. in Sutton Council, adequately and is lacking.
Suttons community must have
confidence and the Council must do all it can to set the context and shape the environment in which that can be
Regrettably the clear political leadership accurately reflecting residents priorities,
achieved. It is not all doom and gloom, and this is not the purpose of this report. This report has sought to outline the challenges and to highlight the good
This has to change.
39
State of Sutton:
40
Raising The Bar In Public Housing
Decent Housing:
The State of Sutton: A Borough of Contradictions Decent Homes: Raising The Bar In Public Housing
41
State of Sutton:
Introduction
The quality of housing, in both private and public sectors, varies starkly depending, among other things, on your location in the borough. It is widely recognised that the quality of the built
administration, the SHP project has Suttons housing stock is below had not been a success to date.
acceptable standards and because of decades, this neglect has now receive a funding envelope of 112.5million from Central
consistent underinvestment over two deprived Sutton of the opportunity to
environment also varies in the borough
with some areas epitomising the Surrey suburban realm and other areas having the physical and, consequently, social features of inner London.1
Government 5 before 2011/12, thus condemning SHP tenants to more years of uncertainty in substandard political leadership has nowhere to The quality of the SHP housing stock needs to improve and that there is a so. moral and practical requirement to do Suttons tenants - who must be hide on this issue. accommodation.6 Sutton Councils
As a social landlord, albeit via an Arms Length Management Organisation (ALMO) 2 called the Sutton Housing
Partnership (SHP),3 Sutton does not have a good track record. In March 2008, following a comprehensive assessment
SHP scored a 1 Star rating describing it as fair. Poor ratings in the quality of housing stock has culminated in a failure to meet the Decent Homes Standard, customer focus, and poor responsive poor customer satisfaction, inconsistent repairs. A lack of strategic approaches rating.
and inspection by the Audit Commission,4
treated more as customers - deserve a better service from their landlord for the rent that they pay. More must be done to achieve this, despite SHP
having enshrined a customer focus in its mission statement and its core If SHP fails to meet Government criteria for funding, the Council should look for alternative options in social housing provision. objectives.
from the ALMO contributed to this poor
On the issue of housing, we contend that: The Council has failed in this core area Despite being a flagship policy of the ruling Liberal Democrat of service delivery.
1. The Locality, Corporate Assessment, London Borough of Sutton, Audit Commission, Nov 2008 www.communities.gov.uk/archived/publications/housing/armslengthmanagementorg 3. http://www.suttonhousingpartnership.org.uk
2. For more info on ALMOs, see the Department for Communities and Local Government website: http://
4. For a copy of the Audit Commissions Report, see: http://www.audit-commission.gov.uk/reports/BVIR.asp? CategoryID=&ProdID=CADD65A1-D0F4-492e-B702-3018AF2CCB2F Housing Finance, DCLG, dated 4 June 2008. 6. Letter from Sir Bob Kerslake, the Chief Executive of the Homes & Communities Agency, dated 17 July 2009. This letter informed Sutton Council that because of its failure to meet the Audit Commissions 2 Star rating in March 2008, it will not receive any funding allocations from Central Government even if it passes its inspection with 2 Stars in late 2009. This is because the only ALMOs which have already achieved 2 Stars are eligible. 5. Letter to Sutton Councils Chief Executive, Mr Paul Martin, from Mr Ken Swan, Team Leader, Decent Homes
42
Decent Housing:
Public Housing Management At Arms Length

What is an ALMO when its at home?
ALMOs are not-for-profit companies owned by local authorities with the purposes of managing and improving under the terms of a management agreement with the local council. public housing stock.7 They operate
The first ALMO was set up in 2002.
Government funding was provided on the condition that local authorities separated their management and strategic functions. The options of retaining
Sutton Housing Partnership is responsible for the day-to-day management of services for the Boroughs 7,000 tenants and 1,400 leaseholders.
control of the management of housing or transferring the housing stock to a Registered Social Landlord (RSL), usually
1,370 leasehold properties and 86 Section 16 freeholder houses.8
a Housing Association, was still available. Stock transfer or the establishment of an leaseholders affected. ALMO required a ballot of all tenants and
SHP is managed by an unpaid board of directors. At least a third of an ALMO board is normally made up of tenants. below (Figure 1).
The composition of the board is shown
1 April 2006. SHP manages the Councils

st
Suttons ALMO was established on
6,670 rented properties, along with
Typically a third, or more, of board
members are tenants and residents. to:
Figure 1
The job description of the Board of SHP is
1. Scrutinise and monitor the 2. Report on the Management Agreement 3. Approve the budgets. decisions. ethically.9 between the Council and SHP. performance of SHP.
4. Agree policies and make financial 5. Ensure that SHP is run lawfully and
7. One ALMO, Wolverhampton Homes, controversially looks after commercial property as well. 8. For these properties a service charge is payable. 9. For more info, see: http://www.suttonhousingpartnership.org.uk/The%20Board/the_board.html
43
State of Sutton:
Sutton Housing Partnership

Figure 2
Inspection Results of 69 ALMOs (March 2009)
g n i t Not inspected a r n o i 1 Star 'Fair' & 0 Star 'Poor' s s i m 2 Star 'Excellent' m o C t i 3 Star 'Excellent' d u A
11 8 30 20 0 5 10 15 20 25 30 35
Number of ALMOs
According to the National Federation of committed to ALMOs since April 2002, the period 2008-2011.
11
places it in the bottom 11% of all
ALMOs (NFA)
10
3.7billion has been
established ALMOs (see above, Figure 2).
with a further 2.4billion committed for obtain at least a 2 Star rating, following funding can be acquired. The Audit
If an ALMO can
Its not all bad: Prospects for improvement

The Audit Commission report was keen to stress that there are promising prospects for improvement for the future. The report illustrates the prospects for improvement 12 in the format shown below in Figure 3.
an Audit Commission inspection, further Commission report placed the ALMO in the worst performing 25% of comparable organisations nationwide. One year on, its 1 Star Fair rating in March 2008
Figure 3
10. National Federation of ALMOs, see: www.almos.org.uk 11. Key facts about ALMOS, published 03 March 2009. 12. Audit Commission SHP report, (Feb 2008). p.9
44

The Audit Commissions diagnosis for
Decent Housing:
improvement highlights the following: There are noticeable service recognise.
Beating the barriers to improvement, where is SHP failing?

Through SHP, Suttons public housing provision has been criticised on the following grounds:
improvements which customers would
The implementation of most service The good relationship between SHP, as an ALMO, and the Council which it goes as far as to describe as strong improvement recommendations.
Inconsistent customer focus in the delivery of its service and the customers. dissemination of information to Poor customer satisfaction, with some Gaps in service standards, and Poor performance measurement. responsive repairs, keeping around of void properties. ineffective monitoring. distinctly low areas.
The development of a performance Improvements in leadership and the skills of board members, managers and staff, helping to shape highly motivated and enthusiastic staff. The Audit Commission is right to highlight the development of a service SHP provides. performance culture to improve the
13
and effective.
culture.
Weak service in customer complaints, appointments, and the turning Inconsistency in the quality of
The lack of plain English versions of leases offered to leaseholders, and par with other residents. maintenance services failing to be on Limited outcomes in delivering money.14
adaptation work and voids repair.
It is also right to point out the benefits of a motivated and enthusiastic staff. Happier staff will inevitably perform improved service. Recent news from the Homes & impact on staff morale.
better and tenants will benefit from an
efficiencies and ensuring value for
Communities Agency will undoubtedly
We need to give due attention to the positive aspects of the Audit Commissions inspection report and learn from the criticisms and barriers to improvement. The Council should be ruthless in removing the barriers to improvement highlighted in the report.
13. Ibid, p.8 14. Ibid.
45
State of Sutton:
Case Study One: SHP Property in June Close, Carshalton

In March 2008, two members of the Group carried out a fact-finding Housing, Planning and Transport Policy excursion to an SHP managed property in June Close, Carshalton.15 The results of the visit brought up several examples of The inspection also drew pointed
SHPs poor management of the property. criticism of SHP from the tenant family. The family in question, comprised of two parents and two young children, has asked to remain anonymous.
Figure 5.
Russian Roulette boiler
Figure 4.
Wallpaper peeling off damp walls.
heating. We had to get it fixed four times since the beginning of this year. In winter we have to sleep downstairs because the house gets so cold. There is an ice-cold draughty from the neglected windows and it's horrible when it snows. What do we pay our rent and Council Tax for? We love the area and we really don't want to move, but the conditions are appalling."
"It's like Russian Roulette with our
It was clear from the outset that the property was suffering from underinvestment. The walls were cold and the property was draughty. The single-glazed windows were clearly house and persistent mould had
incapable of retaining heat inside the developed as a result, see Figure 4 taken
in a young girls bedroom. The mother of the house, referred to as Mrs X, said that mould it would return due to the poor windows. even with continual efforts to remove the condition of the outdated single glazed
Figure 6.
Pointing out electrical danger
As shown in Figure 6. Mrs X also drew plug socket over a gas hob, in blatant
visitors attention to the positioning of a infraction of British Standard 7671. This regulation maintains that an electrical fitting must not be located above a danger. Mrs X said that she had
Inspection of the kitchen demonstrated clear health and safety flaws. These included a boiler which requires regular maintenance from SHP technicians, see Figure 5. Mrs X told visitors from the Policy Group:
cooking appliance as it represents a clear complained about the hazard that this posed. SHP had not taken steps to resolve the issue.
15. Carshalton & Clockhouse Ward.
46
Decent Housing:
Case Study Two: Fire Safety In Chaucer House, Sutton

Councillor Tony Shields,16 Deputy Leader of the Opposition, is a Home Office trained former fire officer with extensive experience on the Sutton Red Watch. 2009, which cost six lives, Councillor Following the Camberwell Fire on 3rd July
Shields undertook a random fire safety property managed by SHP.17 His fire risks including:
inspection of Chaucer House, a high rise inspection flagged up several significant
Figure 8.
Dumped rubbish will fuel fire
Fire protective glass was missing on two fire doors on the first floor of the building. Should a fire have occurred on caused smoke-logging of the fire
the first floor, this deficiency could have escape to all floors above, see Figure 9. swift action was undertaken by SHP.
Following Councillor Shields inspection, Disturbingly, during a second visit by
Councillor Shields a resident of Chaucer
Figure 7.
Fire doors that could not be closed.
House, who has requested his name be withheld, said that the protective fire glass in Figure 9 had been smashed
A lack of securing straps on the seventh, eighth and ninth floors on the dry-rising main outlets. The maintenance and accessibility of the dryrising main is essential in allowing fire crews to get water to the seat of a fire.
The seventh floor fire door, providing access to the protected escape route, was not self-closing. Self-closing doors are throughout a building. critical in suppressing the spread of fire
Figure 9.
Fire glass smashed seven months ago.
On the sixth floor the fire door did not close properly, because it did not
during a rowdy Christmas party in
December 2008. SHP staff are routinely in the building cleaning corridors and stairwells, but despite this near daily
physically fit the doorframe, see Figure 7.
Class A combustible materials (rubbish) had been allowed to accumulate in the sixth floor waste collection area, presenting a significant fire risk, see Figure 8.
presence in the tower block no action was taken for over seven months. It took a random inspection by an opposition councillor to initiate action.
16. Tony Shields joined the London Fire Brigade in 1987. He served in the London Boroughs of Ealing, Richmondupon-Thames and Sutton, serving in the latter Borough for 10 years. Throughout his career Councillor Shields participated in many fire safety and familiarisation visits to significant properties in Greater London. 17. Sutton North Ward.
47
State of Sutton:
Involving Residents: Tenants Are Customers Too

Case Study Conclusions
These two case studies illustrate serious (a legal duty of care owed to residents) and the overall poor quality of SHP managed properties for tenants. With tenants about the options available to they deserve. them in delivering the council housing
problems with SHPs service in fire safety
As shown above a failure to involve part of the failure of the service.
residents/customers accounts for a core
regard to fire safety, SHP and the Council
should be keen to study the report of the Governments fire safety adviser, Sir Keith Knight, on his investigation into the by tower blocks.18 Camberwell fire and the dangers posed
Good customer relations are key to the success of any ALMO.19 SHP must improve in this area.
The Audit Commissions report rated 2003 - three years before the
The Council should press upon SHP the need for the very highest standards in safety precautions for tenants.
resident involvement as significant in establishment of SHP. In the 2008 report, significant weaknesses were highlighted, although with some evidence that SHP was reaching out to traditionally hard to having a weak overall approach with poor impact on tenants.
The state of Mrs Xs property in June
Close, Clockhouse, illustrates quite how
bad the neglect of our social housing has become. One of the key points which the Policy Group visitors took from the visit a customer-focused service.
reach communities.20 SHP is described as
was that the family were not in receipt of
Assessment appears to indicate that resident/customer involvement has decreased with the establishment of SHP. to understand why.
Here is a key contradiction: SHP tenants are customers, but SHP does not treat them as customers.
Things were better beforehand - we need
Tenants are Customers Too

A lack of clear customer focus and challenges that SHP faces. Now
The Sutton Federation of Tenants and
Residents Associations (SFTRA) 21 and the Sutton Leaseholder Association (SLA) are indispensable in assisting SHP to involve reliant on these organisations.22
resident involvement is one of the major Government funding has been deferred,
residents, but they must not become too
SHP needs to be honest and up front with

18. Sir Keith Knight QFSM CBE DL MIFireE, de facto HM Chief Inspector of Fire Services and Chief Fire and Rescue Adviser, has been commissioned by the Rt Hon John Denham MP, Secretary of State for Communities and Local Government, to investigate the fire in the London Borough of Southwark and to report findings to the DCLG. 20. Audit Commission SHP report, p.40. 21. http://www.sftra.org/ 22. Ibid. p.41 19. Local Authority, ALMO and TMO Relationships A Good Practice Guide, March 2009
48

Despite the undoubted hard work of staff,
23
Decent Housing:
It bears further analysis as to what was old housing regime, and also between ALMO to account for the figures. The year 2009.
-term strategy to increase the
SHP needs a more structured long
done between 2003 and 2005, under the 2005 and 2007 with the creation of the next STATUS survey will take place this
involvement of customers/residents. Fostering customer involvement and the ability to help shape the direction of service is key to increasing customer
satisfaction. Sutton does not appear to be making significant improvements in this field.
There is low leaseholder satisfaction with participation opportunities at 39.1%. The satisfaction rates for residents in 18.7%.24 sheltered housing is markedly low at
Every two years a STATUS survey is
carried out to survey the satisfaction of authorities undertake this survey to
tenants in Sutton housing stock. All local ascertain the views of tenants as to their show a negligible increase in customer satisfaction for residents in public housing services (see Figure 10.).
The bottom line is that residents are
unsatisfied with their involvement in the facilitate this.
service despite the best efforts of SHP to
respective housing services. The surveys
ALMOs should promote tenant
engagement in the service they provide. a one third tenant contingent is a good ALMOS have over 50% tenant Chairman.25
The requirement that ALMO Boards have example of this, as is the fact that many representation, with a tenant as the
Under the old council housing system, the STATUS survey shows that satisfaction in participation did improve
between 2003 and 2005 by 3.9% but with the establishment of SHP the increase in customer satisfaction was marginal at 0.4%.
SHP should look closer at best practice in other ALMOs.
Figure 10.
Custome r Participation Satisfaction (STATUS Surveys)

e Sutton Housing Partnership m i 2007 g e R g Sutton Council Ho using n i s Services 2005 u o H c i Sutton Council Ho using l b Services 2003 u P
62.90%
62.50%
58.60%
56.00% 57.00% 58.00% 59.00% 60.00% 61.00% 62.00% 63.00% 64.00% Percentage of residents satisfied
23. Also praised and acknowledged by the report, Ibid. 24. Ibid. 25. ALMO Governance Empowering Tenants, NAF, 3rd March 2009
49
State of Sutton:
SHP wants to engage with tenants. This is what ALMOs are designed to do. On can demonstrate it places value on inspection it was acknowledged that SHP customer views. For example, a mystery shopper scheme identified problems in consistency with the reception service. bulb replacement services have also improved as a result of a tenants investment group (RIG).
26
In 2003, Sutton Councils housing service was judged, by the Audit Commission, to have highly effective arrangements to The 2008 inspection of SHP found
deal with nuisance and antisocial tenants. strengths and weaknesses in tenancy problems. SHP does not have
The service improved as a result. Light
management arrangements to deal with introductory tenancies - a probationary period to ensure responsible tenancy. SHP was also found to lack a 24-hour of hot-spot data to target its efforts satisfaction levels falling. responsive service, lacking sufficient use against bad tenants.28 This has lead to
conference and the use of a repairs
SHP has shown the ability to make
changes, but it needs to tackle the
apparent contradictions in the service it provides, enhancing the examples of tackle problems. good practice, internal and external to
Safeguarding Good Tenants, Not Protecting Bad Ones

Every social landlord in Britain has good tenants and bad tenants. One of the challenges for Sutton is to ensure that good tenants (who make up the vast that bad tenants are dealt with effectively. majority) are valued and retained, and
Good tenants should not have to suffer because of inadequate action against bad tenants.
SHP should better use its hot-spot data to target resources to deal with these issues.
Compelling evidence of inequity in the systems dealing with bad tenants has Planning and Transport Policy Group. been heard at meetings of the Housing,
27
Antisocial behaviour and nuisance is a 24 24-hour responsive service should be in place to properly serve residents.
-hour problem, not a nine to five issue. A
Accounts of good responsible tenants from their homes just to avoid the continued antisocial behaviour. Responsible tenants should not have to bad neighbours.
some of them vulnerable - being driven
If customer focus is to be improved and enhanced at the centre of SHPs tenants should be key. operations, then protecting responsible
move away from their homes because of
Rewarding good tenants
26. Audit Commission SHP report, p. 41 27. For more detail on the Policy Group, see: http://www.changesutton.org.uk/ 28. Audit Commission SHP report, p. 43
50

the Tenants Compact needs to genuinely empower responsible tenants to ensure that they can enforce their rights.
Decent Housing:
There should be more incentives for good tenants and responsible behaviour. SHP has not devised a full set of
incentives for rewarding responsible rent accounts. Some consultation has been carried out with tenants and leaseholders on a reward scheme for occupants move on. This will need development.
Raising the profile of antisocial behaviour towards reponsible tenants and ensuring that it is dealt with appropriately will build up confidence in tenants themselves.
tenant behaviour, except keeping clear
properties left in good condition when
Tenants are paying to live in SHP
accommodation (with significant recent put up with antisocial behaviour and rises in rent 29); they should not have to
A detailed cost/benefit analysis of the schemes to promote responsible behaviour needs to be carried out. The SHPs Chief Executive has drawn up a Tenants Compact setting out the rights and responsibilities of tenants in SHP properties. Confidence in SHP is being concentrating on antisocial behaviour.
nuisance too. A clear avenue for redress a high priority for SHP.
must be available and for it to be seen as
A recent example shows that tough
action can be taken against antisocial tenants. An antisocial tenant living in Balaam House on the Collingwood Estate working with SHP.30 Disturbingly, the head of SHPs community cohesion time that the power to board up an been used.
built up by the establishment of a team The Audit Commission reports that the
has had his flat boarded up by the police
team has had strong performance so far This is a step in the right direction. But
(see Figure 11 for calls response figures).
confirmed that this was only the second antisocial tenants accommodation had Superintendent Chas Bailey, of Sutton
Figure 11.
SHP Antisocial Behaviour Team Response Performance

y t 2006/07: Lower Priority Calls Response i r o i r P 2006/07: Urgent Calls Response e s n o p s 2007: Lower Priority Calls Response (95% e target) R s l l a 2007: Urgent Calls Respons e C 0% 50% 82.20% 91.40% 97.20% 100% 100% 150%
Target Timescales - within 48 hours

29. Indecent: Damning Report on Council Housing Conservative Press Release, Ref: PR 13-03-08 reports an increase of 5.5%. 30. Sutton & Epsom Advertiser, Friday 7 July 2009.
51
State of Sutton:
Police, said: We are determined to use all because of its failure to achieve a 2 Star status in 2008.
powers at our disposal to crack down on antisocial behaviour, which will not be tolerated in Sutton. Sutton Council
should be using all its influence to support the police and ensure that our social housing.
Sutton has consistently underinvested in
its housing stock. The political leadership failure to meet the 2 Stars necessary to hard working staff are not to blame for the quality of Suttons social housing strategic direction that an effective them.
antisocial behaviour is stamped out in
of the Council is directly culpable in SHPs unlock 112.5million of funding. SHPs
Conclusion
Sutton is characterised by affluent neighbourhoods, situated a stones throw from pockets of deprivation; the contrast is stark. Some of the most vulnerable of Suttons residents live in social housing housing stock has been allowed to fall into an unacceptably poor state. This represents a clear failure to provide must change. provided by SHP. For decades our social
stock. They have lacked the support and political administration would have given
We support any measures which will
achieve the required 2 Star rating from
the Audit Commission. Capital funding in 2011/12 hinges on this. If SHP does not will have to seriously consider other reach the Decent Homes Standard, Sutton options for the management of our social housing, because tenants deserve better. It is to be welcomed that the Audit Commission has identified SHPs efforts
Sutton residents with a good service. This The creation of the SHP ALMO, a flagship
[SHP has] lacked the support and strategic direction that an effective political administration would have given them.
policy of the Liberal Democrat administration, has been objectively judged by inspectors as not being up to scratch, by failing to meet the Decent Homes Standard. On a national level, the worst performing comparable
improvement.
as possessing promising prospects for
The issue of customer focus needs to be addressed. SHP and the Council should not forget that tenants are customers as well. Historically, council housing issues have not featured prominently in Full
Council motions or questions. This report posits the view that this is because social housing tenants do not feel emancipated or empowered in their relationship with the Council. Recent results from Sutton Councils Place Survey show that residents do not feel empowered in
Suttons ALMO is in the bottom 25% of organisations. SHP and the Council have received a severe blow from the Homes & Communities Agency in the Ministerial decision to not provide any capital
We pay tribute to the work of SFTRA in speaking up for tenants.
influencing Sutton Council decisions.31
funding for investment in SHP properties
Additionally, good tenants should feel
31. Place Survey 2008/09, London Borough of Sutton, Ipsos MORI
52

empowered against bad tenants with the balance realigned to ensure that good while bad behaviour is punished and consequently deterred. behaviour is rewarded and encouraged,
Decent Housing:
Tenants should feel empowered in their
Paul Scully and Parliamentary Candidate, Philippa Stroud campaigning with SFTRA to change the Housing Revenue Account subsidy which takes the equivalent of 19 weeks of residents rent each year to improve housing in other parts of the country.
dealings with the Council as their
landlord and therefore to be able to bring it to account. Currently tenants are getting a raw deal from the Council,
through SHP. In shaping housing policy
for the future, the Council must be open changes needed to truly raise the bar in provision of public housing and so ending a consistent failure in service
minded and bold in pushing through the
delivery to remedy the contradictions.
53
State of Sutton:
54
Opening The Door Of Opportunity To Local Children
Education and Young People:
The State of Sutton: A Borough of Contradictions Education and Young People: Opening The Door Of Opportunity To Local Children
55
State of Sutton:
Introduction
Capitalising on Excellence
Sutton has much to celebrate when it Local Education Authority (LEA) we excellence. The borough has 14
More should be done to capitalise on the excellence of the boroughs selective schools to raise the bar for all our secondary school pupils.
comes to schools and education. As a consistently top the league tables for secondary schools, some of which
The borough has 43 primary schools2 and according to figures from the Department for Children, Schools and Families (DCSF) the three core subjects (Maths, English and Science) at Key Stage 2 (KS2).3
the attainment levels vary significantly for
maintain selection through academic of the achievements of our grammar
ability. Local people are justifiably proud schools and our comprehensive schools. Grammar schools in Sutton are among the best in the country for GCSE and A level results.1 The success of Suttons grammar schools does not necessarily pupils in terms of educational
There has been a historic lack of formal support or encouragement from Sutton Council - as the LEA - to help prepare primary school pupils for the selective This is in contrast to other LEAs with selective schools, which do more to support pupils.
examinations for local grammar schools.
reflect the success of Suttons borough achievement. This is because pupils minority of grammar school places. The contradiction here is apparent. Sutton has excellent schools, but they are not benefiting Sutton as much as they could and should.
It is wrong that the political leadership of the Council has made little effort, if any, to encourage borough pupils to take advantage of the excellent resource provided by our grammar schools. It is also telling that the political leadership of the Council consistently refuses to publicly signify support for our selective school system. This ambiguity needs to be cleared.4
resident in the borough make up the
The self-evident success of Suttons
grammar schools is a justifiable source of pride, yet we need to examine whether there is a sufficient relationship between our excellent grammar schools and our can we improve, or put in place, to non-selective schools. What frameworks ensure that standards are raised across the board? How can grammar school excellence help to shape better comprehensive schools?
Sutton Council needs to work harder to give local children a fair opportunity to benefit from our grammar schools.
1. See 2008 League tables: http://www.timesonline.co.uk/tol/life_and_style/education/a_level_gcse_results/ 3. DCFS 2008 figures; pupils achieving the expected level or above & pupils achieving above the expected level on aggregate across the three core subjects, see: http://www.dcsf.gov.uk/cgi-bin/performancetables/ group_08.pl?Mode=Z&Type=LA&Begin=s&No=319&Base=c&Phase=p&F=1&L=50&Year=08 4. Note: Both Liberal Democrat MPs voted to abolish all grammars (Education Bill, 15/03/06). 2. Education Establishments; Children, Young People and Learning Services, (Version 03.08)
56

Looking After Vulnerable Children
It is the moral and legal duty of any local authority to look after vulnerable youngsters. A recent inspection by Ofsted shows that Suttons services for looked has a mixture of major strengths after children are just about adequate. It alongside important weaknesses. For example the smooth transition of looked after children leaving care teams is signalled out as a strength. Yet there is insufficient supported accommodation for these care leavers once they have left. There are contradictions in the quality of why some areas have major strengths and others important weaknesses. There is a strong moral and practical imperative in ensuring standards are in the service are across the board. universally high and that major strengths
The National Autistic Society estimate that 1 in 100 people in the UK have autism.
increases in the diagnosis of ASDs in seen a growth of learning difficulties
pupils over five year periods.6 Sutton has and/or disabilities in pupils, especially in the realm of the autistic spectrum where the number of new diagnoses has doubled over the past five years.7 8 SEN provision is being increased but recent controversies show that resident pupils still have to travel significant distances, within the borough and without.
the services. We need to get a grasp as to
Suttons vulnerable children deserve better. Complacency cannot be an option.
The contradiction here is that although provision is improving, it is not easily accessible to everyone.
Special Educational Needs Fairer Local Provision

The number of children with Special
Educational Needs (SEN) requires special attention. The number of statements issued to pupils with SENs is increasing. an increase in pupils with Autistic Spectrum Disorders (ASD).5
Over the last ten years LEAs are reporting
Some local LEAs have even reported 87%

5. The Rising Challenge: A Survey of Local Education Authorities on Educational Provision for pupils with Autistic
Spectrum Disorders, All-Party Parliamentary Group on Autism. (Dec 2001)

6. Ibid. p.8.
8. Learning Services Performance Committee, SEN Budget Pressures, Sutton Council, (11 September 2006).
7. Joint Area Review, London Borough of Sutton Childrens Services Authority Area, (Ofsted, July 2008), at p.15.
57
State of Sutton:
Primary Focus: Maximising Above Average Attainment Across The Board

Figure 1.9
2008: Aggregate KS2 scores across the three core subjects: English, Maths and Science
F S C D ( s l o ) o s h e c r s u g y r i a f m i r P 3 3 Average and A bove Score Below Average Score 13 14 15 16 17 18 15 18 19
Num ber of primary schools achieving below, average and above average scores, based on pupil num bers
As observed in the introduction to this report, Suttons primary schools have varying levels of attainment with a
average scores for KS2 core subjects. But when examined overall, from figures provided by DCSF, Suttons results are pupils reaching Level 4 (the level expected for most 11 year olds).
significant number of schools achieving below average scores at KS2. Figure 1 shows the KS2 aggregate scores from 2008 taken from a sample of 33 of
good (see below) with high amounts of
Suttons primary schools showing there is varied attainment in our primary schools. The majority of primary schools, at approximately 55%, are achieving below
The DCSF set the target that by 2008
the proportion of schools in which fewer than 65% of 11 year olds achieve level 4 or above in each of English and mathematics, is reduced by 40%.11
Figure 2.10
2008: KS2 National Curriculum Assessment

100.00% 90.00% 80.00% 70.00% 60.00% 50.00% 40.00% 30.00% 20.00% 10.00% 0.00% 90.40%
82.20%
82.20%
48.20% 34% 37%
Level 4 or above Level 5
English
Mathematics
Science
9. DCSF figures, Achievement and Attainment Table, 2008.
10. The Annual Attainment Report, Sutton Advice & Inspection Service, (January 2009)
11. See DCSF: http://www.dcsf.gov.uk/trends/index.cfm?fuseaction=home.showIndicator&cid=5&iid=30
58
Opening The Door Of Opportunity To Local Children Figure 3.12

2008: KS2 Above and Below Average Level 4 Attainment Figures
y r a m i r p h g u s l o r o o o b h 3 c 3 s f o e l p m a S 25 20 15 10 5 0 English Above English Below Maths Above Average Average Average Maths Below Science Above Science Below Average Average Average 12 21 23
20 13
10
England Averages for Level 4 Attainment (Science 81%, Maths 79%, Science 88%)
It is to be welcomed that Suttons attainment in the core subjects remains above the national average, as a significant gulfs in the KS2 attainment of individual schools. whole.13 But there appear to be quite
schools missing the average
attainment levels and DCSF targets by a long way, for example Amy Johnson Primary School in Wallington and Green Wrythe Primary School in Carshalton.
It should be noted that most of the schools missing the average attainment levels for the core subjects miss the mark by relatively small margins. There are, however, a handful of
Is there a correlation between schools
failing to meet attainment targets and the number of pupils receiving support from School Action, with SEN statements or support from School Action Plus? DCSF case with practically no correlation
English LevMaths Level
figures appear to show that this is not the
Figure 4.14
Pupils with SEN School Foresters Primary School Abbey Primary School Amy Johnson Primary School Muschamp Primary School and Language Opportunity Base Rushy Meadow Primary School 12. DCSF figures for 2008. 22.8% 12.3% 24.1% 17.2% 28.3% 25.6% 21.7% 30.2% statements or School Action Plus support 34.6% 0% Pupils with School Action Support
(England Ave. 81%)

65% 75% 42% 81%
el 4+
(England Ave. 79%)

81% 87% 53% 79%
4+
(England Ave. 88%)

77% 93% 65% 91%
Science L4+
81%
77%
86%
13. Report of the Executive Head of School Improvement, (Dr Peter Simpson) to the Children and Young People Scrutiny Committee, 12 March 2009, p. 32. 14. Figures from the DCSF on their sample of 33 primary schools, 2008.
59
State of Sutton:
between the two. The top five schools by pupil population with SEN statements, School Action and School Action Plus Because between 82% and 86% of borough, the educational
primary school pupils are residents of the attainment of primary school pupils is a closer reflection of how Suttons children are doing as a whole, than those of our secondary selective schools.16
support show there is no clear statistical connection between the two. Some of these schools, despite having higher than average pupil populations with SENs, are achieving above average Level 4 attainments at KS2.
To conclude this section it should be noted that residents satisfaction with well against other London Boroughs, Suttons primary schools does perform according to figures provided Ipsos MORI (see Figure 5 below). However, it should be noted that these figures are taken
Sutton is a borough of contradictions in the varying attainment of KS2 scores in our primary schools. We need to understand why there is such variation and how the quality of all schools This is important because primary resident pupils education. educational attainment can be raised. schools are the foundation stone for our
from a relatively small sample of London
Boroughs. The Council should take steps wider sample of other London LEAs.
to ascertain residents satisfaction from a
Figure 5.15
Residents Survey: How satisfied are you with primary schools?

d e i f s i t a s s i D / d e i f s i t a S e g a t n e c r e P 100 90 80 70 60 50 40 30 20 10 0
Satisfied % Dissatisfied % Net %
London Boroughs (on data held)
15. Sutton Residents Survey, Final Report, Ipsos MORI, Feb 2008, p.59. Simpson.
16. Approximate figures provided by the Executive Head for School Improvement in Sutton Council, Dr Peter
60
Grammar Schools: Make Them Work For Sutton

As outlined in the introduction, Sutton at 2,510 (22.5% of non-selective school population and 15.3% of total school population). has some of the best selective schools in the country having retained its grammar school system. But the success of the grammar schools, demonstrated in national league tables, does not necessarily reflect the educational borough.
The figures show that Suttons grammar schools are popular with pupils from other boroughs. Further breakdown of
achievement of pupils residing in the
the figures (below and overleaf in Figures 6 and 7, obtained by the Education and Training Policy Group) show that in every grammar school, pupils living in Sutton form the minority of the school population. The demand for grammar
Figure 6 shows that Sutton residents
make up a noticeable minority of the
grammar school population at 38.5%.
Sutton residents therefore account for
school places from extraterritorial pupils vastly outstrips the demand for places in our non-selective schools. Out of
2,018 of the 5,338 pupils in Suttons five selective grammar schools. This works out at 12.3% of the total school population.
borough pupils are the minority in school only one notable exception St. Girls.
populations in non-selective schools with Philomenas Catholic High School for
Sutton has an overall secondary
education population of 16,370. Of these pupils, 11,132 were at the boroughs nine non-selective schools.17 Pupils from
Figures show that pupils who reside in
outside the borough attending Suttons
the borough do not benefit from access pupils from outside the borough.
non-selective secondary schools number
to Suttons selective schools as much as
Figure 6.18
How many pupils living in Sutton attend Sutton's grammar schools?
38.5 % - Grammar school pupils living in Sutton 61.5% - Grammar school pupils living outside Sutton
17. Data taken from the May 2008 School Census. 18. Education and Training Policy Group, November 2008.
61
State of Sutton:

Grammar School Statistics: Resident and Out of Borough Pupil Intake
1400 1200 1000 800 600 400 200 0 Wilson's Nonsuch High Sutton Grammar Wallington Girls Wallington Boys 325 994 669 722 500 315 830 515 686 595 1222 1281 892 611 281
Sutton Resident Pupils
Out Borough Resident Pupils Total School Population
Figure 8.
Se lective and Non-Selective School Populations Wallington Boys St Philomena's Wallington Girls Sutton Grammar Cheam The John Fisher Nonsuch High Wilson's Overton Grange Stanley Park Glenthorne Greenshaw Carshalton Girls Carshalton Boys 0 126 79 99 500
Total Out Boro ugh Resi de nt P upils Su tton R esi de nt Pupi ls
This presents an apparent contradiction: we have great schools which do not much as they can or should.
1196 1281
reflect, or indeed benefit, local pupils as
281
611 623 573
892
315 162
686 595 830 515
Double Standards: Where is the local political leadership on grammar schools?

Sutton is bound by the Greenwich
1742 1580
Judgement (1989) which established the legal principle that maintained schools may not give priority to children for the
344
682 722
1026 1222 994 1273 1211
sole reason that they live within the LEA's law that Sutton cannot give preference to resident pupils for school places, their residence.
500 325 62 93 432
administrative boundaries. This means by
669
selective or non-selective, on the basis of
864 771 1203 771 1467 1341 1229 1150 1124 1025 1000 1500 2000
As foundation schools, Suttons selective schools are in charge of their own admissions criteria. The LEA has no say in admissions but is charged with ensuring that they are compliant with the law.19 There have been recent controversies
over admissions policy changes from two Sutton grammar schools. The issue arose after the schools carried out a
19. Note the development of the law following the Rotherham Judgement (1997) which established that the principle of admission authorities operating catchment areas as part of their oversubscription criteria in allocating school places was lawful providing that in so doing authorities are not in breach of the Greenwich judgement.
62

consultation on altering admissions schools. It should also be noted that both local MPs cut their political teeth as Sutton councillors in the 1980s through to 2002. Early on in his political career, council motion signalling opposition to Suttons selective schools.22 as a councillor, Paul Burstow supported a
criteria, resulting in a cut in the number residing in the borough. These recent
20
of places ring-fenced for local applicants events have exposed double standards local leading politicians.
on the issue of selective education from
Despite utterances from the Councils political leadership and local MPs that they oppose the strictures of the Greenwich Judgment and any efforts from local schools to change admissions policies, they have a consistent record of ideological opposition to the selective grammar school system.
Wallington County Grammar School is one of five schools in the Borough with a wholly selective admissions policy.
Considering Suttons educational achievements as an LEA are, in part, due to the success of our grammar school system, parents, pupils and residents
Despite the local Liberal Democrat
Member of Parliament for Sutton and Cheam being reported as voicing his concerns over the issue he voted - along with sixty one Labour rebels and his Lib Dem colleague in Carshalton and grammar schools.
21
deserve clarity and honesty on where the local political leadership stands on the issue. The ambiguity on the issue, having been built up over a generation, needs to be cleared.
Wallington - to abolish all existing
should be noted that Mr Burstow was the newly elected Chief Whip for the Lib Dem parliamentary party at the time. In this position Mr Burstow was charged with ensuring his parliamentary colleagues
In addition to this, it
voted in accordance with the party whip and that a high turnout of Lib Dem MPs were present in the division lobby to vote accordingly. His efforts secured an 88.9% turnout to vote with Labour rebels to abolish the nations remaining grammar
20. Sutton Guardian, 9 April 2009
The rebuilding of Stanley Park High School aims to help increase standards for all children attending schools in the Borough.23
Wallington) voted with 59 Labour MPs and 56 Lib Dem Commons colleagues to abolish selective grammar schools. In addition to this, it should be noted that Mr Burstow was the newly appointed Chief Whip for the Lib Dem parliamentary party at the time. 22. Full Council, 19 October 1987. 23. Photo credit: Haverstock Associates
ballot 24 May 2006 at 17:30, at which Mr Burstow (Sutton & Cheam) and Tom Brake MP (Carshalton &
21. Education and Inspections Bill New Clause "39" Retention of selection by ability or aptitude after parent
63
State of Sutton:
Looked After Children: Where Are Our Vulnerabilities?

Background: Council Child Care Functions and the Corporate Parent
Local authorities have statutory duties
under the Children Acts 1989 and 2004 to make arrangements to ensure that in discharging their functions, they have regard to the need to safeguard and promote the welfare of children. This includes the provision of child social services.
authority, to use the jargon, took them into care. The report reveals that, in far too many cases, not enough care was then taken.25
In 1998 the Department of Health launched the Quality Protects programme to support councils in
transforming the management and delivery of children's social services. The programme led to the development of a number of key indicators of excessive
Following the election of the New Labour place in local government social care children, ie children in care. The
Government in 1997, changes have taken functions with regard to looked after incoming administration took steps to address a number of scandals during the 1990s involving child abuse in residential homes in England and Wales. surrounding children in care was Sir William Uttings report published in November 1997. This report contributed to a policy of greater resident care home solutions.24 The then Secretary of State for
movement between placements, and set -after children's lives.26
outcome targets for all aspects of looked
introduced the concept of the Corporate
The Quality Protects programme
Parent. This is an enduring concept and

of child social care by a local council. As the corporate parent of looked after
one of deep significance to the provision
A significant culmination of the concerns
children, a local authority has a legal and moral duty to provide the kind of loyal
emphasis on adoption rather than
Health described the report as:
[A] woeful tale of failure at all levels to provide a secure and decent childhood for some of the most vulnerable children. It covers the lives of children whose home circumstances were so bad that those in
The terrible cases of Victoria Climbie and Baby P have led to further reforms in the safeguarding of children.
24. Utting, Sir William. (1997). People Like Us: The Report on the Review of Safeguards for Children Living Away from Home. London: Her Majestys Stationery Office. 25. The Rt Hon. Frank Dobson MP, House of Commons Debate, 19 November 1997 vol 301 cc327-38, at 3.33pm 26. Children, Schools and Families Committee, Third Report, House of Commons, (9 March 2009), 2. Care system in England, para. 17-18
64

support that any good parent would Insufficient supported accommodation Insufficient systematic engagement of young people in service planning and design. for care leavers.
provide for their own children. According
local authority must do at least what a good parent would do.27
to the Governments own definition: the
Sutton Council is therefore a corporate parent with a moral and legal duty to means councillors are looked after children in its care. This corporate parents with a duty
Insufficient access to information regarding young people or involvement in the creation of the role of the Council as a corporate parent.28
to do the best for the children in care. The term is ill defined and does not sit comfortably. connotation creating an
Corporate has a bureaucratic impression of organisational
frameworks and systems. Parenting lends itself to a warmer and more familial outlook. Both words sit in notable contrast to each other.
A local authority has a legal and moral duty to provide the kind of loyal support that any good parent would provide for their own children.
The JAR gives a critical account of how the corporate parenting role is insufficiently developed.29 It found that
The important responsibilities of the corporate parent need to come into sharper focus. They need to be made far more intuitive to the actual corporate parents involved and the wider public.
there are insufficient opportunities and ambitions for looked after children and young people.
mechanisms for councillors to meet their
This is particularly vital given the recent tragedies in cases such as Baby P in the London Borough of Haringey.
It also goes on to criticise the lack of
involvement of councillors in children and young people services and that, despite be a lack of awareness of the corporate parent role. It states that Councillors training being on offer, there appears to
Insufficient: How is Sutton doing?

The Joint Area Review (JAR) carried out by Ofsted concluded that Suttons services for looked after children are
adequate with specific issues in several insufficiencies, they are:
key areas. The inspection focuses on five The role of the corporate parent is Instability of short-term placements. insufficiently developed.
have no access to the systematic analysis of the views of looked after children in the borough and information they have received about their educational attainment contains inaccuracies.30 The Councils Children and Young Peoples Plan 2009/10 has set itself a positive
contribution priority to enhance
27. See Every Child Matters definition: -http://www.everychildmatters.gov.uk/deliveringservices/ multiagencyworking/glossary/?asset=glossary&id=22407 28. Joint Area Review, p. 10-13 29. Ibid. p.11 30. Ibid.
65
State of Sutton:
member engagement with looked after children and care leavers.
31
Insufficient information is provided to managing their finances.33
care leavers in relation to housing and
The Council is right to respond to the
JARs concerns over the development of the corporate parent role and the need for better training. This is not solely a failure of the administration of the Council, it is also a failure of some
Young people emerging as care leavers them become independent as young for acquiring accommodation after Councils endeavours in this area.
must be given sufficient support to help adults. Improving the inadequate support leaving care should be a priority for the
elected councillors to take sufficient
steps to inform themselves of the duties placed upon the Council as corporate parents.
Difficulties for young people leaving the system do not vanish overnight. Also, it is not right that bed and
breakfast use is considerable outside of the borough for care leavers, especially when the borough is the care leavers home. The transition from care to independence as a young adult should
not be made more difficult by removing

Councillors need to understand and respond to their role as corporate parents
the care leaver from the neighbourhoods they are accustomed to.
The JAR does find that there are The JAR highlights insufficiencies in supported accommodation for care leavers. It does, however, highlight some improvement (although below the care leavers living in suitable national average) in the percentage of accommodation in the year 2007/08 but fails to provide statistical evidence for
32
pathways to smooth transition in leaving care with regard to post-age16 learning provision. Access to training and be good. employment programmes is deemed to
This is to be welcomed but it needs to be
coupled with the stability that comes with including the management of finances accommodation when leaving care.
its criticism of the Councils failure to provide sufficient supported
this. The report is particularly sharp in
good support for fostering independence, and preparation for accessing housing/
accommodation for care leavers and that those with complex needs are given considerable use of bed and breakfast accommodation outside the borough.
Education outcomes for looked after
children are deemed to be satisfactory
overall. The eligible Year 11 pupils taking
31. Children and Young Peoples Plan 2009-10, London Borough of Sutton, p.23
provide detailed footnotes or references for many of its contentions and findings. The Council should consider being more robust in requiring its inspectors evaluations to be more clearly evidence based. How questioning is the Council of its inspectors? Is it too submissive to the tick-box inspection regime from Central Government and its agencies? 33. Ibid.
32. Joint Area Review, p.13. This is a common theme in the JAR and it should be noted that the report does not
66

at least one GCSE course was in line with the national average for 2006/07 but considerably below in 2005/06. The numbers of looked after children achieving one or more A* grades in
Waking Up The Corporate Parent

The Councils training regime needs to be looked at and, if necessary, be subjected to wholesale reform to ensure that elected members of the Council and placed upon them.
GCSEs and GCVQ courses are variable but for the last two years have been above the national average.
officers are aware of the legal duties
Key Stage 2 achievements in Level 4 last three years and no looked after for these courses.
Maths and English has declined over the children achieved above Level 4 in 2007
With increased awareness, councillors will be able to take a closer look at the functions of the Council in childrens care services. Without increased awareness and understanding of the corporate
Looked after children deserve the best the borough can offer them. Educational achievement will be a key indicator of how the corporate parent is doing in this area. Sutton is fortunate to
parenting role, the Council may not be living up to the legal and moral duties what a good parent would do for the children in its care. By no means is this a cure all for the placed upon it, to ensure that it is doing
have such a good school system and the
Council should look at ways to utilise this example, what preparations are made for Suttons selective school system, via the 11 plus entry examination?
excellence to benefit those in its care. For looked after children to take advantage of
problems facing Suttons looked after
children. The insufficiencies outlined by the Ofsted Report demonstrate a failure in Sutton Council to do its very best for looked after children, as in its role as a corporate parent. Increased awareness among councillors can only help to complement the hard work of Suttons dedicated staff to do the very best for some of the most vulnerable in our society.
The JAR sees an insufficiency in
engagement of looked after children and and decision making processes for
young people in consultation, evaluation service planning and design. Views are not collected or analysed in a way that will enable them to inform the development of the service.
Looked after children are service users. As clients of the Council and the services it provides, their views matter. More to reflect them wherever possible. should be done to collect their views and
67
State of Sutton:
Special Educational Needs

So, what is a Special Educational Need?
Section 312 of the Education Act [1996] gives the definition of a person with an SEN as possessing a significantly greater The purpose of the Code of Practice is to give practical guidance to LEAs for the IV of the Education Act [1996]. It also maintained schools and to other discharge of their legal duties under Part provides guidance to governing bodies of agencies, including health and social services. Its policies are intended to enable young people with SENs to reach their full potential, to be included fully in their school communities and make a successful transition to adulthood.36
difficulty in learning than the majority of children of the same age or having a disability which prevents or hinders them from making use of educational facilities of a kind generally provided for children of the same age in schools within the area of the local education authority.
Sutton Council devised its SEN policy in Inclusion and SEN Action Plan (2004-
Pupils with SENs may require additional services to help them reach their potential. Other pupils, albeit a small
2004 and has implemented it through the 2009). The driver behind this is to make its work in this area consistent with the (2001) issued by the Department for Education and Skills in 2001.
34
minority, will have SENs of a complexity or severity requiring the LEA to arrange in order to cater for difficulties that pupils face. As an LEA Sutton has a responsibility to provide services in special provision for educational services
Special Education Needs Code of Practice
The Code of Practice provides the following principles:

35
accordance with the Code of Practice. In order to meet these challenges, the principles of:37
1. A child with special educational needs should have their needs met. 2. The special educational needs of children would normally be met in mainstream schools or settings. 3. The views of the child should be sought and taken into account. 4. Parents have a vital role to play in supporting their childs education. 5. Children with a special educational need should be offered full access to a broad, balanced and relevant education, including an appropriate curriculum.
Suttons SEN policy 2009-2011 enshrines
1. Inclusion - enabling children with learning difficulties and disabilities to participate fully in family, school and community life. We see this as the key to safeguarding and promoting the wellbeing of children, to children achieving their potential, and to families leading as ordinary lives as possible. 2. Partnership - arrangements whereby children with learning difficulties and disabilities and parent/carers work
34. Special Education Needs: Code of Practice, DfES/581/2001. 35. Ibid. p. 7. 36. Ibid. p. 6.
37. Special Education Needs Policy 2009-2011. Children, Young People and Learning Services, Sutton Council,
March 2009.
68

alongside statutory and voluntary organisations in planning and reviewing services and holding them to account. 3. Integration - meeting the needs of children holistically by working effectively across organisational boundaries. 4. Early intervention and access to services - responding quickly when a childs needs are first identified, and offering support and services to prevent problems arising in the first place, rather than waiting for crises to occur. 5. Planning for transitions - anticipating important life changes and putting in place appropriate support. All transitions for children with learning difficulties and disabilities are important, none more so than the transition to adult services for school leavers.
The need for additional or different stages: 1) School Action, 2) School
(Special Educational Needs Coordination) are provided with advice or support from outside specialists, so that alternative interventions additional or different strategies to those provided for the pupil through School Action can be put in place. The SENCO usually takes the lead although day-to-day provision continues to be the responsibility of the class or subject teacher.38
If problems persist, despite the additional support provided by School Action Plus, a Statement of SEN may come into play. This is the result of a multi-professional to decide if the LEA needs to make
assessment of the pupils needs, in order further special educational provision. The LEA will then agree the provision and the pupil will be issued with an SEN Statement. The Statement acts as a
legalistic contract between the LEA and
the parents of the SEN pupil, determining the provision required after examination and needs.39 of the pupils detailed educational history
educational provision is provided in three Action Plus, 3) a statement of SEN. School Action and School Action plus are defined in the SEN Code of Practice as follows:
Each individual school has a day-to-day responsibility for its SEN pupils. It determines and publishes its own school the principles from the Code of Practice into everyday practice. In partnership with the Council, a proportion of the provision for pupils with SENs, with schools budget is set specifically for additional funding requirements arising from SEN statements. National figures to SEN pupils with Statements.40 show that 69% of SEN expenditure goes
School Action: when a class or subject teacher identifies that a pupil has special educational needs they provide interventions that are additional to or different from those provided as part of the schools usual differentiated curriculum offer and strategies. School Action Plus: when the class or subject teacher and the SENCO
38. SEN Code of Practice. p.206. Norwich, 2007. p.47.
SEN policy detailing how it intends to put
39. A helpful definition is contained in Dilemmas of Difference, Inclusion and Disability, (Routledge), Brahm 40. Evidence supplied by the Audit Commission to the Education and Skills Committee, Special Educational Needs, House of Commons Library, Third Report of Session 2005-2006, Volume II, p. 359.
69
State of Sutton:
So, how is Sutton doing?
The JAR deems Suttons contribution of However, the report identifies the
relatively high proportion of children and young people with SEN statements and important weaknesses in this area. those educated outside the borough as
local services to improving outcomes for children and young people with learning difficulties and or disabilities as good.
41
The report identifies major strengths as: very good multi-agency work in the early identification, assessment and SENs. support for children and families with effective and well targeted support for children and families provided by the children with disabilities social care team.
The Challenges: High Numbers of SEN Statements and SEN Pupils Educated Outside The Borough 1. Too Many Statements?
Sutton has a high amount of SEN pupils. Figures obtained by the Education and Training Policy Group show that the LEA the last five financial years.43 This is compared to the Royal Borough of Kingston-upon-Thames which has
has issued 622 new SEN statements over
the good overall effectiveness of most schools and specialist provision, and the effective support to schools improvement service.
42
provided by a very strong advice and
issued 367 SEN statements over the
same period. It should be noted that
Kingstons population is approximately
These achievements are to be celebrated and the hard work of the Councils staff to be fully acknowledged.
150,000, compared to Suttons 180,000. Curiously, the London Borough of Merton issued exactly the same number of Statements as Sutton at 622 over five
Figure 9.
years. Notably, Merton has a similar size population to Sutton at approximately 190,000.
According to 2005 figures, pupils with the school population with 3% having
some degree of SEN account for 18% of Statements, 10% on School Action and 5% with School Action Plus,44 see Figure 9. Nationally, figures show that approximately 3% of school pupils overall greatly between LEAs, but Sutton is have SEN statements.45 This varies
41. Joint Area Review, p.13-14. 42. Ibid. 43. Figures from November 2008, obtained by the Education and Training Policy Group. 44. Norwich, p.47-48. 45. Ibid.
70

regarded as having a high number of statemented pupils. Using school census figures given to the Education and Training Policy Group, the number of pupils with SEN statements in Sutton stands at 1,070
46
low-statementing LEAs, pupils with and average than the national averages for
without SENs performed slightly better on performance in English and Maths at Key stages 1 and 3 over a three-year period.
approximately 7% of pupils in Sutton have an SEN statement. This is above the national average even with the marked variation between LEAs within a range of 1-5%.
47
this means
Sutton should examine if reliance on SEN statementing is having a negative impact on the educational achievement of resident pupils. The same research, carried out by the DfES, as the DSCF was then known, showed that LEAs which had reduced the number of SEN statements issued, also had a reduced demand for statements.49 Sutton will need to examine if it is perceived as a soft touch on Statements; whether it is easier to
We need to understand why Sutton has so many pupils with SEN statements and to analyse their veracity.
Government research has shown that low -statementing LEAs on average score higher on SEN effectiveness.48 Investigations in high and low
statementing areas demonstrate that in
obtain a Statement of SEN, and whether it is desirable to reduce the number of statements issued.
Figure 10.
47. Reducing Reliance on Statements: An Investigation into Local Authority Practice and Outcomes, Anne Pinney, Audit Commission, (DfES Research Paper) 11 February 2004 48. Ibid. p.7. 49. Ibid. p.25
46. SEN Transport, Scrutiny Overview Committee, 20 November 2007, p.4.
71
State of Sutton:
The Education and Skills Committee funding is often eaten up by the bureaucracy that surrounds the obtaining Statements and potentially style contractual environment.
posited the view that SEN statement
adversarial negotiations in the legal-
has indicated that in low-statementing areas LEAs are spending more on
statementing process itself.50 Research
2. SEN Transport
Sutton Councils Liberal Democrat
specialist support overall for pupils (with and without Statements) and that they spend more on provision for pupils with
administration prompted ferocious
controversy in late 2008 and early 2009 with its proposals to change SEN pupils school transport arrangements. Changes to transport arrangements were needed, but the way in which the proposals were aired and consultations carried out
Statements. Moreover, low-statementing spending on SEN provision.51
LEAs reported greater increases in overall
Analysis of these expenditure trends for low-statementing authorities counters the assumption that reduced
represents a deep failure for this Council. The background is that unsustainable pressures had accumulated on the Councils General Fund in order to pay for the transport of SEN pupils to specialist schools outside the London Borough of Sutton.
statementing is a cost cutting exercise. Sutton should also explore whether funds saved by reducing bureaucracy, through in greater support for pupils with SEN. reduced statementing, could be invested
In summary, research indicates that there reliance on Statements. They are identified as:
Rapid increases in the diagnosis of pupils with ASDs meant that in-borough mainstream schools were unable to provide adequate support services. Between March 2003 and August 2007 the number of pupils requiring specialist placements outside the borough rose from 107 to 236 pupils, an increase of under section 509 (1) of the Education Act [1996] the LEA has to provide transport, if necessary, free of charge.
appear to be key benefits in reducing LEA
A more equitable distribution of SEN of needs in individual schools.
resources, better reflecting the pattern
Greater support for more pupils, including those receiving School Action and School Action Plus.
120%. In accordance with its legal duties
Less SEN-related bureaucracy and
paperwork, freeing up SENCOs and other support teams. This will also allow more time for classroom observations, greater work with colleagues working with pupils through reduced administration.
These pressures reached breaking point reached 3,591,000 with 591,000 budget. Things had to change.
when the 2007/08 SEN transport budget overspent. In short, this was a runaway
Improved relations with parents and schools, reducing the struggle of
Costs had sky-rocketed because of a number of factors: the number of children transported; the number of
50. Education and Skills Committee, House of Commons, p.359. SEN expenditure.
51. Pinney, pp. 28-30. Note: This research is based on samples from 18 LEAs on differing approaches to reported
72

routes and loading efficiency of pupils on and off vehicles; the length and the cost of each route. In some instances the length of routes to and from specialist in the loading of pupils (literally the
placements were many miles. Efficiency number of pupils per vehicle) and the
sheer distances involved in the transport of pupils to and from school showed no sign of improving.52 Sutton was right to examine the
4. Anxiety among parents about the health and wellbeing of children with the introduction of Pick-up Points and the additional challenges this would create in a daily routine. 5. Parental concern that they be late to work as a result of journey times to Pick-up Points, thus placing employment at risk.
The proposed policies attracted
considerable political controversy with pointed criticism from the Opposition and an Independent Councillor. The
unsustainable costs of this budget. The Council sent out a consultation pack to the parents and carers of SEN pupils 545 packs were distributed. This effort garnered a response of 128. The vast majority of responses were overwhelmingly negative to the Points.
53
Councils image was damaged in local
and region print and broadcast media,
including London Tonight. Two petitions were lodged against the policy changes. The amount of money which would be saved by the changes also attracted criticism. The reduction was projected at 200,000 from a predicted total budget overall. of 4,300,000, a saving of roughly 4.7%
Councils prime proposal of Pick-up replace the door-to-door service for SEN pupils after certain assessment criteria had been met. The Pick-up Points would
Negative parental feedback to the consultation included:
Any savings in Council budgets are to be distress of service users - both parents, carers and SEN pupils alike - was a overall budget really worth it? saving of approximately 4.7% from the
welcomed, but given the controversy and
1. Parents preference for the existing door-to-door collection arrangements. 2. Concern that if designated Pick-up Points were introduced parents would have difficulty getting other children to school. 3. Parents concerns that the stress for the families will be increased with the introduction of Pick-Up Points and consequently that there would be an increased demand for respite care with additional cost burdens entailed.
A balance must be struck between cost savings and efficiency, and the impact users. that such savings will have on service-
As a result of the media furore, the hard work of many members of the Council staff was damaged, not to mention the whole.
corporate reputation of the Council as a
52. Report from Sharman Lawson, Executive Head of Parent, Pupil and Student Services, Scrutiny Overview Committee, 20th November 2007, p.3. 53. Report of Executive Head of Parent, Pupil and Student Services, Review of SEN Transport Policy, Scrutiny
Overview Committee (25 November 2008), The Executive (1 December 2008), p.2.
73
State of Sutton:
Feedback from parents shows that the
Council did not communicate well with its stakeholders in this area. This is ironic considering that improved communications in the provision of been a priority for the Council.54
services to SEN pupils and parents has
As a corollary to the above points, Opposition Spokesman for Education, issue with the following points: Councillor Peter Wallis summed up the
This process started as a proposal to save 360,000. This figure has been reduced to approximately 200,000 by taking children with Autistic Spectrum Disorders out of the equation when considering pickup points. It is possible that the number of children who can use pickup points will be further reduced; in addition, every child will have to have a risk assessment to ascertain whether the use of a pickup point is appropriate; as yet the cost of these risk assessments is not known. If the number of children who are able to
use pickup points is small the question must be asked how viable will that be. At the conclusion of the whole process, it would appear that cost savings would be minimal. The worry and stress that parents have endured in addition to the stress already in their lives will not have achieved any meaningful savings for the Council. There is nothing wrong with looking critically at budgets - perhaps there are savings to be made in other ways; looking at the way transport is organised. This Liberal Democrat Council must do more to save money where it can, whilst providing the core services on which many vulnerable members of our community rely, but it must do this with a human face and with humane compassion for those who need our help. 55
Because Suttons schools cannot cope with the rapid rise in demand for travel far and wide, outside the specialist places, SEN pupils have to borough, to access the support they need. Sutton must meet the needs of SEN
Figure 11.
Developing Local Provision To provision within the borough for children and young people with ASD. support the development of new Expected Outcomes Planned expansion of new bases at Green Wrythe Primary School, Glenthorne High on time. Required support to Stanley Park base. To review out of borough placements in independent and non-maintained special within the borough. schools and plan for those needs to be met Ongoing analysis of data relating to -borough placements and opportunities identified to invest to save. Review of these out School and Carew Manor School achieved High School for the development of their
placements at Year 5 and Years 9/10 with a view to bringing pupils back into borough at next phase transfer.
54. Childrens Transport Scrutiny Task Group Final Report, Chaired by Councillor Sheila Siggins, Learning Services Performance Committee, 5 July 2005, p.2 55. Full Council, Monday 15th December 2008.
74

pupils within the borough, thus reducing the need for expensive transport costs. Suttons SEN Action Plan (2009-11) has shown in Figure 11. The excellent educational apparatus is
here but it is not being put to work to the benefit of young people who live here. Pupils from outside the borough outnumber resident pupils in every
set itself ongoing targets including those
The Councils efforts to bring SEN
grammar school in Sutton. In contrast, in our non-selective secondary schools resident pupils outnumber out of one St. Philomenas. It is easy to see why our grammar schools are so popular because they are excellent. We should be justifiably proud of our non-selective secondary schools too.
provision into the borough, in order to
prevent long and costly travel for pupils to special placements outside of Sutton, is to be welcomed.
borough pupils in every school except
Cost savings are unlikely to be
immediate, and nor is it likely that all specialist education needs can be provided within the borough, but the goal of invest to save is a prudent one. Investment soon will save money later. It should also be noted that providing
For decades the political leadership of Sutton Council has been undermining Suttons grammar schools, partially through silence but also actively. This standards from the local Liberal
specialist provision within our borough
boundaries has an economic imperative,
but there is a strong moral one too. With specialist placements closer to home the lives of parents, carers and the pupils a natural consequence.
report has uncovered disturbing double Democrat political establishment. The Councils Lib Dem administration has consistently refused to publicly signal
themselves will hopefully be improved as
their support for grammar schools when challenged to do so by the Conservative Opposition.
Conclusions
Secondary Education
Sutton has much to be proud of in its
work surrounding children and young people, but just like virtually all other borough of contradictions. areas of policy and performance, it is a
We should be justifiably proud of our nonselective secondary schools too.

The boroughs two MPs - both formerly Sutton councillors - are not immune from criticism. Both have voted to abolish the United Kingdoms remaining grammar Sutton Schools For Sutton Children Council motion opposing selective education in Sutton. schools despite posturing as defenders of locally. In fact, one of them supported a
Our schools are excellent. As an LEA, Sutton is rampant on national league tables. But the jewel in the crown of our educational asset, the selective school system, is not representative of the achievements of resident pupils.
75
State of Sutton:
Primary Education
Similarly, the LEA has done nothing to school examination. With such an legal and moral duties to look after
vulnerable children. Over the last decade, this has been a fast moving policy area and Sutton has become a corporate parent.
prepare resident pupils for the grammar excellent resource on our doorstep, should the Council not be using its influence on primary schools to open the door of opportunity to local children?
Sutton must do what a good parent would do.

Despite being a clunky, unappealing and uncomfortable tone the duties are clear: Sutton must do what a good parent would do in promoting the welfare of care. This duty needs to have greater understanding among councillors, officers and the general public. With heightened awareness even higher standards of care will follow.
We are also justly proud of our primary
schools and because between 82-86% of they give a good indication of the
primary school pupils live in the borough, educational achievement of resident are some significant variations in attainment that require further examination. Regardless of the
children and young people in its social
pupils at primary level. However, there
favourable extrapolation of attainment in averages supplied by the DSCF, why are over half of primary school pupils Stage 2 core subjects? achieving below average scores for Key
A recent review by Ofsted has shown insufficient performance in several areas. It also highlights major strengths. Sutton does some things very well and other things not so well. This presents a out: children and young people in social
Should the Council not be using its influence on primary schools to open the door of opportunity to local children?
Most of Suttons primary schools are achieving above average attainment levels for core subjects but some are apparent contradiction. We need to unravel it.
contradiction. As this report has pointed care are service-users, they are clients of the Council. It should always hold this in mind when working to drive up the standards of its service.
Special Educational Needs

Our borough has above average numbers of young people with SEN statements. We need to know why. But what we need to do now is to ensure that the highest standards of specialist provision are given to young people who already find must also remember we owe a duty to and young people.
missing targets by a long way. Here is an
Looked After Children Are Council Clients Too

The test of a decent society is how it
day-to-day life difficult. In doing so, we the parents and carers of SEN children
treats its vulnerable members. Sutton has
76

The policy disaster surrounding SEN reduced paperwork and an increase in time spent directly with SEN pupils. itself about how it deals with SEN Sutton needs to be brutally honest with statementing. The contradiction here could be that a cultural eagerness to provide SEN statements is actually an for SENs.
transport illustrates how the Council direct service users themselves.
failed carers and parents, as well as the Disastrously, the political leadership of the Council and the organs through which it communicates could only see the savings and not the people it would impact upon.
obstacle to higher standards of provision
Firstly, why are we transporting out and wide for specialist provision?
vulnerable young people with SENs far Inevitably there will be SEN pupils who to do our level best to find ways to provide it closer to home.
need out-of-borough help, but we need
The benefits of improved SEN statementing will help the development of vulnerable children as well as being in the interests of prudence for the Local Authority.
Secondly, is Sutton unwittingly reliant on SEN statements? Research shows that there are clear benefits to reducing
reliance on statements. Benefits include
77
State of Sutton:
78
Youth Provision, Health, and Leisure
Borough Wellbeing:
The State of Sutton: A Borough of Contradictions Borough Wellbeing: Youth Provision, Health, and Leisure
79
State of Sutton:
Introduction
Youth Provision: Effective, Not Expensive
When times are tough and budgets are
confused, lacking direction and a activities.
duplication of school-based youth
Cultural barriers are preventing effective most pervasive being a deeply ingrained risk aversion to trusting our voluntary
tight, youth provision - as a discretionary budget in local government - is normally a young population of approximately 22,500 people aged 10-19, forming the first thing to be cut. The Borough has
provision of youth services in Sutton, the
sector organisations. A lack of leadership from the political administration in the
approximately 13% of Sutton residents.1 on youth services.2 Sutton residents appear to allocate
The Council currently spends 1.7million
significant importance to youth services. Research commissioned by the Council indicates that 48% of residents think activities for teenagers is an issue
unsurprising given that the presence of young people on our streets can cause alarm and foster fear of antisocial behaviour. This fear can be warranted and unwarranted.4 The link between
requiring the most improvement.3 This is
effective youth provision and reductions in antisocial behaviour is established.

Some youth provision in Sutton replicates schemes offered elsewhere.
It is therefore disappointing that Sutton Councils efforts are largely ineffective. and inadequate support for struggling The recent closure of three youth groups community groups shows that effective
Civic Offices has lead to an overly hit short-term provision of youth
cautious outlook that only goes for quick services. As it stands youth services in
community-based youth provision does administrations list of priorities. The youth provision offered tends to be
not feature highly in the Liberal Democrat
Sutton seem to replicate PSHE lessons.5
Community and Health Profile (Core Dataset). The male and female population are almost at parity. 2. For breakdowns of Sutton Councils total gross spends, see: http://www.sutton.gov.uk/CHttpHandler.ashx?id=3352&p=0
1. Figures from Sutton and Merton Primary Care Trust, Joint Strategic Needs Assessment 2008, Section 3:
3. Place Survey 2008-09, Ipsos MORI.
4. Local research indicates that young people are particularly blighted by the fear of crime of people in the 20s and p.17. 30s age bracket, see: Fear of Crime, A Report of the Sustainable Communities Scrutiny Committee, March 2009, 5. Personal Social and Health Education, see: http://www.qcda.gov.uk/7185.aspx.
80

We contend that the short-term nature of Suttons youth services is programmefocused, rather than person-focused. A key example of this is the controversial project, The Sutton Life Centre. This multimillion pound project has been in Sutton. The differences in life expectancy are
Borough Wellbeing:
stark. For example, there is a difference of nearly nine years for men and seven and least deprived Wards in our and a half for women between the most Borough.7 Again, the socioeconomic
fashioned as a cure-all for youth services
status of the area in which residents live seems to correlate with health status.
It is our view that youth provision must be effective and long-term rather than expensive and short-term. Most importantly, we should allow our
voluntary youth workers sector, within the Borough and without, to shine.
Ingrained Health Inequalities

The most important component to a
good quality of life is health. Despite
having some of the best health outcomes in London, there are ingrained health
6
The 18th Century Nonsuch Mansion came into public ownership in 1937.
inequalities varying from Ward to Ward in Sutton. The most noticeable difference in the Borough. can be seen in the socioeconomic divides
Sutton is a Borough of Contradictions in health needs with some areas facing far greater challenges than others. We need to understand why, so that we can push for measures to equalise health and Borough of Sutton. wellbeing outcomes across the London
Poor and more densely populated areas appear to be more at risk from cardiovascular and cancer related
mortality with Wards like Sutton Central, St. Helier, Wandle Valley and the Wrythe featuring the highest. Hospital admissions for these Wards are on Belmont and Beddington South.
Heritage, Leisure and Sport

Our Borough has a rich heritage and, as
average higher than Wards like Cheam,
localised character of our area. According to English Heritage, Sutton has six Scheduled Monuments, 174 Listed
State of Sutton, this contributes to the
outlined in the Planning section of The
These variations are also reflected in life expectancy, although life expectancy has 1997, across the board. Female life risen considerably since the period 1995expectancy outstrips male in every Ward
Buildings, and one Registered Park.
Whitehall in Cheam, Nonsuch Mansion in Carshalton attract much of the Councils attention.
Nonsuch Park and Little Holland House in
with Carshalton Central being the closest.
December 2007, p.8.
6. The State of Sutton: An Economic, Social and Environmental Profile of Sutton, Capital Ambition,
7. Joint Needs Assessment 2008, Executive Summary, p.5
81
State of Sutton:
The Council cannot be responsible for all of our local heritage. As we have seen, with the exception of Whitehall the schools to bring them to wider use? The kind of confusion created by the Leisure Centre does not inspire Councils political leadership over Cheam confidence in Sutton residents in its geographical distribution of leisure
(thankfully now refurbished after much Ecology Centre in Carshalton) and The
lobbying) places like the Old Rectory (the Lodge are falling into a state of disrepair. These are community assets and we are the caretakers for the next generation who, in turn, will be the caretakers for reflect this and make full use of our and enhancement of our heritage.
capacity to provide leisure facilities. The facilities is not equitable across the board with the western part of the Borough suffering in comparison to other areas.
their successors. Council policies need to voluntary community in the preservation
As we have outlined, there are health inequalities in our Borough that have made where we live a determining factor of our state of health. Sport and leisure are central ingredients for a decent quality of life and wellbeing. Figures from Sport Englands Active People Survey show that Sutton has a below average rest of London and England.
An innovative project with David Lloyd Leisure has given girls at Nonsuch High School access to superb sporting facilities on site.
participation in sport compared to the
The Olympics are fast approaching and present Sutton, as a London Borough, utilise such a global event. As a local with a once in a lifetime opportunity to authority Sutton needs to see how it can invest long-term in sporting facilities within the Borough. Are we maximising
Leisure in our Borough is not just
confined to sport. A core part of the Councils leisure function is its library St. Nicholas Way is considered by the service. The library in the Civic Offices in Council to be the jewel in the crown of centre of Sutton is a valuable resource ask whether other libraries across the Sutton. Visitor numbers to the Civic
the potential of Sutton Arena as much as on the issue?
leisure provision. While the library in the and used by many residents, we need to Borough are losing out to the centre of Offices library are strong but in other
possible? Where is the political leadership
The Boroughs schools have some excellent sporting facilities. These can be established without the involvement of School for Girls has a partnership with Other schools have excellent and the Council. For example, Nonsuch High the David Lloyd Sports and Leisure Club. accessible facilities, why not work with
8
areas they are far smaller. The spectre of unknown pressure on Council budgets. What impact will it have on our library
the Sutton Life Centre will place an as yet
service? Can we do even more to expand the accessibility of our library service?
8. See: http://www.davidlloyd.co.uk/. The club is situated on the school grounds.
82
Borough Wellbeing:
Youth Services: Cutting Antisocial Behaviour

Effective use of youth services can provide a real alternative to crime and without making young people feel
9
antisocial behaviour on Suttons streets, invisible. This benefits not just the
Boredom is frequently cited by young people as a reason why they or their Department of Education at Brunel friends get into trouble. Research by the University has shown that boredom
reductions in crime. See Figure 1.11
young people in question; it has very real benefits for the local community too. Statistics used by one of the leading voluntary youth organisations in the
among young people is considered by antisocial behaviour.12 The responses female young people agree with the as shown in Figure 2.
them to be a major driver for crime and show that the majority of both male and proposition that boredom causes crime,
United Kingdom, Clubs for Young People
(CYP), show that 52% of young people say that being involved in their local club had changed their lives.
10
Research also indicates that on housing falling into antisocial activities, an
estates where young people are at risk of established club for young people which provides somewhere to go, something to do and someone to talk to, can reduce the presence of drugs and contribute to
Boredom is not - and never should be an excuse for crime and antisocial examine the root causes of these behaviour. But as a Council we need to behaviours before they happen and so prior to the damage they can cause.
Figure 1.
The Effects of an Established Youth Club on Housing Estates

Percentage reductions 30% 25% 20% 15% 10% 5% 0% Reduction in presense of cocaine cocaine Presence of Reduction in overall drug activity Reduction in crime overall
10. Source: CYP Research 2005. 11. Ibid.
9. Annual Report 2005/06: Supporting young people to change communities, Clubs for Young People (CYP), p 6.
Completed for the National Association of Clubs for Young People, by Dr Simon Bradford, Professor Valerie Hey and Ms Fin Cullen, Department for Education, Brunel University, March 2004, p. 36.
12. What Works? An Exploration of the Value of Informal Education Work with Young People, A Report of Research
83
State of Sutton:
"Youngpeople people commit commit crime Young crime because becauseof ofbordom" boredom.
60% 50% 40% 30% 20% 10% 0% Strongly agree/agree Don't know 8% 10% 25% 16% 15% 51% 42% 33% Male Female
Strongly Strong disagree/disagree
Not stated
Preventing crime and antisocial behaviour in young people is better than having to cure it.
fears as older residents, for example dark alleys, but that apprehension is more potent in relation to public transport.13 Disturbingly, evidence given to the SSPS and presented to a Council Committee shows that young people have said that people in an even younger age bracket but that this is a fact of life.14 (12 to 13 upwards) are a source of fear
In Sutton we have no reason to expect
this to be any different. We have explored disorders in the Crime, Antisocial Behaviour and Fear chapter earlier on in the concepts of signal crime and signal
this report. It is obvious that bored young people hanging around on street corners can intimidate some residents, particularly older people, and can give the impression of signal disorder, therefore creating a fear of crime. Young people experience fear of crime as well, particularly from those in the 20s to 30s age bracket who may binge drink and become aggressive in the streets. Surveys carried out by the Safer Sutton Partnership Service (SSPS) show that
We believe that effective provision of and antisocial behaviour.
youth services can help to reduce crime
We also note that young people can be the victims of antisocial behaviour and fear that surrounds it. It is clear that the effective provision of youth services has a role to play in reducing the fear of crime for young people as well.
young people generally have the same
13. Fear of Crime, Sustainable Communities Report, p. 5-6. 14. Ibid, p.6.
84
Borough Wellbeing:
No Political Leadership: Effective, Not Expensive Provision

In the last three years, three youth in Alcorn Close, Sutton and Club groups have been shut down. Centre 21 Constellation on London Road, North The Point caf in Cheam, run by Cultivating these relationships should be more than a one-off experience. The method of providing the character
Cheam were axed by Sutton Council and volunteers from a local church was also closed. Centre 21 has now been demolished to make way for the expensive Sutton Life Centre. This project has attracted considerable the local and regional media.15 controversy on the grounds of cost in
building opportunities that foster respect and responsibility in young people, who may otherwise lack appropriate role not instant.
models, takes time.18 It is developmental,
The Councils political leadership
seems to have opted for expensive options. The Life Centre is due to new library, youth centre, with a
youth provision rather than effective cost roughly 8.5million and has a climbing wall and a multi-use games area. The main attraction has been described as a multimedia indoor
space to teach citizenship to school virtual reality drug dealers and the
children and teenagers complete with
The one-off experience of the Sutton Life Centre is not an alternative to mentoring and relationship-based youth provision.
new Centre will even include a movie-set style street.

17
dangers of internet paedophiles.16 This
The Life Centre presents a facility, a young people who want and need effective youth services.
building, and not a mentor figure for
But does this really meet the needs of
youth provision? Effective youth provision is person-based, providing young people with adult contact in order to build relationships. Often these relationships are not formed at home and the role of an outside adult mentor is needed.
Will a young person who is buckling under the pressures of exam stress find based support in a multimedia argue no. the kind of advice and adult relationshipexperience next to a climbing wall? We
15. Evening Standard, 5 May 2009. 16. ITV London Tonight, 6 May 2009. 17. See: http://www.architectsjournal.co.uk/news/sutton-life-centre-approved/1994418.article 18. What Works? CYP Research Paper, p. 51.
85
State of Sutton:
Spending the equivalent of 10% of the not address the need for ongoing Local government faces many budgetary burdens and it would be unrealistic to the benefits of youth groups are not suggest otherwise. However, even though necessarily tangible or quantifiable to the extent of appeasing the most stringent earth. accountant, they do not have to cost the
Councils annual council tax intake will character building youth provision. Prominent theorists in the field of youth provision put the argument that the establishment of trust is the
cornerstone of the relationship between the youth worker and the young person. turn generate respect, relationships
19
Vast untapped resources of voluntary wasted by the Councils political leadership.
Without sufficient levels of trust, which in cannot be established. Simply creating
sector organisations have hitherto been
an institution and giving youth provision credentials will not address the needs of Suttons young people.
There are national organisations which
the Councils leadership seem reluctant For example, Clubs for Young People (CYP) has 3,500 clubs and projects
to draw inspiration from or to learn from.
People create relationships, not buildings with gimmicks. This is the key to effective youth provision.
nationwide providing places to go and 30,000 volunteers who work to build relationships with young people as positive role models.
We argue that the Sutton Life Centre
things to do for young people. CYP has
presents a short-term approach to youth services. It makes the political leadership of the Council look busy. That is not to say that its aims are not worthy, or even
noble, but its effectiveness is in question. Other commentators have said that the youth club contributed to the
Organisations like CYP place an explicit emphasis on the need for relationship building and powerful role models. Sutton Council could learn a lot from seems to avoid doing so.
young persons identification with their effectiveness of clubs.20 If we accept the view that youth groups, and the adult workers contained therein, have a powerful and positive effect on certain young people and that the character beneficial in reducing antisocial building or transformative effects are behaviour and a propensity to crime, it
their approach, which is not costly, but it
In the introduction to this chapter we
outlined what we see as the replication in PSHE as included on the national
or duplication of school-based lessons curriculum. PSHE includes lessons in
personal wellbeing, concentrating on the
personal development of pupils including education.
must therefore be counterproductive to
sex and relationships, as well as on drugs
cut three youth groups to make way for experience like the Sutton Life Centre.
one, impersonal and expensive one-off
19. For example London School of Economics professor Richard Sennett, Respect: The Formation of Character in 20. Bradford, Hey and Cullen in What Works?
an Age of Inequality, Allen Lane, 2003.
86

In 2008 Sutton Council launched its
Borough Wellbeing:
URBIE mobile youth service. The URBIE bus tours the Borough as a detached youth service and by its own description the team aims to engage young
notion that Sutton Councils
Sutton report we have explored the
administration suffers from a conceited to many of the problems our Borough
notion that it, and only it, is the solution faces. Volunteers engaged in youth work know what the issues are and they know the passion and the conviction. This is They do not want to wait for the grind into activity. what they want to do about it. They have why they volunteered in the first place. bureaucratic cogs of Sutton Council to
people in group discussion to encourage values and opinions around topics such as alcohol and drug education, sexual health education, personal safety, community awareness and personal and social development. 21
So, what is the difference between the URBIE bus as a voluntary taxpayer-funded scheme and the compulsory PSHE lessons young people receive at school? Answer: Not a lot. The URBIE bus is by PSHE in schools. Youth services, like school.
simply repeating the issues covered by their very nature, should not feel
The concept of a detached youth
team is a sound one. It means that The Urban Bus Information Education Vehicle (URBIE) moves around the borough aiming to reach children who would not or could not the youth work is proactive and looks for young people it can
get to a youth club.
provide services to. But we have to
question whether the services it provides are effective in that they are repeating what has already been said in the classroom.
Sutton is home to a local organisation called Elevate.22 This is a Christian community organisation run as a limited company called Sutton Ramp Events Limited. Trained volunteers run events
The URBIE is an in-house service,
for up to 300 participants teaching young people how to skate and to ride, running competitions and fund raising sessions. The most notable competitions are held words they aim to work with other
provided by the Council and therefore ruling political party. We also have to
subject to the political priorities of the question whether the Council leadership are the best arbiters for the provision of youth services. Elsewhere in this State of
in the St. Helier Open Space. In their own community organisations to build an
21. See: http://www.suttonyouth.com/en/1/detachedyouthteam.html. 22. See: http://www.elevate-sutton.com/aboutus.html
87
State of Sutton:
indoor skate/ramp facility in Sutton so safety at all times.
that young people can skate and ride in
[There] has been an explosion of bureaucracy, cost and irritation, endless upheavals and pointless reorganisations, the elbowing aside of colourful, human, informal relationships based on common sense and trust in favour of the grey mechanical, joyless mantras of the master planner with his calculations, projections and impact assessments. 24
The kind of malaise that Mr Cameron
describes in the speech above is not too in Sutton. There are strong cultural
far away from what can be described here barriers to embracing the invaluable role
that the voluntary sector undoubtedly has to play in the provision of youth services. The barriers can be described as health and safety based, a grand sense that inhouse solutions are the best, and a fear
Elevate is just one example of Churches and Faith Groups penetrating deep and wide into the local youth community.
factor rooted in the worry that greater and complaints may be received.
trust in the voluntary sector will not work
We pay tribute to the work of Elevate and the organisations chairman, Judith young people.
23
These barriers receive a buttress in the form of a distinct lack of political will from the Liberal Democrats to remove excellent cultural shift towards truly
Smith, for their volunteer work with
them. They are blocking what could be an effective youth provision, that can be achieved with the Council acting as a facilitator to youth services, rather than its current, confused, directionless and ineffective approach.
It provides a great example of how the voluntary sector can flourish in providing youth facilities.
David Cameron has expressed his
exasperation at the relationship between community groups and organs of the State which can suppress the work of saying:
such voluntary sector communities by
23. In September 2008 Judith Smith won the London Week of Peace Volunteer Award for the work she does in the community. 24. The Rt Hon. David Cameron MP to the Campaign to Protect Rural England, 12 May 2008.
88
Borough Wellbeing:
Health Inequalities: A Barrier To Wellbeing

Sutton is a Borough of Contradictions in terms of the geographical and socioeconomic health inequalities that according to official figures from the Care Trust in a map of Sutton and Merton.26
mark our Borough. Where residents live, Primary Care Trusts Joint Strategic Needs significant bearing on life expectancy, the risk of cardiovascular mortality and cancer related mortality. The Wrythe, St. Helier, Wandle Valley and Sutton Central appear to have greater Borough like Belmont, Cheam, and Beddington South. health problems than other parts of the
Obesity treatment takes up to 9% of the NHS budget. Figures show that the problem is especially acute in South West London.
Assessment (JSNA) 25 with Merton, has a
As a key indicator, the likelihood of cardiovascular mortality, which is linked to exercise and lifestyle, differs considerably from area to area. Figure 3 standardised mortality ratio (SMR) for cardiovascular mortality and Figure 4
The link between obesity and
cardiovascular mortality is well
established. Research from the Health London Health observatory shows that
Survey for England 27 provided to the
shows the Ward by Ward difference in the
South West London (including Sutton) has higher levels of its population classed as obese than all of the other strategic
(overleaf) illustrates mortality likelihoods in the area covered by the NHS Primary
health authority regions in London. It also shows that the South West area is well above the England averages, as
Figure 3.
illustrated in Figure 5.28 According to the
25. The JSNA figures are provided by the London Health Observatory (LHO) 2008. 26. JSNA, p. 24. 27. The Health Survey for England is a Department of Health annual publication focusing on national health indicators such as cardio-vascular disease, physical activity, and eating habits. 28. Figures available at: http://www.lho.org.uk/viewResource.aspx?id=8942
89
State of Sutton:
figures, obesity in South West London
spiked in the early part of this century. Suttons health profile states that obesity in adults is better than the England worse. In fact, childhood obesity in average but that obesity in children is Sutton is approaching the 25% worst
percentile for regional and England averages, but above that of our neighbouring authority in Merton.29 Figures show that more obese people live They also show that the likelihood of
in our part of London than anywhere else. cardiovascular mortality is greater in the
Figure 5.
29. JNSA, p. 55.
90

less affluent parts of our Borough. When these two facts are put together it is accurate to say that Sutton is faced with health problems it poses. Tellingly, the as average.30 lifestyles and exercise can reduce the develop such health problems.
Borough Wellbeing:
likelihood of residents in these areas to
the challenge of tackling obesity and the lifestyle of residents has been described
Sutton Council has schemes which
promote active lifestyles, but it needs to look seriously at what more it can do to tackle the geographical health inequalities in our Borough.
If one maintains, as we do, that health is a core component in the quality of life of Sutton residents and that the health status of local people shows considerable variance from Ward to Ward, the Council should look at ways to address these geographical inequalities.
The Mayor of London is currently putting London.31 Sutton Councils political
together a Health Inequalities Strategy for leadership should look closely at what he proposes and also take stock of the work in other London Borough Councils, like Ealing, which have produced their own
According to the cardiovascular SMR least likely to die rating, namely
figures in Figure 4, only one Ward has the Carshalton Central. Merton has seven rate as most likely to die. Active
localised strategies to tackle this issue.32
Wards with that rating. Four Sutton Wards
Sutton & Merton Primary Care Trusts programme, Better Healthcare Closer To Home
33
care in the area, developing more community-based care. This is due to include a 140 million refurbishment of St Helier Hospital.
seeks to reshape health
30. The State of Sutton: An Economic, Social and Environmental Profile of Sutton, p.8.
31. See: http://www.london.gov.uk/mayor/priorities/health/health-strategy.jsp. Former Mayor Ken Livingstone
began consultation on a draft strategy to tackle health inequalities. Mayor Boris Johnson has said that he will use the consultation responses to draft a Health Inequalities Strategy which will be published later on this year. 32. Evolving a Healthier Community for All: Ealing's Health Inequalities Strategy (2005-2010), London Borough of 33. See http://www.betterhealthcare.org.uk/
Ealing, see: http://www.ealing.gov.uk/services/council/strategies_and_policies/health_inequalities_strategy/
91
State of Sutton:
Leisure: An Essential Part of Wellbeing Sport: Low Participation, High Potential

Evidence shows that parts of our Borough health issues than others. This is face greater problems with cardiovascular unsurprising given the fact that Sutton has low participation rates in regular exercise activities, yet with the Sport Englands Active People Survey activities as low at ranging between rates our participation rates in exercise 13.3% and 19.4%.35 Sport England figures
also show that there has been no change in participation rates over the last few years with Sutton remaining in the
bottom 25% regionally and nationally.36 of Suttons participation rates in the Greater London context.
Figure 6 illustrates the depressing picture
forthcoming Olympics and the Mayor of Londons commitment to work with Londons authorities, a unique opportunity has presented itself to
The wide variation in levels of
participation does not paint a favourable picture for Sutton and many other outer Bexley, Waltham Forest, Hounslow and Harrow. The Mayor of London and the London Boroughs like Enfield, Havering,
remedy this issue. Sutton, like other
Boroughs, has high potential to use sport to tackle the health inequalities that have taken root.
Figure 6.34
Commissioner for Sport, Kate Hoey, are
to the Mayors Office by Sport England.
34. A Sporting Future for London, Mayor of London, Greater London Authority, April 2009, p.16. Image provided
35. Active People Survey 2, 2007-08, Sport England, p.2.
36. Active People Survey London, Headline Results, December 2006.
92

giving their attention to the problem of participation across London with bold steps to get more people active. In particular, the Mayor of Londons sporting strategy is firm in its Sutton residents are being charged for the Olympics and the Councils administration should lobby the Mayors Office and the Olympics Minister for an equitable share of the benefits.
Borough Wellbeing:
commitment to tackle inequality in
sporting activities, which specifically groups.

37
highlights those in lower socioeconomic
The benefits are, of course, more than will grasp this great opportunity to our Borough.
financial and we hope that Sutton Council address the health inequalities that scare
Mayor Johnsons commitment to making sporting activities open to all is very analysis of the pockets of health inequality that exist. welcome in the Sutton context, given our
The Mayors strategy also pledges approaches. The build-up to the
support to local initiatives and innovative Olympics is set to generate considerable publicity as well as heightened public surround it. Sport England has awareness of sport and the issues that established an innovation fund to
Sutton Councils leadership must commit to working with the Mayor of London to use the opportunity of the forthcoming Olympics and its long-term impact on Londons sporting infrastructure to make will attract and inspire higher quality
it work for Sutton. Higher quality facilities young athletes. We celebrate the efforts the Councils Executive Head of Leisure and Libraries for high quality facilities, specifically a hammer cage for Sutton Arena, which will upgrade the site,
identify and pilot new ideas in what it
calls community sport.40 The Mayor of
London has made 15.5million available roots initiatives to increase participation in sport locally.
of Councillor Eric Howell who has lobbied
over the next three years for small grass
The submission of ideas to the Sport England innovation fund closed on 10 ideas for the latest round for the August 2009. Sutton did not submit any innovation fund.41 We argue that this
attracting the countrys top athletes. We upgrade them if necessary.38
need to use the facilities we have got and
The previous Mayor has been unabashed in his admission that his administration only bid for the Olympics in order to
shows a dearth of ambition from the obtain funding for fresh ideas in promoting community sport.
leadership of the Council in trying to
plough billions of pounds in investment into Londons East End.39 We think that all of London, not just the East End.
37. Ibid, p. 22.
We hope that the political leadership of Sutton Council will not be so shortsighted as to fail to work with the Mayor
the Olympics should pass on benefit to
38. The Hammer Cage in question has been bid for and will cost 20,000. 40. See Sport England: http://www.sportengland.org/funding/innovation_fund.aspx 41. Note in 2004 Sutton Council did submit an application for funding to Sport England for a scheme with the same name for Active Pathways Funding to help to promote community sports groups for the new Phoenix Centre, on the Roundshaw Estate. 39. The Evening Standard, 24 May 2008.
93
State of Sutton:
of London to access funds for grass roots increased participation in sports and physical activities. A replacement for Cheam Baths does not have to be a groundbreaking, cutting edge, or innovative leisure centre. It
We have local sporting assets in our High School for Girls and their
needs to be functional and to provide the facilities which local people want and leisure services. need in terms of equitable distribution of
schools. Earlier we mentioned Nonsuch partnership with the David Lloyd Sports and Leisure Centre situated on their grounds. St. Philomenas Catholic School for Girls is well furnished with its tennis School has large playing fields. All of based sporting assets. courts and swimming facilities. Wilsons these facilities represent strong locally
Heritage and Libraries

Protecting Our Heritage
Sutton is fortunate to have its historical
assets and as our chapter on Broad Aims, political leadership could and should do more to protect our historic and important buildings.
Narrow Delivery outlined, the Councils
The Council should examine whether it
can increase its partnership with schools to increase their participation in the grass roots promotion of sporting activities.
We have set out our support for the use the menace of overdevelopment and urban sprawl. In turn we have also
The Mayor of Londons commitment to
of Conservation Areas to stand up against
sport as a leisure activity, backed up by millions of pounds in investment, does in Sutton. There has been an array of not appear to have been replicated locally mixed messages from the Council on the Road, North Cheam. Despite repeated promises that Cheam Baths future is will not remove it from a list of sites safe, the Liberal Democrat administration allocated for future development.42 The areas surrounding Cheam Baths do not have easy walking distance access to leisure facilities other than the Centre. Cheam Baths is in a state of disrepair due to years of underfunding. The facilities at the Centre need updating but it does not have to be knocked down and built elsewhere, as the leadership of Sutton
criticised the relative weakness of Special Policy Areas and have argued for a more extensive use of Local Listing for
future of Cheam Leisure Centre in Malden
individual noteworthy buildings. This will place a specific onus on the buildings the local streetscene. owner to protect its valuable influence on
We argue that small protective steps like this all add up to provide a flexible and truly localised protection of our local heritage.
The Council tends to concentrate on
Whitehall, Nonsuch Mansion and Little our local heritage but other heritage
Holland House. These are core parts of assets are at risk. English Heritage has
Council seem to favour, by keeping the and moving the centre elsewhere.
the following local buildings/structures the entrance to the West Churchyard at St. Marys Church in Beddington, the
site on the disposal list for development
on its at risk register; the Lych Gate at
42. Site Development Policies, Preferred Options Document For Public Consultation Option A3, Sutton Council, p.2.
94

Orangery Wall at Beddington Place, and the Grotto at Carshalton Park.
43
Borough Wellbeing:
Additionally, the Old Rectory/Ecology
Libraries: In The Shadow of The Sutton Life Centre?

The library in the Civic Offices is a great resource for Sutton residents. Placed in the centre of Sutton it boasts the highest visitor numbers of all libraries in Sutton, with the most books, computer services and study space for residents and visitors. Figure 7 shows the visitor and book issue numbers for all Sutton Councils library services.
Centre is falling into a state of disrepair. The Council needs to turn its attention towards our Boroughs heritage sites authority. which need a helping hand from the local
Suttons historical buildings do not
necessarily have to be the sole domain of
the Council. Community voluntary groups have a valuable role to play. For example, The Grove in Carshalton is used by the offices. Is this the best use for such a Councils Education Department for their valuable asset, including the well kept, picturesque grounds that surround it? Would it not be better in the hands of a at least lived in?
The Central Library in Sutton has almost double the number of visitors to its nearest competitor in Wallington, in both visitor numbers and books issues. The Beddington, follows with third highest number of books issued. This is most Phoenix Centre on the Roundshaw Estate, visitor numbers but the fourth smallest likely because it is also a leisure centre. It should be noted that the Ridge Road
community group, open to the public or
The Councils leadership should be more creative with its use of such assets and make them work for the community.
library in Stonecot is to be scrapped with its library function replaced by a smaller facility in the Sutton Life Centre. The trend appears to be towards fewer large libraries and for much smaller ones
Figure 7.
Borough Library Usage Statistics (April 08 to March 09)
600000 500000
Books Issued
400000 300000 200000 100000 0

Su n tto W a llin o gt n ea Ch m r Ca a sh n lto ce or st P er k ar d Ri ge Ro ad dle n to rc Ci le Ro un w ha ds ) di ed ng n to ob M ile
id M
i en ho
x(
Issues Visitors
43. Heritage Counts 2008, English Heritage, London Data Document, p.10.
95
State of Sutton:
attached to other centres like the Phoenix Centre and the Sutton Life Centre.
Conclusions
Sutton is a Borough of Contradictions in its provision of youth services because experience and commitment in the although there is an untapped wealth of voluntary sector waiting to be utilised, blocking its use.
What does the future hold for smaller Cheam and Worcester Park after the Sutton Life Centre opens?
libraries in places such as Carshalton,
The Sutton Life Centre has been criticised for having a highly optimistic business plan at best, and an unrealistic one at worse. For example, based on the
cultural barriers within the Council are
Instead the Council seems fixated on
business plans figures, the visitor figures for the Citizenship and Life Centre/Zone - on the Councils projected 40,000 visitors per year figure - will generate an This section of the Sutton Life Centre has been described as its main income 394,000 for the first full year of generator. Staffing costs are detailed at operation45 leaving a shortfall of 34,000 on staffing costs alone. The Life Centre the market it has set itself in order to Business Plan needs to penetrate 59% of meet its financial and visitor targets.46 The business case for the Sutton Life Centre has clear flaws. The Council towards large scale and expensive leadership obviously has an inclination projects at the potential expense of like community library services. income of approximately 360,000.44
providing in-house replication of PSHEstyle guidance to teenagers and young people rather than the character-building contact with adults that is required. The benefits of such schemes are
demonstrated in reductions in crime and antisocial behaviour. Other benefits are that young people have safe
environments without the temptation of falling into antisocial behaviour, drugs and violence.
smaller scale more traditional services
[The Council] seems fixated on providing in-house replication of PSHE-style guidance to teenagers and young people rather than the characterbuilding contact with adults that is required.
The fact is, boredom is a major cause of crime and antisocial behaviour in young for breaking the law and seriously people, and while that is never an excuse disrupting the lives of decent ordinary
Given that the libraries budget for Sutton Council accounts for approximately 1.5% of overall spends and the Life Centre is
costing 8.5million to build, even though it is difficult not to see a budgetary cloud moving over our Boroughs libraries.
45. Ibid. p.41. 44. Business Plan for the Sutton Life Centre, p.24.
it is uncertain whether it can turn a profit,
residents, it is a simple truth. The Council leadership is more excited about looking
46. It aims for 40,000 visitors from School Years 6 (age 10) and 8 (age 12) in a catchment area with population of roughly 67,723 pupils. This is a 59.06% penetration of the market, far exceeding the aspirations of organisations like Starbucks and Tesco.
96

busy with expensive pet projects like the Sutton Life Centre. While undoubtedly well-intentioned and the product of hard work from many council employees, it simply will not provide the long-term forming of trusting relationships with health inequalities can be tackled sport and physical activity.
Borough Wellbeing:
through a positive emphasis on exercise,
Mayor Boris Johnson, in preparation for
the 2012 Olympics, is giving ever greater support to grass roots community sports addressing health inequalities and his To underline this commitment Mayor schemes. We welcome his commitment to enthusiasm for sport-related solutions. Johnson has put his money where his
adults that characterises effective youth provision. A multimedia experience, a climbing wall and virtual reality drugcoping with family breakdown, exam gangs.
dealers will not teach real-life skills like related stress or peer pressure to join
mouth is by pledging 15.5million. His promise to work with local authorities, national bodies and the private sector in investing in small, community, park or estate-based projects is a step in the right direction.
Voluntary sector youth organisations know what needs to be done and how to do it and on shoestring budgets; all they need is for the Council to become a supportive facilitator.
However, strong role models in structured yet relaxed safe environments can, and this is where our voluntary sector comes in. Voluntary sector youth organisations know what needs to be done and how to do it and on shoestring budgets; all they need is for the Council to become a supportive facilitator.
Suttons political leadership needs to bite the bullet and have the initiative to work with the Mayor and to engage with City Hall to bring these benefits to Sutton.
After all, that is why Sutton residents pay the mayoral precept on their council tax.
The Council leadership is more excited about looking busy with expensive pet projects like the Life Centre.
Ineffective youth provision, health embody some of our Boroughs inequalities and uncertain leisure services numerous contradictions but they are that this potential can be unlocked.
Regrettably, it will take 8.5million of
taxpayers money to be spent before the Liberal Democrat leadership of Sutton Council understands this, if ever they do. Health inequalities are a deep worry in the probability of dying from the Borough with life expectancies and cardiovascular problems varying from
areas bursting with potential. We hope
Ward to Ward. The poorer areas of our
Borough have worse health according to official statistics. We believe that these
97
State of Sutton:
98
Transport, Planning and the Environment:
Broad Aims, Narrow Delivery
The State of Sutton: A Borough of Contradictions Transport, Planning and the Environment: Broad Aims, Narrow Delivery
99
State of Sutton:
Introduction
Transport: The Road To Sustainable Transport
Studies show that transport is a big issue for Sutton residents, with many saying that it should feature very highly as a priority for the Council. A significant
Sutton.1 In September 2006, Sutton
received 5million of funding from TfL for this project for a three year period. This sustainable travel town partnership with TfL is designed to reduce car trips and to promote sustainable transport by
change. Smarter Travel Suttons efforts have won it an award at the Municipal Journal Awards 2009.2 Suttons political leadership have
encouraging, not forcing, behavioural
number of people have even said that area is getting worse.
transport is a key indicator of how our
discovered an enthusiasm for soft large amount of funding.
Sutton Councils Liberal Democrat political leadership has a cultural predisposition towards hard options in transport policy, especially in traffic calming and the behavioural change
options, only when attached to such a
Sutton needs a solid commitment to
working with residents via soft options to with hard options and, importantly, not just when there is money on the table. The Councils political leadership is reduce car use rather than against them
agenda to reduce car use. Such punitive drastic cuts in residents visitors free use of double yellow lines.
measures include unpopular road humps, parking hours, and the over enthusiastic
enthusiastic in its bidding for TfL funding for projects and travel plans, but it does not seem to be capable of doing things for itself. We contend that this demonstrates a lack of vision.
The heavy-handed stick approach is in contrast to other measures known as soft travel demand management or soft options, which we will refer to as the carrot approach in the Sutton context. A cultural change favouring soft options is under way in Transport for London (TfL) May 2008. It seems that here in Sutton follow this example. The contradiction progressive policy shift in transport in Greater London.
The contradiction we highlight here is only when there is cash involved. Its
that Sutton will opt for soft options but commitment to soft options is merely
following the election of Boris Johnson in the Councils political leadership is yet to here is that Sutton is out of kilter with the
skin deep. At heart, its ideology favours hard options and punitive measures to change behaviour.
In terms of public transport the Borough is well serviced in parts, but less so in others. There is a geographical inequality in public transport accessibility. Sutton town centre enjoys the highest levels of Rosehill. Carshalton and the remaining
One notable exception to the above is the cross-party initiative between Sutton Council and TfL called Smarter Travel
accessibility, followed by Wallington and
1. See: www.smartertravelsutton.org 2. MJ Awards 2009, 25 June 2009, see: http://www.localgov.co.uk/index.cfm?method=awards.copy&id=74004
100
district areas have to contend with low and Carshalton South and Clockhouse have relatively low public transport accessibility.
3
accessibility. Areas like South Beddington
Congestion is a big problem in Sutton. Hackbridge, Central Road in Worcester High Street and the crossroads at The figures show that traffic levels have
Key pinch points include London Road in Park, Sandy Lane in Cheam, Wallington Broadway in Cheam village. Government increased over the last decade. In terms of traffic volumes, Sutton appears to be close to the previous Mayors London
The Borough, as a whole, does benefit from a good network of buses serving key destinations. It is also served by ten railway stations with two just outside the Boroughs boundaries (St. Helier and Mitcham Junction). Suttons railway services provide links to prominent and London Bridge.
targets.4 But this has little or no relevance to the average Sutton resident who relies on their car for daily travel. Recent 58% of residents mode of travel.5 statistics show that car use accounts for
London stations like Victoria, Waterloo
Sutton Council will need to look hard at why some areas are less well serviced than others for public transport. As a
While it is encouraging that 42% of
residents travelled by means other than a car the Council does need to be practical and honest in accepting that car use is the mode of travel for the majority of residents.
Borough, Sutton has good accessibility to public transport but some areas have unequal access to such services. In this of Contradictions.
sense, as in others, Sutton is a Borough
Traffic is a problem and easing
congestion has an environmental
imperative as well as a transport one. The most effective method of reducing congestion is reduced car use. But the Council must accept that it cannot simply cars it should look into easing traffic flow as well. browbeat and cajole residents out of their
The benefits of smoother moving traffic are reduced, and bus travel becomes more reliable, which in turn can
It took severe weather conditions in 2009 to restore Carshalton Ponds to a traffic-free reminder of a bygone era
are clear: commuters benefit, emissions
encourage a modal shift.6
3. See Public Transport Accessibility Level (PTAL) methodology devised by the London Borough of Hammersmith and Fulham. PTAL is used by the Greater London Authority and TfL and is regarded as the standard method to assess public transport accessibility. 4. As measured by million vehicle-kms, as the measurement used by the Department for Transport (DfT). Source: National Road Traffic Survey, see: www.dft-matrix.net. 5. London Travel Demand Survey 2008.
Moving.
6. This is the approach at the heart of Boris Johnsons winning transport manifesto, entitled Getting Londoners
101
State of Sutton:
Planning: Squandering Our Environmental Inheritance
Planning is one of the most contentious policy areas in local government. Planning decisions and policies shape our physical environment. Local character in our neighbourhoods is shaped by physicality and, as a natural character. As a result our Borough risks being transformed into an increasingly soulless urbanised dormitory town for London.
We must, therefore, fight the tide of overdevelopment.
The Housing, Planning and Transport Policy Group has criticised the Council in -up thinking when it comes to the relationship between decent and of economic development of the Borough. its planning policy for lacking truly joined
consequence, so are local people. Sutton is a collection of villages and at the very outset of this chapter we reaffirm a steadfast commitment to Our natural assets must not be squandered. But this question
protecting our suburban environment.
appropriate planning, especially in terms
immediately poses itself: is Sutton Councils political leadership actually achieving this?
Sutton, unlike our Croydon and Kingston neighbours, lacks a Unique Selling Point (USP). This has come about after a two Sutton from the Councils political leadership. decade long starvation of any vision for
We contend that they are not. The Liberal Democrat administration has presided over two decades of overdevelopment and its impact on the Boroughs
suburban environment is for all to see. Here is a core contradiction: the Councils leadership purports, with typical grandiosity, to protect our suburban
It has missed the fundamentals. The
gateways to the Borough paint a terrible picture. Victoria House in North Cheam London Road and Malden Road and Brighton Road create an instant on the junction of Cheam Common Road, Sutherland House in South Sutton on the impression of urban decay and neglect. When people use these major gateways to our Borough, the first thing they see must not be monuments to decline.
realm, stating their policies are designed
suburban Borough, offering a high quality residential environment, well designed buildings, liveable streets and public spaces 7
But the changing face of our Boroughs physical environment indicates a lack of political will to protect it. This administration has spent two decades presiding over reckless, communitydamaging overdevelopment which is allowing our villages to lose their
to shape: An attractive and distinctive
In protecting our suburban realm, Sutton Council has statutory powers as well as afforded, the Borough has: duties.8 In order of the level of protection
14 Conservation Areas (CAs), 15 Areas of Special Policy Areas (SPA).
Special Local Character (ASLCs), and three
7. Core Planning Strategy: Proposed Submission, under the theme Improving the Streetscene and Living
Environment, Sutton Council, November 2008. 8. The Planning (Listed Buildings & Conservation Areas) Act [1990].
102
The Council needs to be more proactive
in delivering truly localised protection of our villages through greater use of such protective planning measures.
been serious instances where the Council has opted to work against residents, which has damaged its reputation.
Abuses of trust, like the Green Garden Waste Disaster, whereby the Councils environmental chief chose to work proved catastrophic.
Notwithstanding narrow financial
implications, it also needs to be more robust in defending our suburban physical environment. The Council needs fire in its belly and a willingness to fight its corner in Whitehall, standing up to only be achieved through tougher developers and their bulldozers. This can political leadership with a strategic, all its villages and district centres.
against residents rather than with them,
As a matter of huge importance to the
future of our Borough, the goodwill of the public to the environmental and waste minimisation agenda cannot be
rather than tactical, vision for Sutton and
jeopardised through grave errors like the Green Garden Waste Disaster. This is particularly the case when a third of
The Environment: Broad Aims, Narrow Delivery

Sutton Councils political leadership
Sutton residents cite the environment as a reason why their area has got worse.9 Additionally, Sutton residents
demonstrate a high level of awareness on environmental issues. For example, the about the amount of household waste that is produced.10 majority of Sutton residents are worried
makes much out of its green credentials, often evoking green initiatives from the past, from recycling through to climate
change. The environmental monikers of
Sutton as a Green Council is oft-cited by the political administration in self-praise, frequently harking back to by-gone glory days. Its aims are broad and its rhetoric is grandiose, but now its delivery is narrow. The administration is running out of steam. We cite this as a contradiction. Minimising waste is a core part of the an early participant in the recycling
Residents are right to be concerned
because European Directives on reducing reliance on landfill sites to dispose of authorities up and down the United waste are placing huge pressures on local Kingdom. Sutton is no different. As of landfill is 40 per tonne, which is
April 2009, the cost of sending waste to estimated to have a per household cost of 30.11 Over two thirds of Suttons waste is sent to landfill and at a cost of unsustainable.
environmental agenda. The Council was agenda and this is welcome, but it seems that residents took this opportunity to recycle in order to reduce household
40 per tonne existing habits are simply
waste - and have continued to do so Council, not because of it. There have
9. Ipsos MORI, Sutton Residents Survey, February 2008, p.28.
despite the political leadership of the
National performance indicators showing Sutton Councils performance for waste management and recycling do not match
10. Ibid, p. 73.
11. BBC News, Landfill tax costing homes 30, Wednesday 18 March 2009.
103
State of Sutton:
its green image. It ranks 213th out of 394 accept this responsibility through
local authorities across English councils on its overall performance in waste collection and recycling rates.
12
antisocial behaviours such as littering, graffiti and fly-tipping, but the vast majority are responsible and want to see our natural environmental endowments locally and nationally, understand this and want to make it even easier for residents to do the right thing. this. protected and maximised. Conservatives,
Again, we argue that Sutton is a Borough Liberal Democrat leadership celebrates and self-congratulates their green match the rhetoric.
of Contradictions in this area because the
credentials but in reality the facts do not
Innovations in Conservative policy reflect
Sutton has many natural assets, including a variety of green open spaces and some of the highest tree populations in London. Sutton has over 190,000 trees, which works out at over one tree per resident.
13
We reaffirm our endorsement to the right thing for the environment, not
principle of helping people to do the browbeating them and forcing them to do what the Councils political leadership wants.
The benefits of our trees are
manifold, be they in back gardens, lining roads and streets or in our parks and CO2 emissions and a cushion against open spaces, providing a green barrier to urbanisation. Over the past two calendar years the Council has cut down more trees than it has planted. In the two-year a mere 19.5% of the trees it had cut down.
14
Because we know Suttons residents want the Council trust local people more. Elsewhere in this report we have
to do the right thing, we would like to see
discussed the implications of a Post-
period 2004-2006, the Council replanted
Bureaucratic Age; the notion that local
government is not always the wellspring the community, through bottom-up initiatives, are best placed to tackle problems.
of solutions to local issues and that often
Tree replenishment numbers have Council must invest more in tree
improved in the last calendar year but the planting. Preserving our suburban
We posit the view that the Council should look closer at community-led environmental action by really trusting
environment will be the next generations environmental inheritance arising from the decisions that we take now.
people and empowering communities to minimisation and environmental protection.
act in real partnership on recycling, waste
Another aspect of our Boroughs environmental wealth is that of Suttons residents. The people of Sutton care about their environment and want to
make a difference. A small minority fail to

12. Figures from the Department for the Environment, Food and Rural Affairs (Defra), November 2008. 13. See: http://www.sutton.gov.uk/index.aspx?articleid=3967. 14. Figures from a report presented to the Scrutiny Co-ordinating Committee regarding the number of trees, 2006.
104
Transport In Sutton: Policy and Reality

The Well Meaning Vision
Sutton Councils current vision on derived from the above vision statement. It is right for the Council to aspire to greater use of public transport because congestion in Sutton.
transport according to its Promoting theme is thus: -
sustainable Transport and Accessibility
this will decrease the negative impacts of
A well-connected suburban Borough, with good access for all to local employment, social and community facilities and open space by public transport, walking or cycling, reducing overall travel needs, car dependence, traffic growth and congestion, local pollution and carbon dioxide emissions and improving health and well-being. 15 The Reality: Understanding Car Dependence To Tackle Congestion
Reducing car dependence is the
Transport is second only to crime and the need for more activities for teenagers as an issue of importance to residents, with 41% of surveyed residents wanting to see (Figure 1). 17 But the Council needs to do activity to tackle congestion on our roads more research on whether residents actually see reducing congestion as
necessarily linked to reduced car use. We know that car use is on the rise in Sutton and that our Borough roughly corresponds with the previous Mayor of (shown overleaf in Figure 2 as Linear Trajectory).
Londons target traffic volumes for Sutton
strategic objective which the Council has
Figure 1.16
17. Ibid, pp. 10, 28-29.
15. Sutton Annual Monitoring Report (AMR) Section 11: Transport, p.153. 16. Place Survey 2008/09, London Borough of Sutton, Ipsos MORI, p.29.
105
State of Sutton:
Public Transport Accessibility

Car use is the obvious choice for residents when public transport is not easily accessible. This opinion is not Boris Johnson, who also serves as Chairman of the TfL Board. wasted on the current Mayor of London,
This is a question of basic accessibility to public transport services. Figure 3 shows that some parts of Sutton are clearly impoverished in public transport
accessibility compared to other district centres which are remarkably well serviced. Large parts of South
Beddington, Carshalton Beeches and
Carshalton on the Hill, parts of Belmont and Cheam range between Levels 1a and 1b on range of accessibility. The rating for 1b is extremely poor access to the location by public transport and 6a as excellent access by public transport. There are additional pockets with
inadequate public transport accessibility Worcester Park.
in places like Stonecot Hill, Benhilton and
Boris Johnson. Mayor of London 2008-present.
The Boroughs Local Implementation Plan (LIP) does give attention to the issue of networks. Target data is yet to be accessibility and inclusion to transport released. Concerns have been raised grounds of its bureaucratic process.
The Mayor understands that after eight years of a Labour Mayoralty, Outer London Boroughs like Sutton were almost always at the back of the queue for services and so for a chunk of the transport investment and increased population there is no ready alternative to the car for many short journeys.
about the flexibility of the LIP on the Members of the Housing, Planning and
Transport Policy Group have highlighted that it is inflexible and of limited use in dealing with transport issues as they arise because of the long lead-time.
18. DfT figures, National Road Traffic Survey.
106
Figure 3.19
Changes in transport are often too quick for the Council. Accessibility objectives from the Mayors Transport Strategy, contained in the LIP, can often be very
If Sutton Council is to reduce car
dependency it needs to have a vision for
improving the Boroughs public transport equality of access across Sutton.
slow to put into practice at ground level. The Council should consider how it can respond quicker and adapt faster.
network, in particular pushing for greater
Fresh thinking rather than lip-service is
Interestingly, the Liberal Democrats manifesto for the May 2006 local elections is silent on reducing car use
required to reduce congestion. As well as up to, the council needs to stop
a saleable vision which residents can sign posturing and feigning action and use the local government structures in London to achieve a better result for residents.
and on public transport accessibility. It car use in connection with emissions, the principle of car-free areas in the
20
fails to outline any aspiration to reduce apart from a very lightweight reference to
Too often the Liberal Democrats at all levels have played politics with transport issues and this has hindered improvements in the accessibility of services for residents.
borough . This is notable considering

the perennial self-aggrandisement the Councils political leadership. associated with the green credentials of
21
19.. AMR submission, p.193. 20. Liberal Democrat Manifesto, May 2006, p.8 21. This theme will be explored further in this chapter under: Broad Aims, Narrow Delivery.
107
State of Sutton:
Case Study One: Sunday Bus Service, Route 463

The Clockhouse area sits at the southern extremity of the Borough near Coulsdon. As demonstrated in Figure 3, it has poor access to public transport facilities and features with a 1b poor accessibility was made worse by the absence of a decent Sunday bus service. rating. This dearth of public transport
Case Study Two: Sutton To Croydon N213 Night Bus

The cancellation of the Sutton to Croydon N213 night bus caused considerable controversy among residents,23
particularly young people, who used the service. Local Liberal Democrats, including the Member of Parliament for
Carshalton and Wallington, proceeded to turn it into a campaign, equipped with a Facebook campaign, placards and a protest in Wallington. proclaiming Its Time To Listen Boris!
During a session of Questions from Members of the Public to Executive Councillors, Councillor Tim Crowley24
asked the Liberal Democrat Executive
contacts have you had with the Mayor, may I ask, over this issue?
(Pictured left to right) Carshalton South & Clockhouse councillors, John Kennedy, Tim Crowley and Moira Butt
Member for Transport What direct
Councillor Colin Halls answer was as
Rather than playing politics with the
Mayor. 25
follows: NoneI have not spoken to the
issue, Conservative councillors in the worked with Steve OConnell AM22
Carshalton South and Clockhouse Ward, together with local residents groups to see a new service was established. The Sunday service starts at 6.28am and ends at 11.25pm, running every half hour to provide Clockhouse residents at The which they previously lacked. Mount bus stop with a vital transport link
A period of nearly three weeks had
lapsed since the cancellation of the N213 service. During that period neither the Liberal Democrat MP for the area or his transport had taken the initiative to
colleague on the Council responsible for contact the Mayor of London. In the end, it took a 22 year old student to speak to Boris Johnson directly. Mayor Johnson service.26 gave his instant support to reinstate the
22. Councillor Steve OConnell is Croydon and Suttons Conservative London Assembly Member. 23. Sutton Guardian, 9 July 2009. 24. Formerly Opposition Spokesman for Transport, currently Finance and Value for Money Spokesman. 25. Meeting of the Full Council, Monday 20 July 2009. Appendix A to Council Minutes, Questions from Members of the Public. 26. Sutton Guardian, Friday 24 July 2009.
108
Case Study Conclusions

Our two case studies illustrate the differing approaches in improving accessibility to public transport in Sutton. action to eliminate the starvation of
That is not to say that road humps do not have their place in the traffic calming Sutton Councils political leadership armoury for local authorities. However appears to be so enthusiastically wed to
One approach favours direct and effective transport links to a part of the Borough and TfL, receives a poor service. The other shows grandiose and cynical manipulation of the issue and basic failure to even directly contact the Mayor of London to address the issue, instead opting for political opportunism.
the use of this hard option, and to such a large extent, that it has earned the ire of many residents and motorists alike. Sutton has implemented a range of
which, by the standards of both the GLA
accident reduction measures including road safety campaigns and long-term programmes for area specific traffic
calming in high accident locations, for
example the STEPS Zone programme.27 In terms of road performance the Councils highways department has achieved an
These differing approaches to addressing accessibility inequalities stand in stark another aspect of our Borough of Contradictions. contrast to each other and represent yet
average 36.8% reduction in the number of people (including pedestrians, children, seriously injured on our roads in cyclists and motorcyclists) being killed or comparison to 1994-1998 averages. A breakdown of Suttons road safety in Figure 4. performance 2007-8 can be seen below
The Road To Sustainable Transport: Carrot Rather Than Stick

The Sleeping Policeman: Valuable Tool or Inverted Pothole?
The introduction to this report outlined
It is extremely welcome to see reductions in the rates of mortality and serious pedestrians do not appear to have injury on our roads. Although injuries to dropped as much as other areas. We need of roads humps in these percentage reductions.28
to commission research into effectiveness
Sutton Councils skin deep commitment to the use of soft options, favouring hard options to achieve reduced car reliance/ punitive road humps, aka the sleeping usage. The Council has a history of using
If the primary reason for installing road humps is reducing speed in order to prevent road accidents resulting in the death or serious injury of road users and pedestrians, and no clear correlation can and road safety, the Council will need to seriously re-evaluate their use. be established between the use of humps
on the Boroughs roads and a less than enviable track record of being in touch with residents as to their use, location and effectiveness.
policeman, as a traffic calming measure
27. Strategic Traffic and Environmental Problems Study (STEPS)
chaired by Liberal Democrat Assembly Member Lynne Featherstone, was pointed in its defence of road humps.
28. An April 2004 London Assembly report entitled London gets the hump from the Transport Committee,
109
State of Sutton:
Figure 4.29
We believe that road humps have their place especially when asked for by residents - but that humps are not the universal be all and end all for traffic calming. Punitive measures like road humps should not be used lightly. Road humps have considerable
This can damage buildings, with old Another perverse consequence of
constructions suffering in particular. extensive road hump use is that it may more powerful vehicles, thus creating
encourage motorists to purchase larger greater emissions, because the impact of the humps is reduced with such motor vehicles. It may even be the case that
drawbacks as well as some identifiable merits. They can damage vehicles. Smaller and more environmentally can also cause noise disruption in friendly vehicles suffer the most. Humps residential areas. The Housing, Planning and Transport Policy Group has heard accounts of how commercial vehicles, like scaffolding, hit the humps at
road humps discourage motorists from using more eco-friendly cars and that humps adversely affect attempts to reduce vehicle emissions. For a
purportedly green political leadership in Sutton Council this seems counterintuitive, especially with the cost of road humps varying from 1,200 to 2,000 each - if not much more.30
particularly lorries carrying heavy goods considerable speed resulting in noise
pollution to intolerable extents. Many early in the day - thus disturbing
commercial vehicles of this type travel residents sleep. Some residents have even reported walls vibrating and windows rattling as a result of heavy humps.
Research carried out by the London
Ambulance Service (LAS) has attributed the presence of road humps in Greater humps slow down emergency service London to costing 500 lives because the vehicles.31 The DfT accepted the findings
commercial vehicles going over road
of this research in its response to LAS, stating that before road humps are
given to the wider implications of
introduced full consideration should be
29. Source: Sutton Council and TfL 2008, see AMR 2007-2008. 30. Figures provided by the Campaign for Better Transport, www.bettertransport.org.uk
31. Road-hump delays 'kill hundreds of ambulance patients' each year', The Independent, 20 September 2003.
110
introducing traffic-calming measures on our roads. This is particularly important with regards to response times for the emergency services. 32 The Metropolitan
Police echoed the concerns of the Ambulance Service.
33
In light of the ongoing debate
surrounding road humps, an incoming
political administration in Sutton Council of its established policy of reliance on humps in the Boroughs transport infrastructure.
should seriously look at the effectiveness
the London Ambulance Service were
The conclusions of
criticised by the then Liberal Democrat
chairman of the Transport Committee on the London Assembly, who described the research as contributing to the fever
The path to sustainable transport options is not based on a cultural dependence on punitive methods of traffic calming and the behavioural change that intends to reduce car dependence. Instead the Council should look closer at softer
pitch regarding road humps.
34
carrot methods to tackle transport in.
problems. This is where nudging comes
Nudging The Sleeping Policeman?

A recent theory has taken the political
world Left Wing, Right Wing or Centrist - by storm. Nudge Theory was devised theorist Dr Richard Thaler and the academic lawyer Professor Cass by the economist and behavioural science
that it is better and more productive to attempt to foster positive change by giving the choice of good/desirable
Councillor Paul Scully illustrating the absurdity of a road hump sited in a Beddington cul-de-sac 125 feet in length, leading to an allotment. A case of catching speeding wheelbarrows?
Sunstein.36 In short, the theory maintains
behaviour (nudging the subject in the preferred direction) rather than by undesirable behaviour. punitive sanctions against the bad/
Conservative controlled Barnet Council hard measures like road humps, with much public support.35
has pursued a no-nonsense attitude to
Application of the theory would see local authorities promoting preferred travel options while still leaving the individual the choice to take the undesirable route. Smarter Travel Sutton, for example, promoted the use of different modal
32. Ibid. 33. BBC News, Wednesday 3 December 2003, see: http://news.bbc.co.uk/1/hi/england/london/3288795.stm 34. London gets the hump, chairmans foreword. 35. BBC News, Thursday 19 June 2003, see: http://news.bbc.co.uk/1/hi/england/london/3003788.stm
36. Nudge: Improving Decisions about Health, Wealth, and Happiness, Yale University Press, May 2008.
111
State of Sutton:
options in transport to meet its targets for car travel reduction.
This kind of approach has been endorsed by David Cameron,37 as well as finding officers with the Strategic Director of Environment and Leisure, Daniel support among Sutton Councils senior
Ratchford,38 signalling his support for the nudge school of thought in a prominent local government publication. Mr approach as: Ratchford described the Councils
The difference in Sutton is that we believe in encouraging people to take responsibility and, where appropriate, change their behaviour, rather than looking for the council to cure all social ills. We dont do things for people, we do things with people. 39
The goals and the approach of nudge
Nudge Theory creators, Dr Richard Thaler and Professor Cass Sunstein propose a system of libertarian paternalism, with choice architects seeking to influence choice whilst making it easy for people who want to exercise their freedom to go their own way.
theorists are desirable in that they avoid measures in favour of softer ones,
the heavy-handed application of punitive imbued with an emphasis on working
Picking up on the point about Sutton doing things with people, we shall examine two case studies which show the
with not against residents.
The application of this approach is more welcome than Suttons previous cultural inclination towards hard travel options, to residents wishes.
doing things to people.
Councils political leadership very much
often implemented without much regard
Transport has been an area in which the political leadership of the Council has contradict the policy ethos of nudge condoned hard options which seemingly theory as described by Mr Ratchford.
37. Nudge theory back in fashion with the Tories, The Guardian, 24 March 2009.
38. Mr Ratchford is a keen proponent of cycle use, and travels between council offices on a fold-up Brompton bike, see: Sutton Council Press Release, Sutton staff lead the smarter travel revolution, 17 August 2009. method=news.detail&id=81195&layout=2 39. Were all in this together, Municipal Journal, 12 August 2009, see: http://www.localgov.co.uk/index.cfm?
112
War Against Residents - Case Studies Case Study One: 75% Reduction In CPZ Visitor Hours
Summer 2008 saw drastic cuts to One resident described the Councils consultation on the reduction of free hours as almost impossible to find and residents free parking hours within the Belmont and South Sutton Controlled originally allocated 200 free parking 100 hours, and then most Parking Zones (CPZs). Residents were hours for their visitors. This was cut to controversially of all reduced by a
that the public had no reasonable way to Council.41 The Liberal Democrat Executive
communicate their displeasure to the
Member for Transport defended the cuts hours, comparatively, than other Council had abided by statutory consultation.
by saying that Sutton provided more free Boroughs and to emphasise that the
further 50% to only 50 free hours in June 2008. This represented a 75% reduction in the space of eighteen months.
40
In reality the consultation efforts were
poor, consisting of a public notice on an and a notice in one of the Boroughs
obscure part of the sutton.gov.uk website lesser read newspapers. It took place over the busy Christmas and New Year period and garnered 22 responses a tiny fraction of affected residents. This case study shows a poor
commitment to proper consultation with

CPZs: Parking control or cash cow?
residents. The Council did not work with residents in reducing CPZ residents visitors parking hours it simply did it
CPZ residents were then entitled to purchase limited blocks of hours back from Sutton Council. The consultation efforts of the Council were subject to
to residents and without their consent. This kind of approach was endorsed by the Councils political leadership in the open forum of Suttons highest decision of the public and without remorse. It
heavy criticism with the vast majority of until the efforts of Opposition
residents totally oblivious to the changes Conservative Councillors raised free hours.
making body, the Full Council, in full view marks a stark contradiction to the ethos of nudge theory and a true commitment to softer transport demand measures.
awareness of the punishing reduction in
40. Rip-off Sutton Council As Free Parking Hours Are Slashed, Conservative Group Press Release, 30 May 2008.
41. Meeting of the Full Council, 21 July 2008, Appendix A to the Minutes, Questions from Members of the Public.
113
State of Sutton:
Case Study Two: From Carbon Footprint To Carbon Jackboot

Summer 2008 was home to another key example of how Suttons Liberal Democrats transport policy actively of the Scrutiny Overview Committee suggested that this was an insufficient sample of public opinion on which to implement such a scheme. Secondly, a Carshalton residents on the
favours hard punitive options. Proposals were devised to charge motorists in the Sutton and Belmont Controlled Parking Zone (CPZ) according to their Vehicle Excise Duty Band (VED). The proposals the Liberal Democrat-run London which linked parking permit
consultation was being carried out with establishment of a CPZ in their area. Tellingly, the consultation made no permit charging, despite running concurrently with each other. mention of the possibility of VED based
were modelled on an identical scheme in Borough of Richmond-upon-Thames charges to engine size. Bizarrely, into account.42 Consequently, an unused vehicle with a high VED
this scheme did not take mileage
rating would end up paying 200% middle-ranking VED car which may accumulate enormous amounts of mileage would pay less, despite creating greater congestion. emissions and adding to road
more for parking permits, while a
Studies from Richmond Council
itself indicated that the number
Only 3.5% of Suttons cars would have been charged extra; an unfair burden on residents who left their cars parked during the day rather than driving them around emitting fumes.
of higher polluting vehicles actually increased following the implementation of their VED-linked parking permit
43
This case study provides further evidence that the political leadership of Sutton hard transport options. Council is an enthusiastic adherent to
follow!
scheme. Naturally, Sutton wished to
Consultation was a source of controversy again. Firstly, a 10% response had been with 62% of respondents favouring the achieved from the Councils consultation proposed scheme. Conservative members
The experience from Richmond shows
that punitive charging methods, designed to reduced car use through the residents pocket, can even have the adverse effect. Punitive methods to change travel results. behaviour do not necessarily achieve
42. From Carbon Footprint To Carbon Jackboot, Conservative Group Press Release, 18 June 2008. Thames, Monday 9 June 2008.
43. See: Environment and Sustainability Overview and Scrutiny Committee, London Borough of Richmond-upon-
114
Committing To The Carrot

This report has expressed its firm support for softer transport options wherever possible because we believe rather than to browbeat and cajole that the Council is here to serve residents residents into compliance with its aims
currently is. As stated earlier in this
report, 58% of people travel by car, this is in contrast to 2% who cycle. The full are shown below in Figure 5. modal list of transport habits in Sutton
Cycling finds itself second only to
motorcycles and vans/lorries as the
smallest minority as a mode of travel in Sutton. This is a surprising figure given the green pro-cycling ethos of Suttons broad and laudable aims on making is narrow in its delivery. political administration. The Council has Sutton a truly cycle friendly Borough but
and objectives. Working with residents is at the centre of our philosophy. While it may pay lip service to this agenda, the current political administration has practice.
demonstrated it has a different view in
Paying LIP Service to cycling?

The LIP submission in 2007 is right to say becoming a cycling Borough with all the health, congestion easing and emission reducing benefits that it will bring. But in delivery. that we have high potential 45 for
If Sutton is to deliver sustainable
transport locally, it needs to make modes of transport other than cars easier and more attractive. We have outlined the problems in transport accessibility for
some parts of our Borough. Now we need to devise ways to make cycling far more attractive as a travel option than it
the aspirations have so far been narrow
Figure 5.44
Sutton's Transport Modal Share

11% 19% National Rail Undergrond/DLR 3% 10% 1% 47% 1% 2% 6%
44. Cycling Action Plan, Chapter Eleven, LIP, 2007, p.327. 45. Ibid, p.325.
Bus/Tram Van/Lorry Motorcycle Cycle Walk Car Driver Car Passenger
115
State of Sutton:

Sutton Residents' Reasons for Cycling
To get more people using
pedal-power, cycling needs to be easy. As it stands it is not.
16%
0%
13% 10%
Getting to and from work/school Shopping Leisure Fitness Racing/sports
The Mayor of London has just announced that free cycling training will be
provided through London Councils for Londoners who want to start cycling.47 Mr Johnson has authorised the
61%
The benefits for Sutton and the individual in a greater take-up in cycling are clear. Figure 6 shows why the 2% of Suttons travelling population cycle, and their motivations for doing so. By a large
decrease in cyclists killed or seriously
scheme, to continue the net
injured. This is a prime example of how the Mayoralty is leading on soft options to promote alternatives to car use. Sutton Council could take a leaf out of his book. Sutton has admirable aspirations for improving cycling in the Borough as to wait for TfL and go through the outlined in the LIP. But why does it have bureaucratic process, locking itself into a three-year programme? Why does the The Council is endlessly bidding for Council simply not get on with the job? funds through projects and travel plans, and is always slavish to the source.48 The Council leadership does not seem and proactively in delivering a cycle friendly environment.
majority, leisure is the primary factor or a place of work.
followed by transport to and from school
We need to understand why so many
people do not cycle more often and then
apply a nudge theory perspective on how to remove these barriers and to promote this modal shift in travel habit.
Suttons cycling infrastructure is not that give the cyclist an impression of danger. Also it can form a practical barrier to those who do want to cycle and are motivated to do so. The perception of it put many would-be regular cyclists off.
good. The inadequate state of cycle paths
able to think independently, creatively
being a hassle and an uphill struggle will
It needs to stop playing lip service to
Sutton High Street is a good example of an inadequate cycle path network. Pedestrians often stray onto the cycle
cycling and to start being proactive. The to be dragging its feet; it needs to
benefits are too great for Sutton Council employ their use to pedal power instead.
paths and cyclists off them, because they are poorly designed and not well defined.
46. Ibid. p.326 47. BBC London News, 18 August 2009.
48. The notion that Sutton Council does not fight its corner robustly enough in other places will be explored further on in this report.
116
Planning: Sutton, A Collection of Villages

Defending Our Suburban Realm
The London Borough of Sutton is an artificial construct formed in 1965. It was created by the London Government Act [1963], formed from the three separate local county of Surrey. boroughs, formerly part of the old
Figure 7.
Sutton is a collection of suburban character, history and heritage. If they are more than likely to say
villages; each distinct with its own you ask a resident where they live which part of the Borough, not the Borough itself. There is a genuine feel and fear that the villages and
district centres are being eroded and irreparably changed through poor of overdevelopment. planning policy coupled with the menace
Creeping Urban Sprawl

Sutton is at very real risk of urban sprawl and its impact is now noticeable in areas like Sutton South and Sutton West. Figures show that Sutton is joint fourth the development of brownfield51 sites,
Our villages and districts include:
Beddington, Belmont, Carshalton, Cheam, Hackbridge, North Cheam, Sutton, St. Helier, Wallington and Worcester Park. Planning policy SO16 49 states that it is a
highest of all the London Boroughs 50 for
which includes back garden land.52 Local neighbourhoods and Suttons villages are suffering as a result. There is a steady and alarming trend of back gardens being developed for high density flats and apartments. This will change the come. local character of our area for decades to
safeguard the distinctive suburban character of the Borough by maintaining a diverse mix of residential areas, including Conservation Areas and Areas of Special Local Character, within local neighbourhoods. That sounds very
strategic objective of the Council to
Urban is described as being: predominantly dense development e.g.
attractive and what the Borough needs in order to defend its areas of distinct local character. Sadly, the reality is different.
49. AMR 2007-08 p.131.
terraced houses; mix of uses. Some arterial routes. 53
50. Figures obtained by the Conservative Parliamentary Resources Unit. Since 1997 there has been a steady upward trend in the development of residential land in the South East. In 2005 30% of new dwellings were built on land that was previously residential, up some 14% from 1997. The figure in Sutton is 41%. 51. A brownfield site is any land, previously been used for any purpose and no longer in use for that purpose. 53. AMR 2007-08, p.138. 52. Also see Figures show Sutton in real risk of urban sprawl, Conservative Group Press Release, 28 June 2007.
117
State of Sutton:
Figure 8, a map of the urban and
suburban characterisation in Sutton, of urban characterised areas in the
with suburban characterisation, albeit either southern or northern suburban. Sutton South, for example, is Figure 8, being
shows that there is a large concentration centre of Sutton in the lighter shade of
with the distinction of being designated
blue. The map clearly shows that there is some creep into South Sutton and West Sutton as well as along Brighton Road and Carshalton Road. While it may be dwellings to be located in easily
characterised as southern suburban, in
logical for the highest concentration of accessible and well serviced locations, urban creep must not be permitted. Urban creep also features around routes connected to it.
detached, with significant landscaping and grass verges.

It is worth noting that areas shown as
predominantly detached and semi-
high density again, in Sutton Souths West London averages can also carry density has a devastating influence on the character of a local area.
Wallington High Street and the arterial
case, well above the London and South the label suburban. It is undeniable that
Figure 9 shows that twelve Council Wards in Sutton are above the London average for population density. This broadly chimes with some of the categorisations in Figure 8 for the types of area in the Borough. Interestingly, some of the most densely populated Wards include areas
54. Ibid.
If suburban Wards carry such high
population densities (in comparison with London regional averages) we need to happening to our suburban realm. carry out an honest appraisal of what is
118
Figure 9.55
We need a policy principle, which is clearly enunciated, saying that high population density is undesirable and reduce it.
the Liberal Democrat MPs for the Borough has introduced a bill to parliament entitled the Protection of Garden Land (Development Control) Bill, his party colleagues on the Councils Development many back gardens to developers.
that effective planning should seek to
Figure 8 shows a cluster effect of
Control Committee have frequently ceded
urbanisation around some of our villages, for example Carshalton and Cheam. It should be the case that planning policy reflects the priorities of our villages as centres of local identity in Sutton rather become just another part of the increasing urban sprawl.
The fact is that garden land is a target for developers because they are designated built upon and generally fall under the as brownfield sites. These sites are easily requirement to provide social housing.
than encroaching onto them so that they
We have illustrated how Sutton has been of brownfield sites in Greater London. This overdevelopment must stop. The Conservative Partys housing policy
unveiled as one of the highest developers
As stated earlier, one of the key
contributors to increasing density in an area is garden grabbing. This is occurring at an alarming rate in Sutton. This is an area of duplicity in Liberal Council Motion in October 2006 56 Democrat policy. Despite supporting a signalling steadfast opposition to the
green paper Strong Foundations: Building commitment to the protection of back gardens through enhanced powers at garden land from brownfield site designation.
Homes and Communities 57 has unveiled a
obliteration of Suttons back gardens for the purposes of overdevelopment, the to protect them.
55. Ibid. 56. Meeting of the Full Council on 30 October 2006.
local government level and the removal of
Councils leadership has done very little It is even more bizarre that while one of
We strongly support this commitment.
57. Strong Foundations: Building Homes and Communities p. 20. See http://www.conservatives.com/~/media/ Files/Green%20Papers/Housing-Green-Paper.ashx?dl=true
119
State of Sutton:
This will be achieved by making Local by being principle-based rather than control shift between Councils and Central Government allowing local
Development Frameworks more flexible rules-based. This will represent a critical
The Twin Pillars For Better Planning: A Vision For Community-Led Planning Culture
The Lib Dems are not just empty. They are a void within a vacuum surrounded by a vast inanition.
Boris Johnson - Mayor of London
authorities to fight overdevelopment on to prevent garden grabbing.58
their own terms and to take active steps
Sutton Council needs to ensure that any developments in our villages are in keeping with their local character and developer. Rigorous policies and achieve this.
that gardens are truly protected from the protections need to be set in place to
It is our firm contention, as outlined in political leadership of Sutton Council lacks any strategic vision for our
the introduction to this chapter, that the
Borough. It suffers from myopia when it comes to crafting a unique selling point for the London Borough of Sutton. Croydon and Kingston, however, have
carved their respective niches as major appear to have been so forward in
shopping centres whilst Sutton does not shaping any identity for itself. As a consequence of this, Sutton is simply not as well known as its neighbours. The sad
Shadow Housing Minister Grant Shapps is committed to action on garden-grabbing.
result is that Sutton has unfulfilled potential.
Protection in policy alone is not enough, it requires strong political leadership to accompany policy and, if necessary, to enforce it. Actions speak louder than influence locally, regionally and nationally.
It is our second firm contention that our residents by placing their wishes and policy and processes. In a similar way to transport measures, residents. We believe in community-led planning is something that is done to
planning system does not work with local priorities at the centre of our planning
words. Sutton needs a party that has real
The clear need for strong political leadership on planning needs to be married to what we shall call the Twin
planning and that the Council has a duty which is fair and transparent for them.
vision for our Borough and, secondly, a greater emphasis on communityapproved development.
Pillars for Better Planning: firstly, a clear
to residents to provide a planning culture We believe in people-centred planning.
58. The ethos of a control shift between Councils and Government is enshrined in Control Shift Returning Power
to Local Communities, Conservative Party Policy Green Paper, 17 February 2009.
120
Figure 10.59
Planning Application decisions by type

% of planning applications (Total 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% 92%
1702)
8% Officer Delegated Decisions (1559) Development Control (143)

Consequently, it is no wonder that there is considerable cynicism about local politics, especially when the local
The Conservative Party nationally has embraced a control shift in the relationship between local authorities and government in order to correct 13 years of centralisation and top-down targets from New Labour Governments.
60
candidate one has voted for ends up
Labour the role of local councillors in the planning process has become gradually more and more neutered and ineffective. Councillors sitting on development roles are now quasi-judicial at the
Under
having little ability or power to shape the community, in terms of planning, and do. This is no different in Sutton. therefore that which they were elected to
The Governments top-down targets culture on planning application completion rates has meant that local
control committees have found that their expense of their democratic role as local representatives. Strong Foundations has said the following about the changes under Labour:
authorities like Sutton have had to adopt council planning officers through
systems that place power in the hands of delegated powers and that these powers have to be exercised within very tight timeframes. In Sutton, the vast majority of planning decisions are delegated to council officers, see Figure 10.
where councillors who have been overwhelmingly elected, perhaps on a pledge to help shape the look and feel of their local community, are subsequently excluded from all consideration of that issue within their council because their position is regarded as prejudiced and their judgement fettered.61
59. 2007-08 figures 60. Control Shift Returning Power to Local Communities.
This has led to absurd situations
This creates a democratic deficit in
Suttons planning apparatus adding to a vast majority of applications being delegated to officers - admittedly
our Borough of Contradictions. With such
through necessity caused by Government
61. Strong Foundations: Building Homes and Communities p. 17
121
State of Sutton:
local councillors are unable to respond to the democratic demands of their constituents surrounding planning applications. Financial handcuffs should not be the sole determinant on whether to grant planning permission or not.
When Sutton councillors refuse
DCC members, within the bounds of reasonableness, must not find their discretion fettered on the grounds of the potential cost of planning appeals. The public purse must be protected but by the same token the Council must be
applications they often run the risk of expensive appeals from developers armed with expensive legal advice. Appeals are decided by Planning
Inspectors who are experts in the field of of the locality that they are judging. As a result, a significant number of planning refusals are successful on appeal. In made at the Development Control Sutton, on average half of all refusals Committee (DCC) by elected councillors that go to appeal, are overturned by the Planning Inspectorate, see Figure 11. Members of the Housing, Planning and Transport Policy Group have reported that members of the Development
planning law. They tend not to be experts
robust in fighting for the local character face of the developers bulldozer. These results are, of course, in
of our streets and neighbourhoods in the
accordance with planning law, but as
Strong Foundations observes, the system

is inherently adversarial62 and the only party which finds itself without a
sufficiently robust voice is that of local something that happens to local
residents. Planning and development is residents because they feel as though they do not have a sufficient voice in the fact that over half of all refusal overturned, seems to represent a proceedings. Despite being legally sound, decisions by elected councillors are contradiction of local democracy.63
Control Committee have been advised by the Councils planning officers not to of an appeal. refuse an application because of the cost
Figure 11.
SuttonSutton Development Control Committee Refusals Development Control Refusals 2007-08

60% 50% 40% 30% 20% 10% 0% Committee Refusals Overturned on Appeal (11) Committee Refusals Upheld on Appeal (9) 55% 45%
63. This appears to be above the national average of a third of appeals being allowed. The Killian Pretty Review: Planning applications - A faster and more responsive system: Final Report, 24 November 2008, Department for Communities and Local Government research paper.
122
Members of the Policy Group have
expressed their exasperation at what is perceived to be a lack of willingness to fight Suttons corner against the top-
account at the start of the planning
process, by making pre-application
consultations between developers and local residents mandatory for major applications. It has also promised to campaign and to represent their
down regime from Central Government. We attribute this malaise to the political leadership of the Council which is too lack of ambition and vision. We also contend this is slavish adherence to Whitehall, solely in pursuit of obtaining often silent on planning because of its
guarantee that councillors will be free to constituents on planning issues.64
Using Planning Tools To Protect Our Borough

Defending The Suburban Realm
The introduction to this report draws attention to the armoury of protective tools which local authorities have at their disposal, including Conservation Areas (CAs) Areas of Special Local Character (ASLC) and Special Policy Areas (SPA). These tools form ramparts against harmful development.
Government financial incentives to boost that the Borough misses out as a result. We need this compliance deficiency to end and for the First Pillar For Better rooted in Council policy.
the Councils income stream. We contend
Planning, that of vision, to be firmly
There is too often a blame game here in Sutton whereby the Council is keen to blame Central Government and the Greater London Authority for its own
failures. The political leadership of Sutton has no drive for using its own initiative and tends to think towards their own tactical and thus political advantage
Conservation Areas carry the most unsympathetic proposals for
weight. They provide protection against development. They are characterised not by individual buildings alone, but by a mixture of factors that make up the local scene from the road network to paving materials, thoroughfares, mixture of uses contemporary and historical, trees, street areas of historical or architectural merit which warrant special protection. The are currently over 8000 across the country. first CA was created in 1967 and there furniture and much more.65 They are
rather than for the strategic benefit of the Borough. We do not believe in such selfserving political face-saving.
The Second Pillar for Better Planning is to bring the community closer to the planning process. In order to do this the top-down approach.
Council must break with its addiction to a
Conservative national policy has
demonstrated a steadfast commitment to
Better Planning model. Core pledges

residents are genuinely taken into
the ethos behind our Twin Pillars for
As a local authority Sutton has the power to create CAs. Once created the Council has the duty to ensure that the protection and enhancement of the area is achieved
include ensuring that the views of local
65. See English Heritage: http://www.english-heritage.org.uk/server/show/nav.1063
123
State of Sutton:
and to publish proposals and plans to that effect.

66
Figure 13 shows that there is established use of CAs to protect our suburban environment from the menace of
approval from the Secretary of State with regard to any proposed development. Sutton has 14 CAs, see Figure 12.
Conservation Area Sutton Garden Suburb Wallington Green Carshalton Village Cheam Village Wrythe Green Carew Manor, Beddington Landseer Road, Sutton Grove Avenue, Sutton Park Hill, Carshalton Carshalton Park Beddington Park Beddington Village Church Lane, Beddington Holy Trinity, Wallington
67
Statutory duties also require
overdevelopment. This is welcomed, but such a high level of protection does not
Management Plan Adopted 2008 Adopted 2007 2009 2009 2010 2010 2010 2010 2011 2011 2011 2012 2012 2012 Further Information Designated 1989 Article 4 Direction approved 1992 Designed 1971 Designated 1968 Boundary review 1993 Designated 1970 Boundary review 1994 Designated 1968 Boundary review 1994 Designated 1977 Surveyed 1996 Designed 1992 Designated 1992 Designated 1992 Designated 1993 Designated 1993 Designated 1994 Surveyed 1996 Designated 1994 Surveyed 1996 Designated 1994 Surveyed 1994
Area (ha) 8.5ha 3.5ha 43ha 29ha 5ha 15ha 9ha 1.4ha 2ha 14ha 58ha 10ha 1.5ha 1.4ha
Character Appraisal Completed 2006 Completed 2007 Completed 2007 Started 2008 2009 2010 2010 2010 2011 2011 2011 2012 2012 2012
66. Section 71 (7), Planning (Listed Buildings & Conservation Areas) Act [1990]. 67. Ibid, Section 70 (4).
124
Figure 13.
extend far beyond them. Figure 8 gives a more up-to-date depiction of the CAs and ASLCs across the Borough than being included, for example Anne Carshalton Beeches.
that carry significance to the local scene and/or have local historical importance. Sutton currently has 35 locally listed buildings in the Borough with the mock
Figure 12 with some of the newer ASLCs Boleyns Walk, in Cheam and Pine Walk in
Tudor design buildings in The Broadway, Cheam, as an example of recently added structures.
SPAs have been created in South Sutton, South Cheam and Carshalton Beeches but are not based on historical importance. Instead they reflect the quality of development and the townscape value. They are not recognised by law in the same way that CAs are. The lack of legal status for SPAs means that they do not provide the best possible protection against development.
This scheme is a cost-effective and flexible way of identifying buildings or local community with a Council structures of merit and importance to the protection status. This places the onus on the owner to maintain its character. It is The Council should look to make better use of the Local List in protecting our within it that make it special. Unfortunately, as a local authority we cannot change a 60 year body of planning law, built up from case law and statute, but the Councils political leadership has very real power to change the culture surrounding local planning. Thus far it has chosen not to do so. We believe it should. less bureaucratic than other alternatives.
suburban environment and the buildings
Sutton has 174 statutory listed buildings and structures at Grades I, II or II* with their status administered by English Heritage.
68
Hall was granted listed building status as a building of historical and architectural buildings/structures which English Heritage has placed on its at risk interest. Sutton currently has three listed
For example, Wallington Town
register: the lych-gate at the entrance to the West Churchyard extension at St. Marys Church, Beddington, the Orangery Wall at Beddington Place, and the Grotto at Carshalton Park.
Urgent attention should be given to these architectural and historical assets in the Borough and the Council should strain to see them protected. Sutton operates a Local Listing scheme for buildings of local importance. Although they do not provide statutory
every sinew to work with English Heritage
protection they are a flexible and easier way to allocate importance to buildings
68. Under the 1990 Act.
125
State of Sutton:
The Environment: Broad Aims, Narrow Delivery

Green Council?
In a similar way to Suttons planning
policy, the Council has worthy aspirations and its vision statements explicitly state an intention to shape an environmentally included in its Core Planning Strategy section Achieving Environmental Sustainability and Improving the reads:
friendly Borough. The Councils vision, as
An attractive and distinctive suburban Borough, offering a high quality residential environment, well designed buildings, liveable streets and public spaces and, in which all development contributes towards safe, cohesive and sustainable communities.70
It would be churlish to suggest that Sutton Council has not benefited from a green reputation in the past. As the green agenda founds its roots in British politics in the late 1980s, Sutton found itself in the new wave of local authorities
Streetscene and Living Environment
An environmentally sustainable suburban Borough, building on Suttons reputation as a greener, cleaner Borough [sic] and working towards the Councils long-term goal of One Planet Living by addressing the causes and potential impacts of climate change, promoting built energy efficiency and renewables, cutting pollution, reducing waste, managing flood risk and protecting habitats and species - And diversity
promoting the recycling agenda which, as we have pointed out, local residents have embraced. In fact it first introduced kerbside collection of paper to households in 1992. However, when you strip the marketing
and rhetoric away, in terms of real action the Councils efforts can be described as between the grandiosity and the reality or, of course, a Borough of Contradictions. somewhat ordinary a gaping difference
Figure 14.69
Recycling Services Survey: How satisfied or dissatisfied are you with the quality of recycling services that are provided locally?
Fairly Satisfied Very Satisfied Neither Fairly Dissatisfied Very Dissatisfied No Opinion 0%
69. Residents Survey, p.73
59% 18% 11% 8% 2% 3% 10% 20% 30% 40% 50% 60% 70%
7-. AMR 2007-08, p.117.
126
Figure 15.71
Rubbish produced each year

Q Thinking now about household waste or rubbish, overall, how concerned would you say you are about the amount of household waste produced each year in Sutton Dont know Very concerned Not at all concerned 7% 17% 9%
27% Not very concerned 40% Fairly concerned
Base: 813 Sutton Residents, 12th October 19th November 2007
Recycling: The Facts

Recent studies show that the majority of Sutton residents are satisfied with the recycling facilities offered to them in the Borough (see Figure 14). Statistics also show that residents have strong views about waste and its management with household waste levels (Figure 15).
given the immense pressures facing local government arising from the landfill taxes that we have to contend with. It may be surprising for readers to
discover that recycling rates, according to And, as pointed out in our environmental introduction, it may come as a further surprise to discover that Sutton ranks at country, according to performance
the latest figures available, have dropped.
widespread concern expressed regarding However, on the latter statistic it is worth noting that over a third of residents are
213th out of 394 waste authorities in the assessment criteria set by Defra. Figure
waste. It is important that we understand why they are not concerned, especially
not concerned by the levels of household
16 shows that recycling fell from 2005 to 2007 (latest figures) in paper, cardboard,
Figure 16.72
Current recycling habits

Q Which of the following, if any, do you currently regularly recycle?
Paper Cardboard Plastics Glass Steel & Aluminium Cans Textiles Doorstep collection of green garden waste Food waste Electrical items Car batteries/oil Other None Dont know
2005%
85% (90) (80) (69) (71) (62) (30) (58) (37) (13) (11) (*) (5) (1)
72% 72% 66% 51% 40% 38% 28% 15% 9% 0% 9% 1%
71. Ibid. 72. Ibid, p.74
127
State of Sutton:

Sutton's Waste Out-Turns for 2007/08
80.00% 70.00% 60.00% 50.00% 40.00% 30.00% 20.00% 10.00% 0.00% Waste Recycled Composting Waste sent to landfill
Sutton is behind London Boroughs like even Richmond-upon-Thames for its recycling performance in nationwide
69%
22.61% 9.86%
glass, steel and aluminium cans and car batteries.
Bexley, Bromley, Harrow, Hillingdon and
We have entitled this section of the
chapter Broad Aims, Narrow Delivery
league tables. It should look at what they are doing right. If this requires shedding its political green pride, then so be it.
and this is eminently true when we look at the Councils Environmental Services Committees 50% recycling target for
household waste set over a decade ago.73 The 2008 overall recycling achievement is less than a third, see figure 17.
Minimising waste especially when facing 40 per tonne landfill taxes should be a better measure of delivery rather than broad rhetoric.75
Just under a third of Suttons waste is recycled with 69% of Municipal Solid Waste (MSW) 74 going to landfill (64.79% of which is household waste landfilled). Our recycling figures are less than impressive in comparison to the grand rhetoric of the Liberal Democrat administration. With 69% of the
Boroughs waste going to landfill we need to examine whether the leadership of this Council is really that green.
73. 7 October 1998 74. MSW is a waste type which predominantly includes household rubbish as well as some local commercial waste. This may account for the difference between the 64.79% and 69% figures for waste sent to landfill. 75. It is to be welcomed that the Shadow Chancellor of the Exchequer, George Osborne, has said that an incoming much needed stability to the system. See: Today Programme, Wednesday 9 July 2008. Conservative Government will look to place a floor on landfill tax for a decade from 2010 onwards in order to give
128
Saving The Planet Doesnt Have To Cost The Earth

Working With Residents
This chapter has highlighted the are wide opportunities for this kind of approach in recycling and green measures too.
importance of working with residents to achieve our aims for the Borough in the areas of planning and transport. This vital change of attitude is needed just as much in pursuing a greener and cleaner vision for Sutton. We have identified the fact
Research shows that people would
separate their rubbish for recycling if
offered financial incentives. Studies show that lower income families, in particular, would be encouraged to do this if it was accompanied by a financial reward. Figure 18 shows the percentages of and less receptive to this carrot approach.
that Suttons residents have an awareness of waste issues and want to recycle but that the political leadership of the end of the bargain with fairly
Council does not seem to be keeping its unimpressive recycling figures and
surveyed residents who were receptive
sizeable (and costly) landfill tonnage. The importance of trusting and empowering residents to do the right thing with carrots rather than sticks has have signalled our support for the
Nationally, the Conservatives are looking at incentives for improving recycling and waste minimisation. Evidence from American schemes, like RecycleBank,76 shows that people will recycle more if paid to do so.77 It has been credited with recycling increases of up to 200% which have turned some of the poorest
been explored earlier in this chapter. We concept of nudging people in the right
direction rather than shoving them. There
communities from the worst recyclers to
Figure 18.
Financial incentive
Q To what extent would a financial incentive for separating those items for collection from your kerbside, encourage you to do so? Dont know A great deal 2% Not at all 22% 26%
18% Not very much 31% A fair amount
Base: 813 Sutton Residents, 12th October 19th November 2007
76. See: https://www.recyclebank.com/
77. BBC News, Tories unveil recycling pay plans, Wednesday 9 July 2008
129
State of Sutton:
the best.78 Conservatives in local
government are leading the way on this approach with the Shadow Chancellor London, Boris Johnson as well as working with the LGA and the Mayor of Conservative Councils up and down the country. The Royal Borough of Windsor and Maidenhead became the first United an incentive-based scheme.79 The Ipsos MORI survey results in Figure 18, when broken down, show that low income households were particularly for separating waste. Two in five
Kingdom local authority to embrace such
Bioregional, a social enterprise based in Hackbridge, works with private companies like B&Q to reduce their impact on the Environment through Corporate Social Responsibility policies and initiatives..
But what does this kind of abstract and otherworldly narrative mean to local residents?
receptive to the idea of financial rewards households said that it would give them a great deal of encouragement (37% of surveyed residents compared to 26%
Worthy aims must be married to common sense when promoting environmental sustainability as it stands the political of day-to-day life.
overall). Additionally, households with financial incentives scheme.
children were 9% more receptive to the
leadership is divorced from the realities
Evidence shows that rewarding people
Grand principles and idealistic ecological mantras have their place, but we favour -to-earth and pragmatic measures like incentive schemes, to deliver a truly sustainable Borough for Sutton. An honest examination of the costeffectiveness of Sutton Councils recent initiatives needs to be carried out. Action speaks louder than words. investment in more common sense, down
helps to increase recycling. This can in which will save the Council money.
turn reduce waste being sent to landfill
Sutton Councils message on waste
minimisation and environmental issues can often be rather abstract and not immediately intuitive to Sutton residents. as an example. One Planet Living is a Take the concept of One Planet Living
80
global initiative based on ten principles zero carbon emissions, the notion that and climate change, and an anti-
for environmental sustainability including car use is contributing to global warming industrial farming agenda. The core
Community-Led Environmental Action

One of the threads of The State of Sutton: Council is often conceited enough to problems and challenges facing our
A Borough of Contradictions is that the
contention of One Planet Sutton is that we need three Planet Earths to sustain Suttons current needs.
think it is the source of all answers to the Borough. Earlier in this chapter, and in
78. The Guardian, Nudge, nudge, win, win, George Osborne MP, Monday 14 July 2008. 79. Royal Borough of Windsor and Maidenhead, see: http://www.rbwm.gov.uk/web/ news_32408_pilot_waste_incentive_scheme.htm 80. See: http://www.oneplanetliving.org and http://www.oneplanetsutton.org.
130
others, we have talked about postbureaucratic solutions to issues. Tackling threats to our environment, such as pollution and the need to minimise from a more enabling Sutton Council waste, is clearly an area which can benefit rather than a commanding one. Often,
sleeves and continued to take Council.
responsibility despite, not because of, the
In March 2007, the Liberal Democrat Bank scheme which invited local centres. Adopt-a-Bank had run
administration scrapped the Adopt-acommunity groups to adopt recycling successfully for 18 years with industrious groups like the Girl Guides, church groups, Friends of Libraries, Scouts, a local wild animal hospital etc taking community ownership of recycling
local people know what needs to be done tell them how to do it. They just need a helping hand. Take the Belmont and South Cheam
and do not need to wait for the Council to
During the height of the Green Garden Democrats decided to axe the free
Residents Association,81 for example.
Waste controversy, whereby the Liberal
centres to ensure their smooth running, keeping them clear and functional and reporting any problems to the Council. of money for the tonnage of recycled per annum.
The groups would receive nominal sums material and cost Sutton Council 18,000
Schemes like this help local people to our environment and to minimise our
take ownership of activities to improve waste. The Council is not the solution to everything; we need to look outside the
Based on a successful system in the States, Windsor and Maidenhead offer RecycleBank reward points based on the amount residents recycle and divert from landfill. These points can then be used in shops such as Marks & Spencers or donated to charity. Working with the private sector and charities can help kick-start such initiatives.
boundaries of the Civic Offices and to trust our community.
As in other areas in local government, a degree of control shifting would be welcome in policy surrounding the environment.
collection service, the Association
clubbed together to purchase their own chipper. The Council had abdicated its
In order to achieve these aims public the Green Garden Waste Disaster area.
device to deal with green waste; a wood responsibility in providing the service to easier rather than harder, so the
goodwill is necessary. Policy failures like jeopardise residents goodwill in this
make environmentally friendly behaviour Residents Association rolled up its
81. See: http://www.bscra.com
131
State of Sutton:
Case Study: Green Garden Waste Disaster, Risking Residents Goodwill

In 1999 the Council introduced a garden waste collection service to approximately 61,500 households. Each household was provided with two reusable sacks, with were smaller than the older free bags. service was scrapped. The Councils After much pressure the new chargeable corporate reputation was damaged by between the residents and the local
additional sacks purchasable for 1 each. The sacks were emptied and returned on a fortnightly basis with no restriction on the number of sacks put out.
this policy disaster and the relationship authority severely compromised. The
man behind the changes, the Executive motion of no confidence in the council chamber as well as widespread condemnation in the local media. The inability of the Councils
Councillor for the Environment, faced a
In June 2008, to much controversy, this old service was scrapped and a new were charged 35 per bag. chargeable service introduced. Residents
The doomed policy was described by the cuts caused an epidemic of fly-tipping across the Borough
82
local press as a fiasco. The controversial and huge tailbacks
administration to see the writing on the demonstrates a lack of foresight and a reckless willingness to risk public goodwill on the line for a short-term budget saving. In the end it cost the the scheme right simply so that the
wall for this policy, before it was too late,
at the Re-use and Recycling Centre on sought to avoid the new 35 charge.
83
the Kimpton Industrial Estate as residents Figure 19 illustrates some of the bad
taxpayer approximately 750,000 to put administration could save political face.
publicity. It turned out that the new bags
Figure 19.
82. Sutton Guardian, 3 July 2008. 83. Sutton Guardian, 12 June 2008.
132
Protecting Our Boroughs Green Lungs

Our Natural Inheritance
Our Borough has a wealth of natural
Figure 20.85
assets in the form of our large green
open spaces, including 616 hectares of Metropolitan Open Land (MOL), two Metropolitan Parks covering
Metropolitan Green Belt, 530 hectares of
125 hectares, three District Parks forming 80 hectares, thirty-six local parks areas of small public open space totalling 217 hectares and 203 small providing a total of 94 hectares. Sutton favourably with other areas in Greater
also boasts several parks with Green Flag Status, including Grove Park, the Ecology Centre grounds, Margarets Pool in
majority of our tree population is located in private back gardens and as we have concluded in our planning section of this chapter, we must protect these valuable assets. Figure 22 shows per capita CO2
London for tree density per hectare.86 The
Carshalton, Oaks Park and Cheam Park.84
The tallest London Plane in Britain, situated in Festival Walk, Carshalton is one example of an impressive selection of mature trees in the Borough.
emissions. Compared to the UK and London, Sutton has below average
emissions of CO2. Therefore it is not
difficult to make a link between the two. If we are to maintain or improve the above emissions rating we need to protect the green lungs of our Borough.
Trees are known to form a natural barrier against CO2 emissions and other airborne pollutants. Figure 20 shows that 17% of our Boroughs trees reside in our parks and open spaces. We contend that the
Over the last few years the amount of trees cut down by this authority far
exceeds those that are replanted to take their place. In the period 2004-2006 the felled and during 2007-2008 it replaced 2009 the number of trees cut down Council replanted only 19.5% of the trees 59.5% of removed trees. To date in 2008stands at 328. The current tree replanting policy stands at 80 new trees per year.
wealth of tree laden open green space in our Borough forms a green lung against being an outer London Borough. Figure 21 shows us that Sutton compares
http://www.greenflagaward.org.uk Londons Office, March 2005, p.3.
CO2 emissions and the pollution risks of
84. The Green Flag Award is the national standard for parks and green spaces in England and Wales, see:
85. Connecting Londoners with Trees and Woodland: A Tree and Woodland Framework for London, Mayor of
86. Sutton Council figures, see: http://www.sutton.gov.uk/index.aspx?articleid=3967
133
State of Sutton:
We argue that this is grossly inadequate. For a Council that purports to be green, a tree for its logo, Suttons massacre of its green lungs needs wholesale reevaluation. The stark divergence of our town hall leaderships rhetoric and the reality of their actions represents a shocking contradiction. We believe that our trees are priceless
our Boroughs green lungs, we are merely their custodians for the next generation. The Council leaderships passivity to the development of back gardens and its clearly evidenced disregard for our
to wish to tackle emissions and even has
Boroughs trees is a clear abdication of Council leadership owes to successive generations of Sutton residents. No Conservative administration would shirk its responsibility in this area.
the environmental responsibility that any
assets for the Borough. We do not own
Figure 22.87
87. Source: 2006 figures from AEA Energy & Environment on behalf of Defra, September 2008.
134
Conclusions
This chapter has sought to give an account of Suttons performance - good and bad - in the policy areas covering transport, planning and our environment. All three are matters of huge importance to the wellbeing of our Borough, its infrastructure and our residents.
to hard methods of changing travel
behaviour. Its inconsistent and financially imbued commitment to soft options in bidding for TfL funding is betrayed by its an ideological predilection. We argue for greater attention to the parts of the Borough that are not well serviced in needs a higher priority status.
use of hard options locally. We see this as
terms of public transport and that this The Liberal Democrat leadership is right to have a firm desire to reduce congestion but as we have pointed out, it is better done through enticement, nudging and making alternatives easier.
It will be apparent to readers that we are advocates of the nudge approach to public administration. This approach favours carrots and not sticks. It is a philosophical, as well as a pragmatic
approach to working with residents to
The benefits of reduced congestion, both
achieve beneficial changes that will yield results for the individual as well as the that large bureaucracies like Sutton change is one we take issue with. community. The internal cultural notion Council are the sole source of beneficial
in transport and environmental terms, are too great to risk through political rigidity.
The political leadership of the Council needs to abandon its apparent addiction to hard methods of changing travel behaviour.
Equally as objectionable is the idea that our local representatives somehow have the right to boss residents about, cajole them, tax them, and browbeat them into
Mike Freer, Leader of Conservative-run Barnet Council which was the first Local Authority to receive funding specifically to put the ideas of Nudge into public policy.
We celebrate the attitude of the Strategic other senior council officers in their
Director for Environment and Leisure and approach to the application of nudge
compliance on various agendas. This idea
theory in council services. We hope that the political leadership of the Council will truly take note and abandon their conflicting approach. This approach has been characterised in this chapter as a War Against Residents in transport policy. In citing this aggressive policy
Culture chapter.
will be explored further in our Council
In the context of transport we argue that the political leadership of the Council needs to abandon its apparent addiction
approach we have looked at the drastic
135
State of Sutton:
reductions in CPZ visitor hours and the doomed proposal of using the punitive the price of parking permits. Richmond-style scheme of VED bands for transparent. Part of the reason there is a democratic deficit in local planning is because of the top-down target culture
from Central Government, but this must for the political administration.
The need for cultural political shifts is also in our approach to the planning system. Rhetoric promises one thing and reality demonstrates another. We cannot change planning law because we have no legislative power. But we can change our attitude to planning and development. The Council leadership seems reluctant, or perhaps even unable, to achieve this. The contradiction is powerful and it is So why will they not use it?
not formulate a list of extensive excuses
This fruitless blame game needs to end. We need to start using the tools we have necessary, to get tough and fight our corner on planning issues with
got, to defend our suburban realm and, if
painful. They have very real power here.
Sutton is trading on past glories. Sutton Councils performance on recycling does not match its grandiose rhetoric.
developers and governmental agencies. Frankly, the leadership of the Council owes residents more loyalty than is currently being showed.
As we have said, the local authority has

Every elected member will recognise the sentiment expressed by residents in Coleridge Avenue, Carshalton when the fourth planning application was submitted to knock down an attractive house to make way for a number of smaller houses.
benefited from a reputation as a green council. But Sutton is trading on past glories. Sutton Councils performance on recycling does not match its grandiose by narrow delivery. We benefit from a rhetoric. Its broad aims are undermined motivated and informed populace who enthusiasm.
Overdevelopment and poorly thought-out development is damaging our community and our neighbourhoods. High population density is not desirable and the impact of creeping urban sprawl is clear for all to see. This is why we
have embraced the recycling agenda with
advocate our Twin Pillars approach of shaping a robust vision for Sutton and changing our planning culture to be
Yet again, we need to become a facilitator for environmental action. The amount of and will prove to be cripplingly costly. The Conservative Party approach of providing financial incentives for waste we send to landfill is unsustainable
community focused. Planning should not instead it needs to be fair and be something that is done to residents;
recycling has been proven to be attractive
136
to residents, particularly those in lower income households.
We advocate our Twin Pillars approach of shaping a robust vision for Sutton and changing our planning culture to be community focused.
Environmental messages need to be accessible to residents and realistic. residents attuned to the aims of an
Common sense is the best way to get environmentally sustainable Borough. It is also a way of ensuring goodwill. The Councils leadership has imperilled this goodwill on a number of occasions and does so recklessly.
We also see evidence that the Liberal Democrat administration is failing to protect the environmental assets of the Borough in some important areas, and inheritance for future generations in consequently it is damaging the natural Sutton. Its inadequate policies on trees, and will to maintain and even enhance
in particular, demonstrate a lack of vision these natural assets. We contend that this gross abdication of responsibility must end and that the duty of protecting the
characters of our Borough is solemn and rather than just rhetoric. In transport, planning and the
requires greater commitment in delivery,
environment, the London Borough of Sutton can no longer afford to be a Borough of such stark contradictions.
137
State of Sutton:
138
The Council of Contradictions
Council Culture:
The State of Sutton: A Borough of Contradictions Council Culture: The Council of Contradictions
139
State of Sutton:
Introduction
A Detached Council Leadership
Throughout this report it has been our contention that Sutton is a Borough of Contradictions, by this we mean that there are many things to celebrate in
As a corollary to this, another
contradiction unveils itself. The Councils leadership will blame anyone and everyone apart from itself for its above average levels of council tax. Be it the Government, the Greater London Authority or the Councils status as a
floor authority, the political leadership is no evidence that Suttons political
Sutton and many things to be concerned about. Most of all we think that this is true of the Council itself.
never accepts responsibility. Sadly, there leaders give council staff the support corner in its relationship with other Governmental bodies.
they need, in order to fight the Boroughs
We believe that the Councils political leadership is becoming increasingly detached from the day-to-day realities of life in Sutton. The connection between elected representatives and residents
Consistently, the Liberal Democrat
Council Leader and his Executive fall back on the now fatigued boast of the Audit Commissions Four Star Improving Strongly status.1 We argue that star
needs drastic improvement. Britain is in the grip of the worst recession for 70 years; Sutton residents are worried about their jobs, savings, mortgages and rent, yet council tax has never been so high. Figures show that Suttons unemployment figures have doubled over the hardest hit London Boroughs.
ratings from remote quangos do not
chime with residents. Instead customer
satisfaction from local people is the real indicator of this Councils effectiveness. Such awards mean nothing to residents who have to contend with some of the highest council tax rates in London.
the last year and that it features as one of
Because the political leadership is so not reflecting the needs of the
distant from the people of Sutton, it is community through its tax-levying powers. Records show that council tax under the Liberal Democrats has never stopped rising. We contend that this is symptomatic of a political addiction to painfully obvious: Sutton residents are
The Liberal Democrat administration also has to go a very long way before it can truly call its efforts in consultation with
residents in any way credible. Numerous administration does not take the
budget consultations have shown that the necessary effort to ascertain the views of Despite it being the most important decision of the political year, the
tax increases. The contradiction here is feeling the pinch in this recession and the Council will not use its most direct power to make the financial burden easier on local households.
residents when setting a financial budget.
administration does not do as much as it can to ascertain residents priorities. In not taking consultation with residents failing in its duty.
seriously, the Councils administration is
1. The Audit Commission is a quango designed to improve effectiveness in local public services, auditing over 11,000 public bodies with budgets totalling 200billion. See Audit Commission website: http://cpa.audit-commission.gov.uk/STCCScorecard.aspx?taxid=105155
140

Trusting People: Post-Bureaucratic Local Politics
A theme has run through several of the that as an organ of the State, Sutton Just as local authorities are better placed than Central Government and regional quangos to make the decisions that will affect their areas the most, so are local people and local communities. Sutton Council needs to learn that it is not
Council Culture:
chapters in this report, namely the notion Council is quite untrusting and even
imperious in its relationship with external stakeholders, like the voluntary sector, taxpayers. and the Councils customers, the resident
always the best vessel for change and sometimes it may need to switch to a facilitator role.
improvements in our Borough, and that
As we have explored in the issue of Youth Provision, a number of barriers prevent the Council from allowing those in the know from getting on with the job of the most troublesome barrier to have improving our Borough. We argue that been erected is the unhealthy sense of
Several chapters have indicated support for the Nudge Theory of Richard Thaler and Cass Sunstein. The application of nudge approaches will symbolise a
wholesale departure from the Council
leaderships current practices. Sutton is currently run by command politicians who do things to residents. We think
risk aversion. It is this absence of trust that creates malaise in our local public life. It is as though the Liberal Democrat centralist leaf out of the Labour
that the Council should help residents to wherever possible. In fact, we should be more sensitive to the us and them lexicon which frequently creeps into the malign consequences.
do the right thing and to work with them
leadership of Sutton Council has taken a Governments book and views any
innovation, which is not sanctioned and grown in-house, with suspicion, and to be greeted with very lukewarm support. With the real prospect of localism just
Council/resident relationship, often with
The Council could learn a lot from Thaler and Sunsteins thesis and it is edifying to see that senior staff have an understanding and appreciation of the exciting potential to Suttons local governance which nudging presents.
around the corner, Sutton would benefit prominent thinkers in the Conservative individuals, local communities and
from the tripartite approach favoured by Party which aims to see a control shift to neighbourhoods, and the local authority as the locally accountable democratic Sutton can also learn more from institution of local government. As such, Westminster Councils neighbourhood
Value For Money

We also contend that the Council does that, despite the hard work of many
not represent true value for money and council officers, Suttons political leaders show little inclination to remedy this. In the instances when it does accumulate budget underspends, savings are not
approach in order to strengthen the role of backbench councillors in local areas.
reserves, makes savings and/or achieves passed on to the taxpayer. Instead, the
141
State of Sutton:
administration always opts to spend windfalls.
money, even when it has come from
Disconnected: Council Tax, Consultation and Council Leadership

Local government barely has a pulse. The Plan: Twelve Months To Renew Britain 2
The political leadership of the Council
pays lip service to value for money and innovation in driving down costs and making efficiency savings but it does not want to use the most effective tool there is to achieve these ends - the market. Fundamentally, Sutton is an in-house provider of services and the political through the use of Competitive
Douglas Carswell MP, Daniel Hannan MEP
Consultation? What consultation?

Public participation in local democracy is weak locally and nationally. Engagement between local authorities and the residents they serve is also in an
leadership is hostile to testing the market Compulsory Tendering (CCT) for
contracts and services. Quite simply,
there is no desire to change in order to of this is the Councils leviathan
achieve real cost savings. One symptom partnership arrangements which do not always seek out value for money. Finally, we have said that Liberal
enfeebled state. In the May 2006 local elections in Sutton, the Borough-wide average turnout was 43%. This is ten residents do not vote.
disturbing as it means roughly six out of
Democrat political leaders do not give the backing to council officers to play hard ball with other agencies, including the Councils partners and Central
Recent studies show that only three in ten residents (31%) feel that they can Sutton in the bottom four London influence Council decisions.3 This places Councils for influencing decisions.4 As
Government. The leadership seems too eager to please other organisations despite being elected on a manifesto that makes them directly accountable to local people. We argue that this represents a all, because it illustrates the ultimate contradiction, perhaps the very worst of betrayal of local people, especially those who voted for the Liberal Democrats.
shown in Figure One, when asked to residents said that Sutton allows
describe Sutton Council, only 11% of
residents to participate in making decisions. A meagre 13% of residents

of residents.5
said that the Council listens to the views
It is indicative of how residents perceive their Council when so few say that they would describe it as a listening and participatory organisation. A less detached leadership with greater
The Liberal Democrat leadership of the Council cannot make the big changes nationally and is unwilling to do so a result. locally, with local residents losing out as
connectivity with residents would be
expected to yield a better result. Sutton
2. Carswell and Hannan published 2008. 4. Ibid
3. Place Survey 2008-09, Ipsos MORI, p.16.
5. Residents Survey, Ipsos MORI, February 2008, p.34.
142
The Council of Contradictions Figure 1.

Residents' phrases to describe Sutton Council
20% 18% 16% 14% 12% 10% 8% 6% 4% 2% 0% 19% 13% 9%
Council Culture:
11%
"Sutton allows residents to participate in making decisions"
"Sutton listens to "Sutton responds "Sutton consults residents' views" to complaints residents about properly" issues which affect them"
also finds itself slightly below the outer London average for civic participation with 14% of residents involved.
6
characterise the Borough. Studies show that residents from these areas, particularly the Northern Wards, are the least likely to say that they are well informed by the Council. Those who
In terms of participatory local democracy, this makes for depressing reading. Why do over two-thirds of Sutton feel that they cannot influence the decisions of
perceive that their area has got worse over the past two years are also more likely to say that Sutton Council does not tell them very much at all about what it does.8 A prime example of how the leadership commitment to consultation with
their locality? And why did only four out of ten residents vote in the local elections?
The connection and vibrancy of local
democracy needs to be re-established in to vote in the last elections with the
of Sutton Council has demonstrated poor residents, is its effort in consulting levels of council tax.
Sutton. Six out of ten residents chose not residents of St. Helier (35.28% turnout), The Wrythe (36.56%), Sutton Central (36.62%) and Wandle Valley (32.74%) appearing to be the least motivated. the socioeconomic divides which
6. Ibid, p.13.
7
residents on the Councils budget, and
In preparation for the 2008-09 council week budget consultation with the full
These Council Wards represent some of
budget, Sutton Council conducted a six force of its communications department.
7. All of these Wards returned Liberal Democrat councillors, with one subsequently resigning his membership to sit as an Independent.
8. Residents Survey, p. 40. This link between the socioeconomic status of Council Wards is also linked to value for
money surveys, with those living in the Northern Wards more likely to disagree that the Council gives value for money.
143
State of Sutton:
Its efforts managed just 22 responses.
9
the Boroughs population. The questions were deliberately innocuous and leading, with one question asking: Do you agree
This accounts for approximately 1500 of

th
council tax, that they did not receive tax, and that in a time of financial hardship the Council should help amount of council tax.
value for money for the level of council
that we should take more action early to avoid problems in the future?
To illustrate how poor this attempt at consultation was, a handful of Conservative councillors and activists took to Sutton High Street and in the space of only ten minutes exceeded the six weeks to accumulate.
10
residents by freezing or cutting the
Easing The Burden On Residents

David Cameron has said that he will force high tax local authorities to hold a referendum on council tax if they
number of responses it took the Council in February 2009, at the close of another consultation effort by the Council, this time at the hands of a new communications department with One year on,
propose above inflation increases.12 He the right to a greater say over local
has argued that local people should have taxation and that the Governments
centralised.14 Capping, despite being
capping mechanism 13 is crude and too
increased budgets, 72 responses were 0.04% of Suttons population.

11
necessary at the time of its introduction during the Thatcher years to deal with course. extreme left wing councils, has run its
received. This represents approximately
Both instances demonstrate how low
consultation on council tax levels is on priorities.
As shown in figure 2 (overleaf), Suttons above the rate of inflation since 1995.15
the Liberal Democrat leaderships list of
level of council tax has relentlessly risen Excessive increases in local taxation from the Liberal Democrats have been without mercy. We argue that it does not have to be this way.
Such minute responses were attributed to Council and that the budgets put to them The alternative budget consultation showed that, on average, 80%+ of were benign. We do not accept this.
the fact residents were satisfied with their
carried out by the Conservative Party residents thought they pay too much
age.
Nationally, the Conservative Party is embracing a localist policy of empowering residents to determine the
9. On February 2008 population figures for Sutton of 181,044 residents with approximately 65-70% at voting 10. Conservative Press Release, Lib Dems Consult, Consider and Ignore on Council Budget, 4 February 2008.
11.Voluntary Conservative efforts on council tax consultation, on the other hand, turned in approaching 2000 responses thanks to the efforts of councillors, activists and the Boroughs two Conservative parliamentary candidates. 12. Cameron to give residents council tax veto, The Daily Telegraph, 13 November 2007.
13. Since 2003 the Labour Government has used its powers to stop local authorities increasing tax above a centrally set level, called capping. 2009. 14. Control Shift: Returning Power To Local Communities, Conservative Party Policy Green Paper, 17 February 15. For more information see: http://www.freezethetax.org.uk
144
The Council of Contradictions Figure 2.

Sutton's Council Tax Increases 1993 to Date
350 300 s 250 e s 200 a e r c 150 n I 100 50 0
Council Tax Increase (1993=100) RPI Inflation (1993=100)
Council Culture:
balance between council tax levels and policy green paper Control Shift states
pockets in a time of recession can be described as benign.
the services delivered by the Council. The that a Conservative Government will local referendum if a local authority proposes a tax increase above the
We repudiate the spin that low reply rates for council budget consultations indicate a contented population. The reason why Sutton Councils consultation responses are so pitiful is because the political leadership lacks the drive, ambition and political will to ask residents what they money and the services provided. The benefits of a Conservative really think about council tax, value for
introduce a system that will trigger a
nationwide threshold. This proposal
places the taxpayer at the heart of the local tax rate-setting process, providing a clear mandate between the local taxpayer and his Council.
This proposal has great potential for
Sutton. For too long, Suttons taxpayers of local taxation by the political leadership in the Civic Offices.
Government are clear for Sutton. The their council tax if they can keep
have been left out of the loop on the rate
pledge to help local authorities freeze increases below 2.5%, presents enormous potential for a clear break from a high tax past. Continuous Council tax increases in Sutton include a 12% increase in 2003. to fund this policy from reduced budgets.
In this time of economic hardship Sutton Council has the power to do more, and major strain on household budgets council tax. must do more to ease what has become a
The Conservatives have found the savings Government advertising and consultancy
We assert that no council budget which takes more money from residents
145
State of Sutton:
The Liberal Democrat leadership in possesses is a creature of statute. Laws made in Parliament confer powers, or competences to local councils. This
Sutton is addicted to increasing council tax; a Conservative Government would give the Council the opportunity to go Council Leader to the prospect of documented.
16
hinders a local councils ability to take system can strike down a councils legal term for outside its remit or beyond its powers.
cold turkey. The resistance of Suttons Conservative plans for tax freezes is well
action in many cases, because the legal undertaking because it is ultra vires, the
It is worth pointing out that this council tax policy is voluntary for local authorities. There is no Labour-style centralised coercion with punishing penalties for non-compliance. This indicates an application of nudge
approaches at the highest strategic level of Conservative Party thinking. Councils will be encouraged to reduce local levels
council in response to local people wants to take action to address a specific local problem, it may not be able to do so, simply because it has no specific statutory power to take the action in question. 17 Councils simply cannot take
the action which residents may overwhelmingly require of it because of legal rigidity. While accepting that the rule of law is the cornerstone of a that ad hoc law is the hallmark of
As Control Shift puts it: [I]f a local
so. Provided the political leadership in a local authority has the political will to reduce taxation, a Conservative to help.
of taxation rather than forced into doing
functioning 21st Century democracy, and
Government would be poised and ready
tyranny, we must make the case that the current legal relationship between the Government and local government is deeply flawed.
The benefits from this scenario are clear a Conservative Council, working with a Conservative Government can freeze its history. Suttons council tax for the first time in
We have made the case in the planning section of the Transport, Planning and that numerous hindrances in our law,
The Environment chapter to this report

common law and statute, have given rise councillors in many areas of local
That is not to say that the task will be
easy, but the present dearth of ambition current political leadership is hanging many residents out to dry.
to ease the burden on residents from the
to an exceptionally neutered role for local governance, often in areas that have
Freeing Up Councils: Putting Residents Interests First

Sutton Council, like all other local
strong demand from residents for more
operative competence. But it is not solely legislative flaws that create handcuffs to competences in local government, it is the policy orientation and the political just as importantly local councils themselves.
authorities, suffers the yoke of statutory duty and restricted competence. This means that the power our Council
16. Evening Standard, 1 October 2008.
outlook of the Government and perhaps
146

It is too often the case that the political leadership of local councils Sutton being one is too scared of its own The Liberal Democrat leadership have
Council Culture:
bought into the culture of compliance Stars are not reflective of real service to unwittingly echo the feeble
shadow when it comes to taking action for local residents. The administration revel in their Four Star status, take
and reject any assertion that their Four delivery or efficiency. Instead, they seem rationalisation employed by Labour
immense comfort from it and then think
that the job of local government is done. intention to remove the shackles from
The Conservative Party has made clear its local councils and this will include giving them a general power of competence the ability to get the job of delivering for of ultra vires accusations. This means can do it.
18
Ministers for the target driven quango
compliance culture. They work in reverse by suggesting that their Four Stars are proof enough that services have communication to tell people.19 improved, but that they just need better
residents done, without the constant fear that as long as it is lawful a local council
The doting attention given to the Audit Council is ironic given the Liberal
Commission by the leadership of Sutton Democrat Deputy Leader and Treasury spokesman Dr Vince Cables now well documented disdain for the organisation. Dr Cable has called for the organisation compete for stars from an unelected to be disbanded and that making councils
If a remote and unaccountable quango to top all quangos is happy (the Audit Commission), then the Liberal Democrat Leader of Sutton Council is happy. He, and his colleagues, are content. They have done their job in their minds.
This is not the hallmark of good local governance. It is a symptom of the detached and otherworldly culture of the Councils leadership, undeniably well meaning but ineffective.
quango was disrespectful and utterly perverse. 20 We could not agree more
with Dr Cable in this regard, but what of
his party colleagues on Sutton Council? 21 When it comes to using initiative and
doing things independently, Conservative Councils like Westminster City Council, Council have strengthened their Surrey County Council and Kent County individual ward councillors through
The Conservative outlook is not focused on slavish compliance to the Audit Commissions latest whim. It is about
removing the handcuffs, both imposed
and self-imposed, on local government do.
devolved budgets. Kent, for example,
to deliver what councillors are elected to
gives each councillor 10,000 to whom apply for funding.22
any local voluntary community group can
18. Ibid, p.15.
19. Bundreds blind belief, John Seddon, The Guardian, Thursday 7 July 2009.
21. This would not be the first time that the local Liberal Democrat leadership would find themselves in hot water with their senior frontbench. The Lord Oakeshott of Seagrove Bay, Liberal Democrat Treasury Lords spokesman asked question [HL4580] in the House of Lords on Tuesday 15 July 2008, in which he slammed councils who invested in Icelandic Banks prior to the collapse of Heritable Bank, the United Kingdom subsidiary of Landsbanki 22. Member Community Grant Scheme, see guidance: http://www.kent.gov.uk/NR/rdonlyres/D29F3679-BBF84127-A758-3DEE49250D9A/22482/GRANTSnotesandapplicationform09version3.pdf. .
20. Cable slams star rating assessments, Local Government Chronicle, 2 July 2009.
147
State of Sutton:
Sutton Councils leadership talks the talk when it comes to localism through the use of Local Committees (a step in the right direction) but could give them their neighbourhoods. controversial pet project is due to cost 8.5million. This is the kind of money that voluntary sector groups in Sutton, who make the very most of shoestring budgets, can only dream of.
stronger devolved budgets to deliver for
Conservative Councils have put their
Similarly in our chapter on adult social
money where their mouth is. They are backing up their localist credentials with cash.
Service That Can Affect Everyone, we
services, Transforming The Hidden
argue that the Councils leadership must look at what more it can do to help the voluntary sector in assisting in the the area. This agenda, like youth
We see this as a refreshing approach in
tackling the Borough of Contradictions.
delivery of the transformation agenda in provision, has long-term life-changing
Voluntary Sector
In several chapters of this report we have argued for what is called the postfundamental conceit that local bureaucratic approach; breaking with the government institutions are the universal key to tackling the issues that matter to residents. This conceit is both spoken and unspoken.
significance for so many Sutton residents. Voluntary endeavour, in our view, has a role to play in environmental communityled action, as outlined in Transport, Community recycling schemes have
Planning and The Environment.
worked in the past but no longer seem interesting to the Council leadership.
In Youth Provision, Health and Leisure we have voiced our exasperation at the lack to use their expertise in working with of trust in voluntary youth organisations young people. The benefits of this are
We have briefly mentioned the scheme in Kent, called the Member Community Grant scheme. The Councils only
stipulation is that applications must show community benefit potential and to hold a bank account. It has benefited groups date through its no-strings-attached in the county to the tune of 3million to approach. Examples of projects which of a youth club, outdoor education voluntary carers group. Individual
clear, but cultural barriers are obstructing this fruitful avenue. The consequence of this is that the in-house provision of youth services simply is not effective. A together with risk aversion and spliced with a quick hit short-term ethos has
mixture of centralising conceit, meshed
have benefited include the establishment projects for disaffected youths, and a councillors retain the strong link to the community that they are supporting.
hampered the effectiveness of a service
which has exceptional potential for longBoroughs young people.
term, life-changing youth services for the
Our voluntary sector forms the beating
This risk aversion is also very costly. Take the Sutton Life Centre for example. This
heart of public life in Sutton. It is a credit to the entire Borough. The many groups, behind the scenes and rarely in the
148

limelight, have tremendous amounts to give in terms of time, enthusiasm, and experience. differ from Sutton by sharing the rewards of good management by easing the tax burden.
Council Culture:
We could do so much more to become a even untrusting, acquaintance.
facilitating Council rather than a distant,
The administration in Hammersmith and nearly half a million pounds. They have gained 4million in savings from their Access Strategy, while simultaneously improving it. Despite a multiplicity of budgetary pressures being imposed on
Fulham has used smarter working to save
More Than Just Words: Value for Money

Spending in Sutton has expanded
award-winning service called Customer
continuously over the 23 year period that the Liberal Democrats have been in control. Stark differences between different London Councils who are
local government, the administration in Hammersmith and Fulham has reduced actual spending by 7million. The Councils debt has been lowered by spend on services.
distinct in their attitude to public finances and local governance, can be illustrated and Fulham. No one leads the way in lowering council spending and delivering value for money quite like Hammersmith and Fulham. The authority, riddled with debt, to go on to while delivering improved services to by Conservative-controlled Hammersmith
20million, freeing up more money to
When setting the council budget for 2009 to freeze and even cut council tax
-10, the Liberal Democrats had the power because they had accumulated reserves given the increasingly gloomy financial climate in a worsening recession, that this was the right thing to do. of 11million.24 Conservatives argued,
Conservatives have taken a high-tax local cut council tax by 3% two years in a row residents. This is reflected in a doubling of the resident satisfaction rate. They are delivering value for money by spending 4million over two years to pay for round - the-clock beat policing in town centres and investing more in schools and adult social care services. Unlike Sutton they are unafraid to embrace market forces
The kind of relentless and imaginative push for value for money in Hammersmith and Fulham has delivered real financial benefits to residents living in that Borough. Despite differences in Sutton and Hammersmith and Fulham can be achieved. the level of Government grants between their example shows us that reductions
and to commit to market testing council compulsory tendering by Hammersmith and Fulhams leadership to the tune of
services. The commitment to competitive
In Sutton, value for money should be more than just words. It should be a reality for residents.
90million (equal to half of their overall budget), is predicted to yield 5million worth of efficiency savings.
23
.They also
2008, p. 11.
23. The New Good Council Guide Part One, Councillor Stephen Greenhalgh, Centre for Policy Studies, September
24. The 11,140,000 fund, marked as "Amount of General Fund Balance generally available for new expenditure," in the Sutton Council Statement of Accounts 2007/08, page 11.
149
State of Sutton:
Conclusion
Sutton Councils political leadership suffers from the terminal political malady of believing its own spin. They believe that they are a value for money that they listen to residents. They believe administration. They believe that tax increases that have relentlessly risen above RPI are acceptable. And,
It is an ideological framework which sees the public purse as a legitimate plaything; an inexhaustible source of being the Sutton Life Centre. The constant drive which the Council
experimental income, with the latest fad
leadership shows towards attracting
attention via the dreaded buzzword of
innovation 25 means that the taxpayer, more often than not, has to pick up the bill.
disturbingly, they believe that consulting 0.04% of the Boroughs population is an a level of council tax which impacts on 100% of the Sutton residents. adequate sample of public opinion to set
The ideology favours the tried and
tested in the areas of traditional council service provision, as well as expensive but safe partnership projects. These projects are the polar opposite to the
This brings us to the unhappy conclusion that Sutton Councils leadership is inherently ideologically wed to practices which are innately high cost. Hard pressed taxpayers are footing the bill.
It would be churlish and unfair to say that the Councils leadership are not wellmeaning, but we argue that their cultural a disconnect with the people of the
market-based practices which we have highlighted in Hammersmith and Fulham as an example of how a council really can than a myth, but a reality. This brings us to the unhappy conclusion that Sutton Councils leadership is inherently innately high cost. Hard pressed taxpayers are footing the bill.
cut costs and make value for money more
ideologically wed to practices which are
It does not have to be this way though. There is an alternative and it will come about through fresh thinking and an of where the Councils efforts have
honest appraisal of our Borough in terms brought about beneficial change and
approach to local government represents Borough. The rot that has caused this
where it has not. Adult social services is a core example of how the Council has transformation agenda. But in other areas, for example, education, the Council administrations efforts in supporting our grammar schools in done the right thing by embracing the
gulf between the people on the street and the ruling Liberal Democrat politicians in the Civic Offices is attributable to ideology rather than individuals. A distinct version of Liberal Democrat Borough. politics has evolved in the climate of our
delivering superlative results lacks even the slightest trace element of political support. Moreover, we have provided
25. We put the view that innovative in the Liberal Democrat ideological lexicon in the Sutton context represents expensive.
150

evidence to the contrary in our chapter
Council Culture:
Opening the Door of Opportunity to Local Children.
There is an alternative and it will come about through fresh-thinking and an honest appraisal of our Borough.
Sutton is riddled with contradictions, some worse than others, but with some the deplorable state of our council requiring urgent attention in particular, housing stock and the passivity of the threat to our suburban realm from developers.
Council in the face of the ever present
The final contradiction is that Sutton is a nice place to live but it could and should be so much better. This will be achieved and those of the present and changing Sutton from being a Borough of Potential.
by learning from the mistakes of the past
Contradictions to a Borough of Fulfilled
151
State of Sutton:
152
The State of Sutton: A Borough of Contradictions

The London Borough of Sutton is spending 437 million of taxpayers money in 2009-10. Like the proverbial iceberg, many of the services are not always visible. Many services affect everyone, others affect the most vulnerable in our society. Either way, they matter, contributing to the quality of life of every resident in Sutton. The State of Sutton: A Borough of Contradictions is one part of a once in a generation opportunity to conduct a thorough investigation of the relationship between Sutton Council, other service providers and residents. The authors have listened to experts, politicians and residents. This is the only way to achieve the balance between a range of priorities while ensuring no-one is left behind. All but one preconceived idea were kept out of the investigation; one of the few rules that we are not prepared to be diverted from is that we must always achieve the very best value for money, making the most of every penny of tax and council income spent in the Borough. As the Borough changes, we want residents to help manage that process ensuring that they continue to live in a place that represents their views and aspirations and one that reflects their concerns. This report is the first step in renewing the connection between politicians and residents. It is the first move in starting the debate about the changes needed in Sutton.
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The State of Sutton: A Borough of Contradictions

Foreword by Councillor Paul Scully Leader of the Opposition, Sutton Council

In The State of Sutton: A Borough of

living here. The location is convenient,

attractive place for people who want to

councillors elected to represent the

gratefully tugging our forelock to our

elected by residents of the Borough to set

Leader of the Opposition, London Borough of Sutton

Foreword by Councillor Paul Scully

played out in the public eye. The green

This document is also about forward

government finance. We need to be of the day.

mindful of this as we address the issues

the Borough. The world does not stand

ambitious leadership and being open to

which initiatives and pressures that we

real commonsense action. There is plenty many examples of excellent innovative

Councillor Paul Scully

Centre risks being another project that is

Transforming The Hidden Service That Can Affect Everyone

Adult Social Services:

Sutton Council should examine how

Personalisation: The Independence and Empowerment Agenda

In 2006, this vision was reinforced in the

White Paper, Our health, our care, our

Transforming The Hidden Service That Can Affect Everyone

Adult Social Services:

residential services, tailored to individual

Because of Britains cradle to grave

care services.6 With the elderly population

The Demographic Time-Bomb: Intelligent Commissioning

between what is termed as need against towards personalised services in the

Primary Care Trusts (PCTs) fulfil their

duties to provide effective health and local population. It includes

outcomes, the procurement of products

commissioning on PCTs vary considerably.

be done and they just want to get on with

vulnerable residents, their families and

Voluntary sector organisations like the

First Contact With The Hidden Service

system. A breakdown of the types of calls

We support the powerful contribution of voluntary sector organisations in this

calls dealt with through first contact at

source or signposted to other available

Adult Social Services:

services has risen. Safe Call has also increased.

The number of calls solved at source at

Equipment Services) forms the largest

OT and ICES11 (Integrating Community

source (without the need for signposting

united Access Team. This coincides with

A Borough of Contradictions Figure 3.

Waiting List Numbers

159 136 101 99 108

Months 2008 vs 2009

It can include adaptations to the

The Hidden Service: Why Transform It?

OT services are invaluable to residents. residence in the traditional home.

changes mean people are living longer.

Expectations of what is needed to live a been higher. Life expectancy has

Transforming The Hidden Service That Can Affect Everyone

Adult Social Services:

Dual ImperativesResources and Independence