Recommendations & Conclusions
40 items
2
Conclusion
Tenth Report - Restoration and Renewal …
The House of Commons Commission proposed to dissolve the Sponsor Body without considering why governance arrangements did not work and potential alternatives, including whether the House administrations can satisfactorily oversee work. Following a discussion of the indicative cost and schedule estimates and a continued presence assessment, the Commission proposed that …
Government response. This recommendation is for Parliament. Target implementation date: this recommendation is for Parliament; the relevant date is that of the debates in each House later this month, and subsequently the date of debates on the required regulations. Initial options relating …
HM Treasury
3
Recommendation
Tenth Report - Restoration and Renewal …
Critical value for money risks, which we have previously highlighted, have still not been addressed. The NAO’s January 2022 report found that risks we identified in our October 2020 report remained. This included the Sponsor Body managing factors outside its control, with the most significant interdependent projects delayed or paused. …
Government response. First bullet - Structures to achieve a single set of objectives and requirements The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation although note it is for both Houses to ultimately agree the …
HM Treasury
4
Recommendation
Tenth Report - Restoration and Renewal …
The Commissions have asked for further options to be explored but is unclear how the higher costs, greater duration and added risks, including extraordinary health and safety risks, of a continued presence during the building works can be managed. The Delivery Authority told us in March that although it is …
Government response. The Commissions have asked for further options to be explored but is unclear how the higher costs, greater duration and added risks, including extraordinary health and safety risks, of a continued presence during the building works can be managed. 4. …
HM Treasury
5
Recommendation
Tenth Report - Restoration and Renewal …
To date, there has been a failure of transparency and accountability over work to restore and renew the Palace. This includes: the House administrations being three months late sharing, in line with expected standards, information on a recent asbestos incident with those impacted; the Sponsor Body choosing not to consult …
Government response. To maintain effective transparency over the Programme: • Measures should be put in place by the Programme’s Accounting Officers to ensure the programme sponsor reports regularly to Parliament on progress, including information on the potential costs and risks estimates and …
HM Treasury
6
Recommendation
Tenth Report - Restoration and Renewal …
Not Addressed
The Parliamentary Accounting Officers have not made clear whether the House authorities can deliver the work envisaged by Parliament. We are concerned that the Clerks may feel constrained in sharing their professional views as Accounting and Corporate officers on what is deliverable. For government programmes, Accounting Officers must assess the …
Government response. The government's response provides lists of Treasury Minutes responses for previous sessions without addressing the specific recommendation about the Clerks making their expert advice available and writing to the Commons and Lords should they be tasked with delivering a programme …
HM Treasury
1
Conclusion
Tenth Report - Restoration and Renewal …
On the basis of a report by the Comptroller and Auditor General, we took evidence on the restoration and renewal of the Palace of Westminster (the Palace) from the Sponsor Body Chief Executive Officer, the Delivery Authority Chief Executive, the Clerk of the House and the Clerk of the Parliaments.2 …
Government response. We are writing in response to the Public Accounts Committee’s report of 29 June 2022 “Restoration and renewal of Parliament”. We welcome the report and thank the Committee for its careful and ongoing consideration of this topic. Our joint response …
HM Treasury
7
Conclusion
Tenth Report - Restoration and Renewal …
The Clerk of the House told us that every year the restoration and renewal of the Palace is delayed adds risk and cost such as through nugatory spending.18 In 2014, an independent assessment found delays to the decision may add between £60 million and £85 million per year (in 2014 …
HM Treasury
8
Conclusion
Tenth Report - Restoration and Renewal …
Since the start of 2016, there have been 25 fire incidents within the Palace and 13 incidents of falling masonry.22 Nearly two hundred years ago, in 1834, the historic Palace was destroyed by a fire following delay restoring the building.23
HM Treasury
9
Conclusion
Tenth Report - Restoration and Renewal …
In May 2022, the Clerk of the House of Commons told us that this period of uncertainty was “highly corrosive and damaging” for retaining the vital expertise needed to develop the Programme.24 This echoed the Delivery Authority’s comments to us in March, that there was a significant risk it would …
HM Treasury
10
Conclusion
Tenth Report - Restoration and Renewal …
In March 2022, the Delivery Authority had already lost some newly recruited staff and access to technical contractor expertise. Then, in May 2022, the CEO of the Sponsor Body announced her resignation, along with two other senior members of Sponsor Body staff.27 The Clerk of the House of Commons told …
Government response. The Clerk of the House and the Clerk of the Parliaments commit to implement this recommendation. Target implementation date: Not applicable, as this recommendation is ongoing. As noted in paragraph 27 of the Commissions’ report, the Delivery Authority will remain …
HM Treasury
11
Conclusion
Tenth Report - Restoration and Renewal …
We questioned the Clerk of the House of Commons on the timeframes and Parliamentary processes required to make any changes and provide more certainty. He told us that the House Commissions had sought additional assurance work ahead of a June 2022 joint meeting to agree a report setting out their …
Government response. First bullet - Indicative timeframe The Clerk of the House and the Clerk of the Parliaments commit to implement this recommendation, where it is within their powers to do so. Target implementation date: The Commissions’ timeframe for the debates in …
HM Treasury
12
Conclusion
Tenth Report - Restoration and Renewal …
The Commissions intend to put indicative resolutions based on this report to Members and Peers before the summer 2022 recess. The Clerk of the House explained that formalising the Commissions’ proposal would require the Leader of the House of Commons to lay an affirmative instrument before both Houses to be …
Government response. First bullet - Indicative timeframe The Clerk of the House and the Clerk of the Parliaments commit to implement this recommendation, where it is within their powers to do so. Target implementation date: The Commissions’ timeframe for the debates in …
HM Treasury
13
Conclusion
Tenth Report - Restoration and Renewal …
The Sponsor Body told us it has not estimated the costs associated with dissolving itself, which will depend on what the changes to the governance arrangements and proposed work look like. Depending on their grade, its staff have notice periods of between three and 12 months.35 The independent expert review …
Government response. Managing the short-term risks to value for money to avoid nugatory expenditure The four Accounting Officers agree with the Committee’s recommendation. Target implementation date: this recommendation has been implemented. There are already processes in place within Parliament, the Sponsor Body …
HM Treasury
14
Conclusion
Tenth Report - Restoration and Renewal …
In February 2022, the House of Commons Commission proposed that the sponsor function should transfer to a “new, separate department serving both Houses”, with its head formally accountable to the Clerk of the House or the Clerks of both Houses and ultimately to the Commissions.37 The House of Lords Commission …
Government response. This recommendation is for Parliament. Target implementation date: this recommendation is for Parliament; the relevant date is that of the debates in each House later this month, and subsequently the date of debates on the required regulations. Initial options relating …
HM Treasury
15
Conclusion
Tenth Report - Restoration and Renewal …
On 14 June 2022, the Commissions published the areas where they sought the Houses agreement. This included that the Sponsor Body should be replaced, and that the sponsorship function, now termed client function, would be brought in-house to Parliament for these early programme stages. In practice, the Clerks of the …
Government response. This recommendation is for Parliament. Target implementation date: this recommendation is for Parliament; the relevant date is that of the debates in each House later this month, and subsequently the date of debates on the required regulations. Initial options relating …
HM Treasury
16
Conclusion
Tenth Report - Restoration and Renewal …
The Clerk of the House of Commons explained that the technical capacity needed to take on the Sponsor Body’s role was well beyond anything within the House administrations’ in-house resource. He suggested there will need to be a professional client function with the same mix of professional skills as the …
Government response. Second bullet - skills and expertise The Clerk of the House and the Clerk of the Parliaments commit to implement this recommendation. Target implementation date: Not applicable, as this recommendation is ongoing. As noted in paragraph 27 of the Commissions’ …
HM Treasury
17
Conclusion
Tenth Report - Restoration and Renewal …
In terms of the Clerks’ role, Members of both Houses value their expertise in terms of procedural knowledge, but they may not have the requisite skills to oversee the delivery function (the Delivery Authority) in a complex programme with multiple interdependences. There is no evidence that the Clerk of the …
Government response. Second bullet - skills and expertise The Clerk of the House and the Clerk of the Parliaments commit to implement this recommendation. Target implementation date: Not applicable, as this recommendation is ongoing. As noted in paragraph 27 of the Commissions’ …
HM Treasury
18
Conclusion
Tenth Report - Restoration and Renewal …
We questioned the Clerk of the House of Commons on the House administration’s performance managing similar programmes. The expected cost of the Elizabeth Tower refurbishment has roughly tripled, from £29 million set out in the outline business case in 2016 to £80 million in the revised business case approved in …
HM Treasury
19
Conclusion
Tenth Report - Restoration and Renewal …
We also questioned the House administrations’ protocols on how they to responded to safety incidents during works.46 On 19 November 2021, contractors working in the Speaker’s private apartments identified a release of asbestos between 23 October and 27 October 2021.47 We heard that, although the site was immediately closed when …
Government response. Fourth bullet – safety escalation and reporting protocols The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation. Target implementation date: the revised safety escalation protocols were implemented on 6 April 2022. A further …
HM Treasury
20
Conclusion
Tenth Report - Restoration and Renewal …
The Clerk of the House of Commons explained the House administrations stood down all works on the parliamentary estate on 9 February, in part to check whether the right protocols were in place and understood by the relevant staff.50 He told us that the handling of the incident was not …
Government response. Fourth bullet – safety escalation and reporting protocols The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation. Target implementation date: the revised safety escalation protocols were implemented on 6 April 2022. A further …
HM Treasury
21
Conclusion
Tenth Report - Restoration and Renewal …
The incident was formally reported to the Health and Safety Executive on 10 February 2022, with relevant trade unions informed on 15 February. The Clerk of the House of Commons acknowledged that the staff affected should have been contacted with greater urgency. The Clerk attributed the delay to disputes between …
Government response. Fourth bullet – safety escalation and reporting protocols The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation. Target implementation date: the revised safety escalation protocols were implemented on 6 April 2022. A further …
HM Treasury
22
Conclusion
Tenth Report - Restoration and Renewal …
In proposing to replace the Sponsor Body, the Commission did not set out what options were considered for the revised governance and how they differed from existing arrangements.54 The Sponsor Body told us that it has not been involved in all the conversations that led to the Commission’s proposals.55 We …
Government response. This recommendation is for Parliament. Target implementation date: this recommendation is for Parliament; the relevant date is that of the debates in each House later this month, and subsequently the date of debates on the required regulations. Initial options relating …
HM Treasury
23
Conclusion
Tenth Report - Restoration and Renewal …
In June 2022, the independent review panel recommended that bringing the sponsor function in-house should be viewed as a pragmatic measure – the sponsor body governance model could be made to work but was unlikely to be viable given the “extent of lost confidence and momentum for bringing the sponsor …
Government response. The Panel concluded that the governance model for the delivery phase will need to be separately considered and confirmed after the scope and preferred delivery strategy is agreed. In line with HMT Green Book processes, governance structures will be considered …
HM Treasury
24
Conclusion
Tenth Report - Restoration and Renewal …
The Clerk of the House told us that he expected the Infrastructure and Projects Authority (IPA) to assure the arrangements but recognised that the IPA had no formal role over the Programme.60 Following our March evidence session, the Clerk clarified that the IPA will not be providing assurance over the …
HM Treasury
25
Conclusion
Tenth Report - Restoration and Renewal …
When we reported on this Programme in October 2020, we found the Sponsor Body had not engaged sufficiently with Members, Peers, Officials, and staff to clarify how it would reconcile the range of individual views within Parliament. While the Sponsor Body should consider Members’ differing perspectives as much as is …
HM Treasury
26
Conclusion
Tenth Report - Restoration and Renewal …
The Clerk of the House of Commons recognised the challenge of the Programme’s clients—including Members and the Commissions—not having a single voice.66 In our view, until Parliament can provide a clear steer on what it wants, it is almost impossible for anything to be delivered.67 We are concerned that the …
Government response. First bullet - Structures to achieve a single set of objectives and requirements The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation although note it is for both Houses to ultimately agree the …
HM Treasury
27
Conclusion
Tenth Report - Restoration and Renewal …
On 18 March, the Commissions issued a joint statement setting out nine parameters to guide forthcoming decisions. This included considering further options to undertake work without decanting and looking at doing work over a shorter period. The statement reaffirmed the Commissions’ commitment to health and safety.69 The Clerk of the …
Government response. The Delivery Authority should progress the intrusive surveys during the summer to determine what the asbestos removal plan should be, including whether it is safe to remain in the Palace whilst these works take place. The Sponsor Body CEO and …
HM Treasury
28
Conclusion
Tenth Report - Restoration and Renewal …
In our October 2020 report, we noted that success for the Programme depended on factors outside the Sponsor Body’s control.73 The NAO’s January 2022 report reported 64 Committee of Public Accounts, Restoration and renewal of the Palace of Westminster, Nineteenth Report of Session 2019–21, HC 549, 2 October 2020 65 …
Government response. First bullet - Structures to achieve a single set of objectives and requirements The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation although note it is for both Houses to ultimately agree the …
HM Treasury
29
Conclusion
Tenth Report - Restoration and Renewal …
When we last examined the Programme, the House of Commons planned to decant to Richmond House, creating a temporary chamber.78 We heard that of the £70 million written off when the Commons decided not to pursue this plan, most was related to the planning permission. The Clerk of the House, …
Government response. Second bullet - Risks of interdependent programmes The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation. Target implementation date: subject to endorsement by both Houses of Parliament, the target date for implementing the …
HM Treasury
30
Conclusion
Tenth Report - Restoration and Renewal …
Until February 2022, the Sponsor Body was preparing a business case based on Parliament fully moving out of the Palace during the works (known as a ‘full decant’). In December 2020, the House of Commons Commission agreed to ask the Sponsor Body to consider the implications of the Commons staying …
Government response. The Delivery Authority should progress the intrusive surveys during the summer to determine what the asbestos removal plan should be, including whether it is safe to remain in the Palace whilst these works take place. The Sponsor Body CEO and …
HM Treasury
31
Conclusion
Tenth Report - Restoration and Renewal …
The Sponsor Body returned to the Commissions with its initial analysis on the impact of a continued presence in January 2022.82 In the initial analysis, the Sponsor Body and Delivery Authority assumed that the Commons Chamber, alongside other functions requested by the Speaker of the House such as a media …
Government response. The Delivery Authority should progress the intrusive surveys during the summer to determine what the asbestos removal plan should be, including whether it is safe to remain in the Palace whilst these works take place. The Sponsor Body CEO and …
HM Treasury
32
Conclusion
Tenth Report - Restoration and Renewal …
In March 2022, the Delivery Authority explained to us that initial analysis showed that, although technically possible, continued presence would lead to higher costs and 74 C&AG’s Report, para 3.24 75 C&AG’s Report, Figure 12 and para 3.27 76 C&AG’s Report, para 3.25 77 HC1100 Qq 141–142, HC49 Q59 78 …
Government response. Risk threshold The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation. Target implementation date: risk management processes are already in place. Subject to endorsement by both Houses of Parliament, the target date for …
HM Treasury
33
Conclusion
Tenth Report - Restoration and Renewal …
The Delivery Authority has now been tasked with developing new options for undertaking the work that will involve some continued presence.87 We asked the Clerks if they could manage the risks to users of the building should the House of Commons maintain a presence in the Palace during the works. …
Government response. Risk threshold The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation. Target implementation date: risk management processes are already in place. Subject to endorsement by both Houses of Parliament, the target date for …
HM Treasury
34
Conclusion
Tenth Report - Restoration and Renewal …
In our May evidence session we asked the Delivery Authority whether, given its earlier analysis of continued presence options, it was comfortable developing these current options. The Delivery Authority told us that it had agreed a task brief to respond to a new and different question on the issue of …
Government response. The Delivery Authority should progress the intrusive surveys during the summer to determine what the asbestos removal plan should be, including whether it is safe to remain in the Palace whilst these works take place. The Sponsor Body CEO and …
HM Treasury
35
Conclusion
Tenth Report - Restoration and Renewal …
Through our work we often see a lack of openness and transparency about programme progress, performance and decision-making. In January 2021, we concluded it was vital that Parliament’s own major project, the Restoration and Renewal Programme, was an exemplar of an open and transparent project which welcomes full scrutiny.93 84 …
Government response. First bullet – sponsor reporting The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation. Target implementation date: the target date for implementing the new two-tier governance structures, and therefore revised arrangements for reporting …
HM Treasury
36
Conclusion
Tenth Report - Restoration and Renewal …
For government major programmes, Accounting Officers are expected to assess the delivery risks, publishing a summary of this assessment, and seek a ministerial direction should they consider a decision they are being asked to implement compromises value for money.94 In 2020 the Speaker of the House introduced a procedure, modelled …
Government response. The Clerk of the House and the Clerk of the Parliaments broadly agree with the Committee’s recommendation Target implementation: not applicable, as this recommendation is ongoing. The Clerk of the House and the Clerk of the Parliaments are very aware …
HM Treasury
37
Conclusion
Tenth Report - Restoration and Renewal …
Furthermore, the Commission has not yet set out its reason for suggesting the abolition of the Sponsor Body.99 The Sponsor Body had set out indicative cost and time estimates for the work, and then heard about plans to abolish it – we asked if this was a case of ‘shooting …
Government response. The Commissions have asked for further options to be explored but is unclear how the higher costs, greater duration and added risks, including extraordinary health and safety risks, of a continued presence during the building works can be managed. 4. …
HM Treasury
38
Conclusion
Tenth Report - Restoration and Renewal …
To work quickly, Parliament and the Sponsor Body agreed that parliamentary domestic committees, such as the finance committees for each house who support the Commissions, would not scrutinise and endorse the Programme’s assessment of the Programme costs and the impact of continued presence before this material was shared with the …
Government response. The CEO of the Sponsor Body and the CEO of the Delivery Authority accept this recommendation. The domestic committees of the two Houses are key stakeholders for the R&R programme of works and have an important role advising the Commissions …
HM Treasury
39
Conclusion
Tenth Report - Restoration and Renewal …
We reiterated that significant developments with the Programme should be fully in the public domain and received a commitment from the Clerk of the House, that the House will always be told when there is a significant development with the Programme.106 94 HM Treasury, Managing Public Money, May 2021, Box …
Government response. The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation. Target implementation date: the revised safety escalation protocols were implemented on 6 April 2022. A further review of their effectiveness is scheduled for October …
HM Treasury
40
Conclusion
Tenth Report - Restoration and Renewal …
Following the House administrations being three months late sharing information about a recent asbestos incident, the Clerk of the House acknowledged staff should have been notified earlier.108 We heard relevant trade union representatives were informed on 15 February, five days after the report to the Health and Safety Executive.109 The …
Government response. The Clerk of the House and the Clerk of the Parliaments agree with the Committee’s recommendation. Target implementation date: the revised safety escalation protocols were implemented on 6 April 2022. A further review of their effectiveness is scheduled for October …
HM Treasury