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The Committee received report ES/1019 of Councillor Cook, the Cabinet Member with responsibility for Resources, which set out the programme of capital expenditure for the financial year 2022/23 to 2025/26, including revisions to 2021/22.
Councillor Cook explained the principles behind the capital programme which were to maintain affordability across the four years of the plan, ensure capital resources were aligned with the Strategic Plan, maximise resources through external funding and asset disposal, and not to anticipate receipts until they were realised.
Councillor Cook reported that the general fund capital programme totalled £262 million, and included £161 million of external contributions and grants, which represented 61% of the whole general fund capital programme. Following review and scrutiny of the capital programme by the Asset Management Group, Corporate Management Team and Strategic Management Team, Cabinet had reviewed the programme on the 4 January and recommended approval by Full Council at its next meeting on the 26 January.
The Housing Revenue Account capital programme totalled £78 million and included £4 million in external grants and contributions.
Councillor Cook explained the options for the funding of capital expenditure, either from external sources such as government grants, the Council's own resources and reserves, or debt. Debt was only a temporary source of finance and would be replaced over time by other financing, usually from revenue, which was known as Minimum Revenue Provision (MRP). Debt could also be repaid through the sale of capital assets. The Council's cumulative outstanding debt was measured by the Capital Financing Requirement (CFR).
Councillor Cook reported that the CFR was expected to increase by £72 million between 2021/22 and 2025/26 due to capital projects potentially being financed through borrowing. In the medium term debt was expected to remain below the CFR, but the scale of the current Capital Programme meant that the Council would begin to approach its borrowing limits over the life of the programme if other sources of finance were not available.
Councillor Cook confirmed that the programme did not pre-empt capital receipts, although some significant receipts were expected, and the financing of the programme would be revised when these were received. External funding was expected to be secured for other major projects in the plan, which would further improve the financial position in the longer term.
The Chairman invited questions.
Councillor Hedgley referred to the contributions figures detailed in the summary table of Appendix A and asked what these included. The Chief Finance Officer confirmed that these referred to third party financing, excluding grants. The two contributions in the table showed financing for coastal protection and a regeneration scheme where another organisation was providing a contribution to the project costs.
Councillor Beavan referred to borrowing limits and asked if project revenue could be used to reduce debt in this case. Councillor Cook confirmed that projects would potentially bring an asset value and income, but that income did not necessarily mean that borrowing was reduced. Borrowing would still have to be paid off over the project's life.
Councillor Beavan shared a slide comparing this Council's Housing Revenue Account capital financing against reserves with that of neighbouring Councils. Compared to other Councils, East Suffolk had very little capital expenditure, and whilst this was a prudent accounting position it did mean that there was room to invest in housing. Councillor Cook responded that whilst there were two funds, limits were cumulative across both funds. Emphasis had been placed on spending in the general fund as opposed to the housing fund as these projects would produce an asset base and income that could secure investment for housing. Councillor Kerry, Cabinet Member with responsibility for Housing, added that housing stock would be invested in as part of the Council's environmental programme but that these projects were not yet ready, and environmental solutions and costs were still being worked on. Until these projects were ready to go there would be less capital spending in housing than in the general fund. Councillor Kerry confirmed that housing targets had been discussed previously by the Cabinet and Council, and there were plans to build 176 new properties in the next three years.
Councillor Beavan stated that housing was one of the most important roles of the Council, and that there should not be a choice between building new properties and investing in existing stock to raise environmental standards. If an asset made money, it was a prudent investment which would contribute to the Councils funds, and housing was a very low risk investment compared to the building of other assets. Councillor Cook responded that there was a limit to amount the Council could borrow to fund housing building and other projects, and therefore it was necessary to prioritise some projects over others. Councillor Kerry added that at present the Council was updating existing housing stock and money was being borrowed to fund this. The total cost had not been confirmed but it would cost multiple millions, and until the Council was clearer on how much would need to be borrowed for housing refurbishment it would not be sensible to borrow more money for house building. Councillor Kerry confirmed that no more money would be borrowed to increase housing stock until the whole housing revenue account had been evaluated.
Councillor Byatt, referring to the need to update the existing housing stock, asked what would be done with properties which could not be bought up to standard. Councillor Byatt added that right to buy did affect housing stock and asked what was being done with regards to this. Councillor Kerry responded that there may be one or two properties which could not be bought up to standard, but no decisions on this had been made yet. In respect of right to buy, the Council did fully utilise all receipts, and would be in a deficit in the near future if more receipts were not realised.
Councillor Byatt referred to the Towns Fund project and asked what the timescales were for the completion of a business case. Councillor Byatt also referred to the Felixstowe Beach Huts and Lowestoft Station and asked for an update on these projects. The Chief Finance Officer confirmed that business cases for the Towns Fund had to be submitted to the Department for Levelling Up, Housing and Communities by the end of March, and so the business case would be received by Cabinet at their March meeting, and this report would include an update on Lowestoft Station. With regards to the Felixstowe Beach Huts, the project had been moved to September but would still be delivered in this programme.
Councillor Byatt expressed concern over increasing costs for the East Point Pavilion and asked whether any further costs were anticipated. Councillor Cook responded that costs had increased for all projects, and this was being monitored. Officers added that the increased costs had been due to the shortage of construction materials, but that work had now started and no additional increases were anticipated.
The Chairman referred to the replacement of streetlighting within the report, and asked whether all replacement lights would be LED. Officers responded that this was the case and that the lights could also be turned off to save power.
The Chairman referred to recent changes in interest rates and asked how the Council was planning for this in their budget. Officers confirmed that they consulted with external treasury advisors and had applied a percentage increase based on increases in previous years. Officers did try and ensure that any borrowing was at a fixed rate so that debt repayments could be accurately accounted for.
In addition, Councillor Robinson referred to changing rates of inflation and the potential for the Bank of England base rate to change, and asked whether there was a sufficient safety net in the current budgets. Councillor Cook responded that an increase in the base rate did often reduce borrowing, but it would also increase investment rates and so there was a need to balance between the two. Officers did provide weekly summaries of interest rates and movement on the Councils accounts so that the situation could be monitored closely and quickly reacted to. The Council did also have reserves which provided an additional safety net.
Councillor Lynch informed the meeting that the borrowing limit was approved by the Audit and Governance Committee, and that the Audit and Governance Committee were also advised on interest on investments. Councillor Lynch added that the Council did not have the ability to borrow over a thirty year period as had been suggested for housing, and that some Councils had run into difficulties with regards to borrowing for housing projects which had negatively impacted their ability to borrow.
Councillor Beavan commented that in such a period of uncertainty on interest rates and inflation, it was key that the Government set out a funding programme for a period of three to four years as soon as possible to provide some security.
Councillor Beavan proposed an additional recommendation to the report, that the Cabinet investigate whether it would be prudent to build an extra fifty houses per year in addition to borrowing to improve existing housing stock. The additional recommendation was seconded by Councillor Byatt.
Councillor Lynch stated that this item was to consider the Capital Programme and budget, not to amend or change the budget. The Committee could either approve the budget or not, it could not make amendments to the budget.
On a vote of five against and three for, the amendment did not pass.
On the proposal of the Chairman, seconded by Councillor Coulam and by majority vote it was
RESOLVED
That the Scrutiny Committee reviews and comments upon the Capital Programme and the Cabinet recommendations as set out below;
1. That the General Fund capital programme for 2021/22 to 2025/26 including revisions as shown in Appendix B be recommended for approval by Full Council.
2. That the Housing Revenue Account capital programme for 2021/22 to 2025/26 including revisions as shown in Appendix G be recommended for approval by Full Council