Inventing our future Collective action for a sustainable economy

Inventing our future 

Collective action for 

a sustainable economy 

The regional economic strategy 

for the East of England 2008–2031

Contents 

1 Where are we now? 

1.1 The purpose of the regional economic strategy 6 

1.2 Policy context 9 

1.3 Long-term trends and strategic challenges 18 

2 Where do we want to be? 

2.1 Vision 30 

2.2 Headline regional ambitions 31 

3 What do we need to change? 

3.1 Enterprise 50 

3.2 Innovation 54 

3.3 Digital Economy 58 

3.4 Resource Efficiency 62 

3.5 Skills for Productivity 67 

3.6 Economic Participation 71 

3.7 Transport 76 

3.8 Spatial Economy 82 

3.9 The spatial response 87 

4 How do we get there? 

4.1 Leadership, governance and delivery 112 

4.2 Monitoring 126 

5 Appendices 

5.1 Underlying principles 140 

5.2 Key terms 145 

5.3 Acronyms 151 

5.4 List of stakeholders involved in the process 153 

Key 

Throughout this document the icons below will signpost 

you to further sources of information 

For further information, 

see the evidence base 

For further information, see 

the integrated sustainability 

appraisal documents 

For further information, see the 

RES-RSS joint modelling project 

report 


resource-use and CO 2 emissions 

modelling report

2 

Foreword 

Welcome to the East of England, the UK’s leading innovation region and 

home to world-beating companies, universities and research institutes. 

Located within striking distance of London, our region plays a crucial role 

as the UK’s gateway for international trade. 

We have come a long way since the publication of the last regional 

economic strategy (RES), A Shared Vision, in 2004. Our region has overtaken 

the rest of the UK to become the country’s top location for private sector 

research and development and is among Europe’s top three. We have 

gained more than 10,000 extra businesses. New university campuses are 

opening and major new investment is now earmarked to expand our 

international ports. 

To build on this success we cannot be complacent. The next few years are 

likely to be a period of accelerating change. Our region faces challenges 

on several fronts, from the immediate issue of the credit crunch, to the 

long-term pressures of globalisation, demographic change, housing 

affordability and climate change. 

We know that for the East of England to flourish in the future, it will need 

to continuously improve its performance across the board. To achieve this, 

we will need to work together towards common goals and objectives. 

The RES sets out a vision of a forward-looking and globally competitive 

region and for the first time, bold targets for increasing productivity, skills 

levels, employment and resource efficiency, while reducing inequalities 

and greenhouse gas emissions. 

This strategy has been launched with an unprecedented level of 

stakeholder buy-in and the unqualified endorsement of the East of England 

Regional Assembly (EERA). The RES is the culmination of around 18 months 

of strategy development and extensive engagement with partners 

throughout the region. The vision and targets are consistent with the 

East of England Plan – the region’s spatial strategy – and this consistency 

is the basis for a joint implementation plan for both strategies now being 

developed by EEDA, EERA and our partners. This is another first for our 

region and illustrative of the close partnership in which stakeholders are 

working to drive forward economic development here. 

Richard Ellis 

chair, East of England 

Development Agency 

Autumn 2008 

John Reynolds 

chairman, East of England 

Regional Assembly

For the East of England to 

flourish in the future, it will 

need to continuously improve 

its performance across the 

board. To achieve this, we will 

need to work together towards 

common goals and objectives. 

Richard Ellis, EEDA and John Reynolds, EERA

Michael Allen 

East of England Environment 

Forum 

Mike Carver 

East of England 

Regional Assembly 

John Yates 


Rural Forum 

Harvey Bradshaw 

Environment Agency 

4 

Support from across the region 

This regional economic strategy sets out a clear vision of what needs 

to be done to ensure a prosperous future for the East of England. It has 

bold priorities and targets that we must observe and meet if we are to 

maintain and enhance our global competitiveness. It also identifies 

what the region needs to do to respond to the increasing pressures of 

globalisation and the challenges of climate change. 

What we, as the people and organisations that make up the East of 

England, must now do is take positive, collective action on the actions 

outlined in this strategy to secure our region’s future and make sure 

that it continues to thrive as a great place in which to live, work and 

do business. 

Barbara Follett MP 

Minister for the East of England 

Richard Lacy 

East of England Chambers 

of Commerce 

Megan Dobney 

Trades Union Congress 

in London, the South East 

and East of England 

Mark Mitchell 

Community and Voluntary 

Forum Eastern Region 

Jerry Golland 

Institute of Directors 


Richard Tunnicliffe 

Confederation of British 

Industry, East of England 

Ron King 

Federation of 

Small Businesses 

Michael Large 


Business Group 

Balbir Singh Chahal 

Minority Ethnic Network 

Eastern Region 

Shaun Thomas 

Natural England 

Members of EEDA’s Strategy Committee and statutory 

consultees on the integrated sustainability appraisal 

demonstrate regional support for the RES.

Where 

are 

we now? 

1.1 The purpose of the regional economic strategy 6 

1.2 Policy context 9 

1.3 Long-term trends and strategic challenges 18 


the evidence base 





the RES-RSS joint modelling 

project report 


the resource-use and CO 2 

emissions modelling report 

1

Where are we now? 

The purpose of the regional 

economic strategy 

6 

1.1 The purpose of the 

regional economic strategy 

Setting a vision for the East of England 

The East of England has been one of the fastest-growing regional 

economies in the UK. It benefits from a number of major assets – such 

as globally renowned research departments and institutes, leading 

companies in growing markets, major new investment to expand 

international ports and a strong relationship with London, the world’s 

leading financial centre. It also has many inspirational places including 

some of the UK’s finest natural habitats and over a quarter of England’s 

historic market towns. 

The next few years are likely to be a period of accelerating change for 

our region – the pressures of globalisation will increase, we will need to 

respond to the effects of climate change and our region will continue to 

experience considerable growth. How we address these challenges and 

capitalise on our opportunities will contribute to the region’s wider 

sustainable development objectives and affect the quality of life of the 

region’s population. 

This regional economic strategy (RES) sets out a vision, bold targets and 

priorities so that we can drive forward as a globally competitive region. 

In short, the strategy shows where we want to go and how we will get 

there. The strategy is owned by the region, and will be delivered through 

the collective work of political, business and community leaders and 

institutions. 

The RES is published alongside the following supporting documents: 

• a final evidence base, analysing the economic performance of the 

region and the market failures the RES is designed to address 

• a new environment-economy modelling report that underpins RES 

CO 2 and resource-use targets and policies 

• a final integrated sustainability appraisal statement and an additional 

investigation into the impacts of growth on biodiversity, flood risk, the 

historic environment and landscape. 

In addition, regional partners are now working collaboratively to produce 

a joint implementation plan for the regional economic and spatial strategies. 

This will continue work to prioritise policies and actions.




7 

What has been achieved since the 2004 RES was published? 

A number of positive outcomes have been achieved: 

• economic growth: between 2004 and 2006, residence-based gross 

value added (GVA) grew from £101 billion to £110 billion, while 

workplace-based GVA grew from £91 billion to £99 billion 

• employment: the labour force has increased by 90,000 people 

between October 2004 and October 2007 albeit that unemployment 

has also risen 

• businesses: the region gained over 10,000 extra (VAT-registered) 

businesses between the start of 2004 and the start of 2007 

• exports: between 2004 and 2007, the value of exports from the 

East of England increased from £18 billion to £19.8 billion 

• innovation: expenditure on research and development (R&D) by UK 

businesses in the East of England increased from £2.7 billion to 

£3.6 billion between 2004 and 2006 and increased from 21 per cent 

to 26 per cent of all R&D expenditure by UK businesses 

• skills: the number of working-age people with higher-level 

qualifications increased by over 10,000 between 2005 and 2006 

• growth: 72 per cent of new dwellings were built on previously 

developed land in 2006/07, up from 64 per cent in 2003/04. New 

dwellings provision increased in total to 24,800 in 2006/07 from 

20,400 in 2003/04, an additional 21 per cent per annum. 

Other major decisions and actions that will shape our economic future 

have been made: 

• approval for the port expansions at Felixstowe South, Harwich Bathside 

Bay and London Gateway, strengthening the East of England’s role as 

the UK’s premier gateway region and providing major employment 

opportunities 

• London has won the right to stage the London 2012 Olympic Games 

and Paralympic Games, and the region has responded with a business 

plan to seize the economic and community opportunities, alongside 

developing potential venues and training camp facilities 

• a new university and college campus has opened at Southend-on-Sea, 

with major progress also being made on new university facilities in 

Ipswich, Peterborough and Harlow 

• reform of business support has seen an increase in the number of front 

line advisors engaging with businesses 

• the region continues to attract major private sector R&D facilities and a 

number of enterprise hubs have opened and are supporting the growth 

and innovation activities of business 

• Local Area Agreements have been developed that provide a new 

mechanism for aligning activity and addressing needs and priorities at 

the local level 

• Regional Cities East has provided a nationally recognised model for 

small and medium-sized city growth and collaboration 

• local delivery vehicles have developed robust plans for the long-term 

development of key centres of development and change 

• the region has been at the forefront of renewable energy generation 

with over 50 MW of generating capacity added between 2004 and 2006.




8 

However, we still face major challenges. This includes addressing our 

recent slowdown in economic performance; the impacts of the current 

credit crunch on financial and housing markets; rising food, energy, fuel 

and commodity prices; skills and infrastructure deficits; developing a 

more sustainable economy and improving economic development 

leadership and delivery. 

More than ever, there needs to be concerted action to deliver the shared 

targets and priorities that have emerged through the process of 

developing the strategy. To this end, the RES seeks to direct the activities 

and investment of key regional and national agencies; inform the economic 

outcomes agreed with local authorities through Local Area Agreements 

and enable local government to contribute effectively to the region’s 

sustainable economic growth. However, it is vital to recognise that the 

private sector is the main driver of growth and job creation. 

Critically, the East of England cannot achieve its ambitions for sustainable 

economic growth without the support of the government. This is 

particularly important because the East of England receives the lowest 

level of public expenditure per head of any UK region. 

Accordingly, the regional economic strategy outlines a number of ‘asks’ 

of the government, around which further dialogue will need to take place: 

• stronger regional influence on the major drivers of the East of 

England’s performance, and in particular the scale and timing of skills 

and transport investment 

• greater freedoms and flexibilities to enable the region to better 

leverage capital from the market, specifically through approval for a 

new Regional Infrastructure Fund 

• greater share in the proceeds of growth, including the increasing 

returns from aviation tax gains from the region’s expanding airports, 

back to respective local authorities and the Regional Infrastructure 

Fund, to better manage the impacts of growth 

• continued development and delivery of national policies that will enable 

the East of England to meet ambitious targets for carbon reduction 

• increased investment to maintain and grow the globally renowned 

science and innovation base of the East of England – a unique asset for 

UK plc – in the face of increasing international competition for talent 

and R&D expenditure.


Policy context 

1.2 Policy context 

Regional strategies 

The regional economic strategy (RES) is one of a suite of regional strategies 

that aims to improve the quality of life for people who live and work in the 

East of England. Its primary focus is to set an ambitious vision for the 

economy to 2031 and priorities for action that contribute to that vision. 

It is intended to ensure that ‘those responsible for economic decision-taking 

are working effectively together, with common goals and accepted 

priorities for regional development’. It is developed with regional partners 

and goes through a formal consultation and appraisal process. It is an 

important framework document for other regional and sub-regional 

strategies and plans, including Local Area Agreements. 

The RES complements the East of England Plan – the regional spatial 

strategy (RSS). The RSS is a statutory document and guides local 

development documents over the period 2001–2021. The Plan was 

launched in May 2008 and a review of the regional spatial strategy is 

under way, taking into account the Housing Green Paper and analysis by 

the National Housing and Planning Advisory Unit. This regional economic 

strategy has been informed by the East of England Plan and will, in turn, 

inform subsequent spatial planning. 

Government guidance for developing the regional economic and spatial 

strategies requires that both are consistent and synergistic i . This is 

achieved by ensuring that the economic aspirations for the region set out 

in the RES underpin the planning framework of the region. Conversely, the 

economic aspirations must be consistent with, and achievable within, the 

statutory plans for physical development. 

There is a strong and complementary relationship between the two 

strategies: 

• they share an understanding of the spatial priorities of the region, 

particularly around the key centres of development and change. 

The RES adds an economic analysis of the scale and roles of key 

centres for development and change 

• the East of England Plan includes policies to support economic diversity 

and business development that support the priorities outlined in the RES 

• the headline regional ambitions in the RES are consistent with the 

housing supply targets in the East of England Plan 

• there are shared objectives in the two strategies covering housing, 

infrastructure and regeneration 

• both the RES and East of England Plan have been prepared in 

accordance with the region’s sustainable development priorities, and 

the underlying principles in the RES are consistent with the emerging 

Integrated Sustainability Framework (ISF) 

• the RES and the associated evidence base provide material input to the 

review of the East of England Plan in setting the context for the region’s 

development needs to 2031. 

9 i. Guidance to RDAs on Regional Strategies, DTI (2005).



10 

The relationship between the strategies will be strengthened further 

at the delivery stage. The region will develop an East of England 

Implementation Plan that will define a prioritised, phased and resourced 

programme to deliver the two strategies and align local objectives. 

Other regional strategies set priorities for different aspects of sustainable 

development, all of which have an impact on the region’s economic 

development. The RES has been informed by, and is designed to add 

value to, these regional strategies and national government policies. 

Figure 1 

The relationship between regional and sub-regional strategies 

Strategy 

Local Area 

Agreements 

RES 

Implementation 

Sub-regional strategies 

Other regional strategies 

RES-RSS Implementation Plan 

Integrated 

Development 

Programmes 

Multi Area 

Agreements 

Underlying principles – sustainable development 

The regional economic strategy sets out targets and priorities to make the 

East of England an exemplar in sustainable economic growth. In so doing, 

it understands the complex effects of economic growth and reflects a 

responsibility to promote and enhance the environmental, economic and 

social well-being of everyone in the East of England, both now and for 

future generations. The strategy has therefore adopted the shared UK 

principles of sustainable development, as set out in the national strategy 

Securing the Future. 

The emerging Integrated Sustainability Framework (ISF) provides 

a regional slant to these principles. It identifies overarching objectives 

for sustainable development to inform strategy development in the 

East of England. These are to: 

• promote sustainable growth within environmental limits 

• reduce poverty and inequality and promote social inclusion 

• reduce greenhouse gas emissions 

• adapt to the impacts of climate change 

• promote employment, learning, skills and innovation 

• increase resource efficiency and reduce resource-use and waste 

• conserve, restore and enhance the region’s natural and built environment 

• move goods and people sustainably 

• meet the needs of the changing regional demographic 

• provide decent, affordable and safe homes for all. 

RSS 

Corporate 

Plans






11 

The application of the shared UK principles of sustainable development 

to the RES has been tailored to reflect the objectives of the ISF. They 

inform the strategy as follows: 

Living within environmental limits – mitigating and adapting to the 

effects of climate change, conserving and enhancing the natural and 

historic environment and reducing the region’s ecological footprint will be 

critical to the sustainability of the East of England. The need to address 

this principle is embedded within the goals of the strategy (see the 

Underlying principles appendix) and headline regional ambitions (in the 

aspirations around water usage and reducing CO 2 emissions). 

Ensuring a strong, healthy and just society – the region has real 

strength in the most vital factor for modern economies – the human 

capital offered by our greatest asset, the East of England’s people. 

However, the ambitions of the RES can only be achieved if we address 

current inequalities and the region’s diverse communities are enabled to 

contribute to, and share in, the benefits of economic growth. This will 

require understanding and addressing the needs of the region’s changing 

demography in areas such as housing, public services, education and skills 

development. The contribution of each goal to this principle is summarised 

in the Underlying principles appendix. 

Achieving a sustainable economy – the regional economic strategy 

sets out targets and priorities to achieve the stable, long-term growth and 

competitiveness of the East of England. 

Promoting good governance – the leadership, governance and delivery 

section of this strategy sets out principles for developing regional and 

sub-regional governance to better deliver sustainable economic growth. 

Using sound science responsibly – the principle of using a sound 

evidence base to inform policy and decision-making has been applied 

throughout the strategy development process. The regional economic 

strategy is accompanied by a robust evidence base, which has assessed 

the viability of each of the priorities set out in the strategy. 

Integrated sustainability appraisal 

The regional economic strategy has benefited from an innovative 

approach to sustainability appraisal. A single, integrated sustainability 

appraisal (ISA) has been independently conducted and overseen by 

stakeholders. 

This has combined a number of assessments: 

• strategic environmental assessment 

• equality impact assessment 

• rural proofing 

• urban proofing. 

The ISA included a specific examination of the strategy’s possible 

impacts on health, in line with best practice. The contribution of the 

strategy to the sustainable development of the East of England – 

including the targets, goals and priorities – has been informed by the 

findings of the ISA and stakeholder comments on its recommendations. 

The ISA is available as a supporting document to the strategy and can 

be found at www.eastofengland.uk.com/res


Long-term trends and 

strategic challenges 

The region faces significant challenges 

in managing the environmental impacts 

of economic growth. 

How can we best harness the world-leading 

expertise in the region to gain economic 

advantage from action to mitigate and 

adapt to the effects of climate change? 

Scroby Sands at Great Yarmouth is one of the UK’s first commercial offshore wind 

farms. The £75 million project generates enough energy to supply over 30,000 

homes, saving the emission of 67,802 tonnes of carbon dioxide, nearly 600 tonnes 

of sulphur dioxide and nearly 200 tonnes of oxides of nitrogen each year.

Photograph: Mike Page




The East of England’s success depends 

on its quality as a place to live, work and 

do business. 

How do we combine people and ideas 

in news ways to drive the next wave of 

innovation and creativity? 

Luton is home to the biggest one- day carnival in Europe, attracting thousands 

of people each year. But the carnival is more than just a one-day event. In Luton, 

carnival arts are being used to significantly enhance racial harmony, improve 

the quality of life, build a confident local cultural identity, improve educational 

attainment and tackle social exclusion.

15 

Photograph: Pete Huggins




Economic globalisation presents 

huge opportunities and benefits for 

the East of England. 

How can our companies take 

advantage of growing markets and 

the region remain a global leader in 

innovation? 

The Port of Felixstowe is one the region’s major international 

gateways. It is the largest container port in the UK and one of 

the largest in Europe. The port operator, Hutchison Port Holdings 

Group, is currently embarking on a major reconfiguration of 

Felixstowe South. This, together with the extension of the port’s 

Trinity Terminal, will enable Felixstowe to provide a total of over 

four kilometres of deep-water container facilities by 2014, and 

total capacity at the port will increase by nearly 50 per cent.




For information on sources of data 

used within ‘Long-term trends and 

strategic challenges’, please see the 

evidence base, part 1 section 2, 

‘Economic performance of the East 

of England’ 

18 

1.3 Long-term trends and strategic challenges 

Getting economic growth back on track in the 


The East of England’s economy has been successful over the past 20 years 

and this has contributed to the attractiveness and population growth in 

the region. However, continued economic success is not guaranteed. 

For the past five years, the East of England’s economic growth rate has 

lagged behind the national growth rate, as shown at Figure 2. Despite 

having one of the highest long-term economic growth rates amongst UK 

regions, recent performance is a cause for concern. 

The main challenges for the East of England are to raise rates of 

productivity growth, increase entrepreneurship and to better manage the 

impacts of economic success in terms of economic participation and 

environmental quality. 

Figure 2 

The Annual economic GVA growth rate as of index the East of UK of England growth rate has fallen (UK-100) below the 

average UK rate since 2002 (where the UK average growth rate = 100) 

140 

120 

100 

80 

60 

40 

20 

0 

UK average 

1990 91 92 93 94 95 96 97 98 99 00 01 02 03 04 05 06 

Source: ONS, Figures calculate growth rates in total GVA indexed to UK rates, where 

UK=100 (2008) 

Total value of world merchandise exports 1996-2006, (US $ billions) 

12000 

10000 

8000 

6000 

4000 

2000




19 

Improving economic performance across the region 

Headline figures may show that the region has been a strong performer 

over the long-term, but growth has slowed recently. However, between 

counties and local areas there are real differences and continued 

divergence in performance. 

On aggregate, the region performs well in terms of the proportion of its 

working-age population in employment or actively seeking work. However, 

when a local view is taken, areas of high and persistent unemployment 

and economic inactivity remain around the region’s northern and eastern 

periphery, especially North and West Norfolk, Waveney in Suffolk and 

Tendring and Thurrock in Essex. Figure 3 illustrates this by presenting 

economic activity rates for 2006. 

Figure 3 

Economic activity rates across the region, where lighter shading indicates 

lower economic activity rates, 2006 

Three Rivers 

Bedford 

South 

Bedfordshire 

Peterborough 

Mid Bedfordshire 

Huntingdonshire 

Luton North 

Hertfordshire 

Fenland 

Cambridge 

King's Lynn and 

West Norfolk 

East 

Cambridgeshire 

South Cambridgeshire 

Stevenage 

East 


Welwyn 

Dacorum 

Hatfield 

St. Albans 

Hertsmere 

Broxbourne 

Watford 

Harlow 

Epping Forest 

Uttlesford 

Brentwood 

Thurrock 

Forest Heath 

Chelmsford 

Basildon 

Breckland 

St. Edmundsbury 

Braintree 

Source: ONS, Annual Population Survey (2006) 

Babergh 

Colchester 

North Norfolk 

Mid Suffolk 

Broadland 

Tendring 

Norwich 

South Norfolk 

Great Yarmouth 

Waveney 

Suffolk Coastal 

73.00 - 78.60 

78.61 - 80.40 

80.41 - 80.90 

80.91 - 84.00 

84.01 - 86.50 

Income distribution is similarly varied throughout the region. In 2007, 

average gross workplace earnings for employees in the East of England 

reached £24,400, just above the UK average. Workers in Hertfordshire 

earned the most at £29,100 per annum. Within the region, Peterborough 

and Norfolk have the lowest annual earnings. This is also reflected in 

divergent outcomes for GVA per capita. The causes of this divergence are 

complex, such as industrial restructuring, access to large markets and 

differences in employment rates and skills. 

Maldon 

Rochford 

Ipswich 

Southend-on-Sea 

Castle Point




20 

Figure 4 

Workplace-based GVA per head in NUTS 3 areas indexed to the 

Title to go in here 

East of England average (East of England = 100) 

130 

120 

110 

100 

90 

80 

70 

1995 96 97 98 99 00 01 02 03 04 05 

Peterborough 

Luton 

Thurrock 



Essex 

Source: ONS, Regional Accounts (2007) 

Norfolk 


East of England average 

Suffolk 

Southend-on-Sea 

The uneven pattern of growth across the region has emerged through 

the complex and place-specific interactions of people, businesses and 

institutions. Different solutions will be required to raise growth rates in 

different areas. This involves building on the specific assets, market 

opportunities, sector and technology strengths of each area. The strong 

growth of Hertfordshire and Cambridgeshire is not assured, and requires 

continued investment to nurture their long-term competitiveness. Other 

places Regional in the Strategies North and East of region, such as Norfolk, Suffolk and parts 

of Essex require new strategies and concerted action to stimulate higher 

growth rates and prosperity. The economies of these areas are 

particularly Regional hampered Economic by a weak skills base and poor Regional road Spactial and rail 

connectivity to Strategy key national markets such as London. Strategy 

Competing in the new global economy 

Globalisation is reshaping Intergrated the economy Regional of the Strategy East of England. The UK 

and its regions have long been operating in highly competitive global 

markets. Regional The East of Regional England must Regional continue to seek Regional opportunities Regional in 

international Health markets Social and remain Housing fully aware of Environment the challenges presented Culture 

by competitor Strategy regions Strategy and emerging Strategy economies. Strategy Strategy 

The region’s relationship with the rest of the world is growing in 

importance – between 2003 and 2004, East of England exports grew by 

9.8 per ?? cent Sub-regional in value, and exceeding local strategies, the average plans amd UK growth areas in agreement rate. The region ?? 

is already the third biggest exporting region in the UK after London and 

the South East. Export markets in EU accession countries, Latin America 

and the Caribbean are significant for the region relative to the UK. 

Trade opportunities will continue to increase in line with recent trends. 

As Figure 5 shows, the value of world merchandise exports increased 

from US $5.4 trillion in 1996 to $12.1 trillion in 2006. World exports in 

services are also growing markedly – up from a value of US $1.2 trillion 

in 1996 to US $2.8 trillion in 2006.




21 

Inward investment will continue to be important for the region. The UK 

remains a leading location for foreign direct investment (FDI) and 

headquarter operations in Europe, with a total of 204,000 jobs created 

from FDI projects in the UK between 2001 and 2007. In the East of 

England, the number of inward investment projects successfully completed 

each year has been on an upward trend since 1999, with 52 in 2006/07 

compared to 41 in 1999/00. 

Markets are becoming more open and flows of trade and investment are 

growing. This is largely due to economic growth and development in 

emerging economies such as Brazil, China, India, Russia, Mexico, Taiwan 

and South Korea. Many of these emerging economies have grown at rates 

exceeding the UK’s growth rate. In 2005, India and China achieved annual 

economic growth rates of 5.4 per cent and 10.2 per cent respectively. The 

UK, alongside other major European economies, is forecast to account for 

a smaller share of global output growth as emerging economies expand. 

Figure 5 

Total value of world merchandise exports 1996–2006, US $ billions 

Total value of world merchandise exports 1996-2006, (US $ billions) 

12,000 

10,000 

8,000 

6,000 

4,000 

2,000 

0 

1996 97 98 99 00 01 02 03 04 05 06 

Source: World Trade Organisation (2008) 

Globalisation offers many opportunities and benefits for the East of 

England. This includes new or expanding markets for regional goods and 

services, the potential for international collaboration in research and 

innovation or as a source of skilled workers. 

Alongside the opportunities, there are challenges. The world is becoming 

more competitive, and the emerging economies are competing on factors 

other than cost. China is projected to double its present rate of investment 

in R&D to 2.5 per cent of GDP by 2020. A survey of leading multi-national 

corporations indicated that 75 per cent of planned new R&D facilities are 

to be built in India or China. 

Advanced industrialised regions such as the East of England will continue 

to compete in the new global economy. The East of England retains 

significant economic advantages in the global marketplace – not least 

leading technology companies and research capability, proximity to 

London – the world’s leading financial market – and international 

transport gateways. However, to guarantee the region’s competitiveness,




22 

we need to enhance performance across the board in terms of the 

region’s enterprise base, skills, innovation activities and assets. Businesses 

and organisations will also have to adapt to new pressures brought about 

by the growing demand for resources, demand from emerging economies 

and global uncertainty. This includes rising food, energy and fuel prices, 

which will impact on many sectors, not least those operating in 

international commodity markets such as agriculture and food processing 

and manufacturing. 

Remaining at the forefront of the innovation agenda 

The region must build on its major strengths – as a creative region, with 

a history of leading R&D and innovation. The region has the highest level 

of business enterprise research and development (BERD) per unit of GVA 

in the UK and amongst the highest levels in the EU. It also has technology, 

health and life sciences clusters of international scale and repute. 

The nature of innovation is changing – and the region must change and 

adapt with it. 

• multi-national corporations are increasingly distributing R&D activities 

across global value chains 

• alongside technological innovation, where the East of England has 

historically excelled, there is increased focus on innovation in services 

and business models 

• innovation is taking place at the boundaries of disciplines and sectors 

and there are new collaborations between higher education, research 

institutes, the National Health Service and the private sector 

• consumers and suppliers are being increasingly involved in the 

development of products, services and digital content 

• the arts and creative practise are being increasingly drawn on to innovate 

• the next generation of web-based communities and social networking 

is providing new channels for people to shape their own lives and 

experiences. 

Creativity therefore needs to be centre stage in education, in the way we 

design our towns and cities, and in the strategies of all private and public 

sector organisations. 

To remain a leading international region for R&D activity, the East 

of England must also maximise the benefits of its position as part of the 

Greater South East. The Greater South East comprises the East of England, 

London and the South East and is one of the world’s most successful and 

dynamic centres of the knowledge economy. The East of England plays 

vital roles in the Greater South East – as a centre of world-class technology 

clusters and R&D, connecting the UK to global markets through 

expanding international gateways, as a source of high-skilled labour and 

as a residential and leisure destination of choice for London. The Greater 

South East is the powerhouse of the UK economy and the largest market 

for other UK nations and regions.




23 

Together, the three regions account for: 

• 35 per cent of UK’s population – at 22 million people it is of a similar 

scale to Shanghai 

• annual GDP of £451 billion – 42 per cent of UK output 

• 40 per cent of government R&D and 60 per cent of private R&D investment 

• 71 of the UK’s 131 higher education institutes, including the UK’s 

leading research universities 

• 54 per cent of UK venture-backed companies and 70 per cent of 

venture investment 

• UK leadership in exports and international business collaborations 

• 100 per cent of net regional receipts to HM Treasury. 

The Greater South East can lay claim to the position as Europe’s only 

credible challenger with the critical mass to rival the major US economies 

and emerging mega-regions in Asia. In the period 2000–2005, the 

Greater South East has seen leading rates of real hourly productivity 

above the levels of US comparator regions and Ile de France, the next 

largest EU mega-region. 

The Greater South East’s leadership in the knowledge economy is 

demonstrated by: 

• London’s increasing lead in global financial markets, driven by 

excellence in product innovation, the ability to attract global talent, 

market access and a competitive regulatory framework 

• London topping the Global and World Cities indices of world city 

financial and business connectivity, and Europe’s best city in which to 

locate a business 

• in 2005, the Greater South East accounting for £992 million of venture 

capital investment, significantly above the total levels for France 

(£457 million) and Germany (£363 million). London and Cambridge 

are in the top five EU locations for venture capital activity 

• Cambridge being home to EU-leading biotechnology and ICT clusters 

• the Greater South East leading Europe in terms of world-class 

universities, corporate research facilities and centres of excellence 

• four universities being in the top 30 of Shanghai Rankings 2006 

(Cambridge, Oxford, Imperial and University College, London) with only 

one other European university in the top 30 

• Greater South East universities matching many top US universities in 

investment attracted to spin-outs and licensing returns 

• the Greater South East containing major research facilities for over half 

of the top 20 global companies for R&D, which together account for 

$116 billion (28 per cent) of global R&D spend. 

The long-term competitiveness of the Greater South East is not assured. 

The Greater South East suffers major constraints, such as housing supply 

and affordability, among the highest levels of congestion in Europe, 

lagging investment in science and a weak skills base in comparison with 

competitor regions. 

Commuting to London has major impacts on economic performance in 

the Greater South East. The East of England’s commuters are concentrated 

in the southern half of the region in Hertfordshire, Essex and along the 

main rail radials into London – and account for the £10 billion difference 

between the region’s workplace and residence-based GVA. The benefits 

of the Greater South East go beyond the wealth generated by residents 

who live in the East of England and commute to London. The challenge




24 

for the region is to build on the economic linkages within the Greater 

South East to create further sources of competitive advantage and 

growth. The size and dynamism of markets and innovation excellence in 

the Greater South East is outstanding, and there is huge potential for 

additional growth through greater collaboration between our businesses 

and institutions and promoting our collective strengths. 

Improving skills to meet changing demand 

One of the principal drivers of economic performance is skills. Evidence 

reveals that the East of England workforce has relatively poor skills 

attainment in terms of higher-level (NVQ3 and NVQ4+) qualifications. 

There are two potential reasons for this. One is that there may be a lack of 

supply of skills, caused by out-migration, out-commuting, lack of demand 

from individual learners, or a lack of capacity in further and higher 

education provision. There may also be a lack of demand for these skills 

by employers. Demand for higher-level skills will increase dramatically 

over the next 20 years. 

Figure 6 

Percentage of UK jobs by level of qualification required: projections to 2020 

No qualification 

Below level 2 

Level 2 

Level 3 

Level 4 

Level 5 

0 5 10 15 20 25 30 35 

Source: CE/IER employment projections (2005) 

It will be vitally important that people in the region are encouraged 

and supported to progress up the ‘skills escalator’. Improving skills levels 

and training have major impacts on business productivity and earnings. 

For example: 

• raising the proportion of workers trained in a given industry by 5 per 

cent can be associated with a 4 per cent increase in value added, and 

a 1.6 per cent increase in wages 

• skills shortages can often act as a barrier to the take-up of new 

technologies and innovations. Research has shown that a 10 per cent 

increase in the number of firms reporting skilled labour shortages in an 

industry will lead to a permanent 10 per cent reduction in its fixed 

capital investment and a temporary 4 per cent reduction in its R&D 

expenditure. 

2020 

2004 

1994




25 

In common with the rest of the UK, the bulk of skills deficiencies reported 

by employers are in soft skills such as communication, team-working and 

customer-handling skills. These types of skills are also often essential in 

getting unemployed or inactive residents back into work. Over the next 

20 years, workplaces will become increasingly dense in their use of 

technology – across all sectors and occupational levels. The challenge is 

to equip young people with the skills for this new environment and 

constantly upgrade the existing workforce. 

Evidence suggests that employers in the region have particular 

deficiencies in management skills. In the most recent Learning and Skills 

Council (LSC) Employer Skills Survey, employers reported that 30 per cent 

of employees with skills gaps lacked management skills – the joint highest 

of the English regions. International comparative studies suggest that 

management skills are a major driver in the productivity advantage of 

leading economies over the UK. 

The skills challenges are to increase employer demand for and utilisation 

of high-level skills; better tailor skills and educational provision to 

employer needs and ensure adequate access to education and skills 

development in parts of the region that have lower levels of attainment 

than average. The region also needs to match other leading economies 

in developing an active approach to managing migration. This is essential 

for attracting highly skilled workers and researchers, enabling potential 

entrepreneurs to stay and maintaining networks with those that leave, 

so as to realise international trade and collaboration opportunities. 

Embracing change – demography, health and work 

The region’s population grew by over 14 per cent between 1981 and 

2005, which is more than double the rate for the UK as a whole and second 

only to the South West. The population is now at 5.5 million, but further 

growth to 6 million by 2021 is likely under current trends. ii According to 

predictions from Anglia Ruskin University’s Chelmer demography model, 

Cambridgeshire, Essex and Hertfordshire are projected to account for over 

two-thirds of this growth. iii 

The region’s population is aging. The Government Actuaries Department 

predicts that, over the next 20 years, the share of the region’s population 

aged 15 to 49 will decrease from 46 per cent in 2004 to 42 per cent in 

2021, while the share aged 65 and over is expected to increase from 

17 per cent to 21 per cent. This has major implications for housing markets 

and public services, but also provides businesses with a growing market 

for new products and an experienced labour supply. 

The region is increasingly open to migration from other parts of the UK 

and overseas – with people coming to live, work, visit or study. Successful 

regions and communities tend to be outward-looking and tolerant, with 

a proactive approach to attracting talented people and managing the 

effects of migration. 

ii. According to predictions from Anglia Ruskin University’s Chelmer demography model. 

iii. East of England Annual Monitoring Report 2006 Background Paper: Demographic Issues in the 

East of England 2006: Table 6.




26 

Just as the population is changing, so too are the factors that impact on 

people’s well-being and productivity. The central importance of the 

health status of the population to productivity is increasingly recognised, 

as are the economic and social costs of poor health. Health contributes to 

economic outcomes through four main channels: higher productivity, 

higher labour supply, improved skills as a result of increased participation 

in education and training and increased savings for investment in physical 

and intellectual capital (as opposed to healthcare). 

The CBI estimates that sickness absences represent an annual cost in the 

UK of £11.6 billion of lost productivity, whilst Layard has estimated that 

poor mental health alone costs £13 billion in lost output, before 

considering the wider £10 billion of costs to the Exchequer from related 

incapacity benefits. 180,000 people in the East of England are receiving 

sickness and disability-related out of work benefits. Central to efforts to 

raise productivity growth in the region must be to improve healthy years 

of life and tackle major determinants of health status, such as education, 

employment status and income inequalities. 

Access to quality employment is seen as one of the principal determinants 

of an individual’s well-being. Adults spend a high proportion of their lives 

at work and depend on the workplace for income, friendships and social 

networks and fulfilment. Employers therefore have a major role to play in 

the health of the workforce through workplace organisation and job design. 

The health system in the region also makes a major, direct contribution to 

the economy. The NHS in the East of England spends in excess of £7 billion 

per annum and is the region’s largest employer. This offers huge potential 

to stimulate innovation, source locally, improve skills and deliver climate 

change mitigation and resource-use ambitions. 

Infrastructure for a competitive and sustainable economy 

The private sector consistently identifies transport infrastructure deficits 

and housing affordability as key constraints to its competitiveness. The 

East of England has low population densities combined with long-distance 

commuting, resulting in a higher rate of travel per head than in any other 

region. Currently, 75 per cent of trips to work by the region’s residents are 

made by car. The region suffers further from congestion in urban areas 

and on the strategic road network and overcrowding on rail routes to 

London. Road and rail access to ports and airports does not adequately 

support the development of their future capacity, nor enable a greater 

proportion of goods and people to be moved by rail, which is important in 

reducing the environmental impacts of growth. 

The continued attraction of the East of England and the Greater South 

East to mobile businesses and talented people will be determined in large 

part by our ability to keep pace with the investment in, and effectiveness 

of, the transport system of our competitors.




27 

Key drivers will be improving journey times and journey time reliability 

through: 

• investment to tackle pinchpoints in the strategic road and rail network 

• improved access to our international gateways and increased capacity 

in the network that links regional cities to major markets such as 

London, the Midlands and the North 

• increasing the share of journeys using public transport and rail 

• greater use of technology to enable individuals and businesses to use 

the network more productively and in managing demand. 

Tackling the growing problems of housing demand and affordability will 

also be important. Housing affordability affects the ability of businesses 

to attract and retain a skilled labour force, can dampen entrepreneurship 

as people are forced to lock up wealth in their homes, and lack of access to 

the private housing market can foster inter-generational cycles of 

deprivation. It is vital that the region responds effectively to these 

pressures over the long term to avoid a drain of talented people to other 

regions and nations. 

Ensuring the region is an attractive place to live, work and do business 

The region’s success as an economy is increasingly dependent on its 

quality as a place to live, work and do business. Many international cities 

and regions are now placing major focus on the factors that attract and 

retain talented and highly skilled people and their families. 

This includes: 

• the quality of the school system and designing safe and exciting places 

for children 

• improving the public realm and creating new spaces for community use 

and interaction 

• a vibrant and distinctive retail, cultural and sporting offer 

• access to high-quality green spaces and landscapes 

• providing an affordable, diverse and high-quality housing stock 

• embedding technology in homes and places to transform access to a 

wide range of services and leisure activities 

• networking communities and businesses to provide new opportunities 

for collaboration. 

The East of England has unique environmental and cultural assets that 

can differentiate it from other regions in the UK and abroad. This includes 

the distinctive urban fabric and heritage of the region’s cities and market 

towns, exceptional landscapes, habitats and coastal areas. Growth must 

be managed carefully to conserve these assets – but growth also offers 

opportunities to increase access, enjoyment and resources to manage 

these assets.




28 

Managing the environmental impacts of growth 

The region needs to ensure that economic growth is environmentally 

sustainable – which means ensuring that the natural resource needs of 

future generations are not compromised by current activities. The threat 

of global warming is very significant for the region as it is very vulnerable 

to the increases in sea levels associated with climate change. There is 

increasing evidence that, to limit global warming, industrialised economies 

may need to make an 80 per cent cut in their 1990-level CO 2 emissions by 

2050. This represents an annual reduction in the order of 3.5 per cent. 

The region also needs to: 

• radically change patterns of resource-use – energy, materials, water – 

to reduce our unsustainable ecological footprint and carbon emissions 

• conserve existing landscapes, biodiversity and heritage assets and 

prevent habitat fragmentation 

• develop a network of new and restored, large-scale habitats, bringing 

major ecological, leisure and tourism benefits 

• encourage and support businesses to better understand the risks posed 

by climate change and adapt. Some of the effects of climate change 

will be specific to certain locations (eg industrial developments close to 

fluvial or coastal environments) or sectoral (eg on agriculture and food 

processing), however others will have effects across the economy – for 

instance, through disruption to supply chains, utilities and the transport 

system. It will be key for businesses to build the skills for adaptation and 

for all sectors to work together to build a more resilient system.

Where do 

we want 

to be? 

2.1 Vision 30 

2.2 Headline regional ambitions 31 












2

Where do we want to be? 

Vision 

30 

2.1 Vision 

The regional economic strategy’s vision for the East of England is: 

By 2031, the East of England will be: 

• internationally competitive with a global reputation for 

innovation and business growth 

• a region that harnesses and develops the talents and 

creativity of all 

• at the forefront of the low-carbon and resource-efficient 

economy. 

and known for: 

• exceptional landscapes, vibrant places and quality of life 

• being a confident, outward-looking region with strong 

leadership and where communities actively shape their future. 

Setting a target date of 2031 brings the global economic forces 

faced by the East of England economy sharply into focus. 

The region operates in an increasingly competitive marketplace, 

where knowledge, ideas and networks are the currency as the 

global economy is being reshaped. 

The vision also emphasises other major drivers: 

• that developing, attracting and retaining talent drives 

economies, and as people are more mobile they increasingly 

make choices on the basis of the vitality, environments and 

the quality of life offer of places 

• that leadership in transforming to a low-resource-use and 

low-carbon economy, and success in adapting to climate 

change, is both an environmental necessity and a major 

opportunity for business growth.


Headline regional ambitions 

31 

2.2 Headline regional ambitions 

Through extensive consultation regional targets 

have been set to achieve the strategy’s vision. 

These targets address the distinctive set of challenges facing the region 

over the next generation and describe the leading and sustainable 

economy to which the East of England aspires. Though ambitious, the 

coordinated action of local, regional and national partners will ensure 

the East of England improves both its economic and environmental 

performance while addressing inequality. They aim at improving the 

quality of life in the broadest sense. 

Targets to achieving a more prosperous and sustainable economy 

As a key indicator of economic well-being, improving the growth rate of 

output per capita is necessarily a headline ambition for the regional 

economic strategy (RES). Achieving it will require faster growth in the 

productivity of those who live and work in the region and higher employment 

rates. This will bring important challenges such as population and housing 

growth, sectoral change and environmental and resource-use pressures. 

A comprehensive programme of research was undertaken to provide 

stakeholders with the information necessary to weigh up these complex 

considerations. 

These included: 

• the RES-RSS joint-modelling project: an economic forecasting model 

built specifically for the East of England that jointly models economic, 

housing and population growth 

• REEIO environmental and resource-use modelling: testing economic 

growth scenarios and policy options for their impact on greenhouse 

gas emissions, water use, energy consumption and waste arisings 

• analysis of the impacts of economic growth scenarios on biodiversity, 

historical heritage and other environmental receptors. 

The headline regional ambitions are designed to: 

• anticipate the performance of the wider UK and world economies 

• be consistent with the scale and distribution of future physical 

development as laid out in the regional spatial strategy 

• minimise the environmental and resource-use impacts of 

economic growth 

• recognise infrastructure constraints and pressure on public services 

• be consistent with other headline targets and objectives, other key 

regional strategies and public service agreements 

• take account of the region’s governance structures and changing 

institutional landscape.



32 

Overarching ambitions for sustainable economic development 

Productivity and prosperity 

Annual growth in real workplace-based GVA over 2008 – 2031 

Per capita 2.3 per cent 

Per worker 2.1 per cent 

Employment 

Employment rate by 2031 

Working-age population 80 per cent 

16–74 population 70 per cent 

Skills 

Share of working-age population with qualifications by 2020 

(aged 19 to state pension age) 

NVQ level 2 or equivalent qualification and above 90 per cent 



Inequality 

Earnings 

Level of lower-quartile to average incomes by 2031 60 per cent 

Greenhouse gases 

End-user-attributed CO 2 emissions by 2031 

Reduction on 1990 baseline level 60 per cent 

Water resources 

Household per capita consumption of water 

Reduction on 2008 baseline level by 2030 20 per cent 

Per capita consumption in 2030 120 litres* 

*per head per day 

Productivity and prosperity 

If growth in output per worker increased to just 2.1 per cent each year, 

by 2031 real GVA per head would be over 70 per cent higher than today. 

Workplace-based gross value added (GVA) measures the total economic 

output of the region. On a per capita basis it is a key indicator of material 

prosperity. On this measure, the East of England is less prosperous than 

many other European regions with similar populations and industrial 

structures.

In the future, people in business will 

be much more flexible in the way 

they communicate and collaborate, 

and lifelong learning will be an 

accepted reality. The internet, instant 

messaging and email have already 

revolutionised how we search for and 

exchange information. Things are 

likely to change even more radically 

in the next five years. 

Ian Neild, 

BT 

Ian Neild, BT futurologist, at Adastral Park, 

home to BT’s research and development 

activity, in Martlesham, Suffolk

The East of England is a great place to be 

because it’s close to London, yet lower in 

cost and with excellent international links. 

To keep the best students coming, the 

region needs to maintain its excellent range 

of degrees, and cater for new and innovative 

areas of study. And, for international 

students like me, help and advice about 

using our skills in the UK when we’ve 

finished studying would be really useful. 

Seandette Wiltshire, 

University of Essex 

Seandette Wiltshire, postgraduate 

international marketing and 

entrepreneurship student, the University 

of Essex, Southend-on-Sea, Essex



For further information 

on GVA data for the East 

of England, see the RES-RSS 

joint modelling report. 

35 

Comparison with other European regions 

Region GVA per capita (PPP, East of England = 100) v 

2006 2000–2006 

percentage growth 

per annum vi 

East of England 100 1.90 

Bavaria 103 1.21 

Stuttgart 105 1.36 

Madrid 65 1.33 

Catalonia 58 1.60 

Southern and Eastern Ireland 145 5.61 

East Austria 96 0.95 

Mainland Finland 107 2.32 

Stockholm 174 2.26 

Zurich 212 0.00 

Though growth in GVA per capita in the East of England has been 

reasonable by European standards, it has been slower than for the UK as 

a whole over each of the past five years. 

The RES ambition for GVA is a statement of consistency between the 

regional economic and spatial strategies. It is to achieve growth rates 

over the 2008–31 period that are more ambitious than the government’s 

current Regional Economic Performance Public Service Agreement (REP 

PSA) and are consistent with the level of physical development laid out 

in the East of England Plan. vii On the assumption that the housing supply 

targets in the Plan are achieved and rolled forward to 2031, average 

growth of 2.1 per cent per annum on a per worker basis and 2.3 per cent 

per annum on a per capita basis would achieve this ambition. By 2031 

real GVA per head would be over 70 per cent higher than today. The 

performance of the economy relative to other UK and world regions 

would also be much improved. 

Figure 

GVA per 

7 

capita indices under the RES-RSS and business-as-usual scenarios 

GVA 

GVA 

per 

indicies 

capita 

(2007 

(2007=100) 

= 100 

indices under the RES-RSS and 

business-as-usual scenarios 

180 

170 

160 

150 

140 

130 

120 

110 

RES-RSS 

Business-as-usual 

100 

2007 2009 2011 2013 2015 2017 2019 2021 2023 2025 2027 2029 2031 

Source: East of England Forecasting Model (RES-RSS joint modelling project) 

v. Purchasing Power Parity (PPP) estimates adjust for differences in the cost-of-living, Cambridge 

Econometrics (2007). 

vi. Not evaluated at PPP. 

vii. The REP PSA is based on raising the rate of per capita growth over 2003–2012 above the 

average for the period 1990–2002. The East of England Plan includes a target for a net increase 

of 508,000 new homes over 2001–2021.



36 

Employment 

If the employment rate of 16–74 year olds in the region reached 70 per cent 

by 2031, there would be over 424,000 more residents with jobs than today. 

In both a UK and global context, employment rates are high in the East of 

England. Currently, around 77 per cent of the working-age population are 

in employment (April 2006 to March 2007). Yet this partly reflects the low 

provision of higher education places: there is a net outflow of students 

who leave the region to study elsewhere and as a result, a large share of 

young people are in work rather than in full-time education or training. 

The post-retirement age workforce is an increasingly important source of 

GVA per capita indices under the RES-RSS and business-as-usual scenarios 

employment 

GVA indicies (2007 

growth. 

= 

The 

100 

employment rate of 16–74 year-olds was 

around 67 per cent over 2006/07. 

180 

The picture is varied around the region, with the working-age employment 

170 

rate at around 85 per cent in Harlow and South Norfolk, and less than 

70 160per 

cent in Luton and Cambridge. In Cambridge this reflects the share 

of 150the 

population who are students and who are RES-RSS not in paid employment 

during term time; in Luton, economic activity rates are low among 

140 

females in certain ethnic minority communities. 

130 


Employment 120 performance is also dependent on economic growth and 

structural factors such as skill levels. In setting regional ambitions around 

110 

employment, the RES-RSS joint modelling project was used to investigate 

the 100 levels and rates consistent with the region’s ambition on GVA. Based 

on this research, the RES sets the ambition of a 70 per cent employment 

rate of the 16–74 population and, on past trends, this is consistent with a 

minimum 80 per cent employment rate for the working-age population 

(on the current definition of 16–59/64). This is a challenging ambition 

that, if achieved, would see 424,000 more residents with jobs than today. 

Careful monitoring will be required to understand the evolution of 

employment over the RES period and, in particular, that improved 

performance is underpinned by increasing skill levels and not by falling 

participation in education and training. 

2007 2009 2011 2013 2015 2017 2019 2021 2023 2025 2027 2029 2031 

Figure 8 

Percentage of 16–74 year olds in employment under the RES-RSS and 

Employment business-as-usual rate scenarios (working age + post-retirement 

72 

71 

70 

69 

68 

67 

66 


65 

2007 2009 2011 2013 2015 2017 2019 2021 2023 2025 2027 2029 2031 

Source: East of England Forecasting Model (RES-RSS joint modelling project) 

RES-RSS

Our future in the East of England, the 

nation’s ‘grain basket’, looks bright. 

We believe we can double our market 

share and increase international sales 

while continuing to source ingredients 

directly from local farmers. This will 

protect us from increasing food prices, 

benefit the environment and support 

the local community. 

Bill Jordan, Jordan’s Cereals 

Bill Jordan, chairman of Jordan’s 

Cereals, at Jordan’s headquarters 

in Biggleswade, Bedfordshire

We need high-quality people so we 

can grow our business. We are located 

close to Cambridge University – a 

global talent magnet – so that helps 

us to recruit excellent employees. 

Neil Davidson, 

Red Gate Software 

Neil Davidson, joint chief executive 

officer of Cambridge-based Red Gate 

Software, outside their office at 

St John’s Innovation Centre, Cambridge



39 

Skills 

If the RES skills targets are achieved by 2020 and maintained to 2031, 

there will be 643,000 more adults qualified to at least level 4, 1.1 million 

more adults qualified to at least level 3 and 1.2 million more adults in the 

region qualified to at least level 2 than today. viii 

Skills are a key driver of productivity, economic participation and prosperity. 

The ability of firms to update working practices, products, processes and 

business models in the face of growing international competition depends 

on the quantity and quality of skilled labour available. With employment 

prospects for the least skilled declining, a good skills base also helps 

people to find employment, progress their careers and improve their pay 

prospects. Qualification attainment is a measure of the level of skills and 

expertise that are available within the region’s economy. 

At an international level, the UK’s skills base is relatively weak. In 

Organisation for Economic Co-operation and Development (OECD) 

comparisons of 30 countries, the UK ranks 17th on low skills, 20th on 

intermediate skills and 11th on high-level skills. At a regional level, the 

East of England’s skills profile compares unfavourably with the national 

average: in 2006, 26.6 per cent of adults ix in the East of England were 

qualified to level 4 x and above, 44.6 per cent were qualified to level 3 xi 

and above and 66.3 per cent were qualified to level 2 xii and above. This 

compared with national averages of 28.9 per cent, 47.8 per cent and 

68.1 per cent, respectively. 

Significant improvements in the region’s skills base are therefore required. 

The Leitch Review of Skills has recommended that, by 2020, the UK will 

need to achieve: 

• over 40 per cent of adults qualified to at least level 4 

• 68 per cent of adults qualified to at least level 3 

• over 90 per cent of adults qualified to at least level 2. 

The RES ambition is to achieve these stretching targets in the East of 

England by 2020 and to maintain these levels up to 2031. 

viii. The skills targets are based on adults aged 19–state pension age. As the East of England 

Forecasting Model does not contain population projections by age group, an estimate has 

been produced using ONS national population projections. These projections suggest that 59 

per cent of people in England will be aged 19–state pension age in 2031. The number of people 

aged 19–state pension age in the East of England in 2031 has therefore been estimated to be 

59 per cent of the total population projected in the East of England forecasting model 

(RES-RSS scenario). 

ix. Adults relate to those aged 19–state pension age. 

x. Level 4 equates to degree level qualifications. 

xi. Level 3 equates to two or more A Levels or their vocational equivalents. 

xii. Level 2 equates to five A*-C GCSEs or their vocational equivalents.



40 

Figure 9 

Current Percentage skills of performance the population relative aged to 19–state RES targets pension (% age of adults) by highest level 

of qualification compared to RES targets 

100 

90 

80 

70 

60 

50 

40 

30 

20 

10 

0 

Target 

Level 2 and above Level 3 and above Level 4 and above 

East of England England 

Source: Annual Population Survey (2006) 

Target 

Target 

Achieving these targets will help us to achieve improved productivity 

through investing in intermediate and higher-level skills and reduced 

inequality and poverty by improving the skills and employment prospects 

of the least skilled. 

Inequality 

By more effectively harnessing the talents of all, raising lower-quartile 

gross earnings to 60 per cent of the regional average, would reverse the 

rise in wage inequality seen in recent years and promote economic 

inclusion. 

While prosperity has increased in the East of England over the past five 

years, the outcomes for those at different earnings levels has varied 

greatly. The increase in average real wages has been driven largely by 

those at the top end of the wage distribution. In contrast, the gross 

earnings of those in the lowest quartile have barely kept up with 

inflation. xiii Gross earnings as share of regional average (%) 

100 

Average 

90 

80 

70 

60 

50 A large number of factors have influenced wage differentials, 

40 including educational attainment, off-shoring of both manufacturing and 

30 services, technological change, the skills premium, international price 

xiv xv 

movements, immigration and sectoral change. 

20 

10 

81.5 

58.4 

80.6 

57.6 

80.7 

57.2 

Research puts skills attainment at the heart of these phenomena: as the 

balance of jobs shifts away from lower to higher-level skills requirements, 

the premium on higher-level skills is increasing. Recent studies also find 

that differences in the type and quantity of workplace training 

undertaken by employees have contributed to growing wage inequality: 

highly skilled workers typically undergo more training than lower skilled 

employees, and the financial return is greater too. xvi 

0 

2002 2003 2004 2005 2006 2007 

Median Lower quartile 

Growing inequality can exacerbate social exclusion and will need to be 

addressed if the East of England is to harness and develop the talents and 

creativity of all. The RES therefore sets the ambition of raising 

xiii. Annual Survey of Hours and Earnings, Resident Analysis (2008). 

xiv. Ability, Sorting and Wage Inequality, Carneiro and Lee (2005). 

xv. Off-shoring and Wage Inequality in the UK, 1992–2004, Employment Relations Research 

Series No. 91, Claudia Canals (December 2007). 

xvi. Employee Training, Wage Dispersion and Equality in Britain, Almeida-Santos and Mumford 

(2006). 

79.9 

56.0 

78.8 

55.3 

79.4 

55.3

The best way to nurture gifted young 

people in the region is to provide them 

with accessible, high-quality facilities. 

The talent is here, but we need to do more 

to identify it. With real support from the 

community and business, dreams can 

become reality and people can excel 

at the highest level. 

Anne Wafula-Strike, 

British Paralympic Athlete 

Anne Wafula-Strike, Essex-based 

paralympian, at Chelmsford Sport 

and Athletic Centre, Essex 

Photograph: Nick Strugnell

The Paper Trail is a historical asset 

that helps us to learn the lessons of 

the past to shape the future. It is part 

of the East of England’s heritage of 

innovation and enterprise, and can help 

the region rise to the economic and 

social challenges of the 21st century. 

Jacky Bennett, 

The Paper Trail 

Jacky Bennett, chief executive 

of The Paper Trail, at Frogmore Mill, 

Hertfordshire



43 

lower-quartile earnings to 60 per cent of average earnings over the lifetime 

of the strategy and thereby reversing the decline seen in recent years. 

A progression in skill levels will be among the key tools for achieving this. 

Figure 10 

Gross full-time, median and lower-quartile earnings as a share of 

Gross earnings as share of regional average (%) 

regional average earnings (%) 

100 

90 

80 

70 

60 

50 

40 

30 

20 

10 

0 

81.5 

58.4 

80.6 

57.6 

80.7 

Source: Annual Survey of Hours and Earnings (2007) 

Average 

2002 2003 2004 2005 2006 2007 

Median Lower quartile 

57.2 

Greenhouse gases 

Reducing CO 2 emissions to 60 per cent below 1990 levels by 2031 would 

put the region at the forefront of tackling climate change and in a prime 

position to exploit the global commercial opportunities of the $548 billion 

environmental goods and services market. 

With its long coastline, low-lying geography and vulnerability to coastal 

flooding, the East of England is the UK region most at risk from the effects 

of climate change. The twin challenges of adaptation to and mitigation 

of these effects, and the academic and commercial expertise within the 

region, provide a strong rationale for bold action to put the region at the 

forefront of global regions. 

The draft Climate Change Bill proposes binding UK targets of at least a 

60 per cent reduction of CO 2 emissions below a 1990 baseline by 2050, 

with an interim target of between 26 and 32 per cent by 2020. xvii 

The Climate Change Bill also seeks to set five-year carbon budgets, 

recognising that it is not just a 2020 or 2050 end point that is important, 

but the cumulative level of emissions and the need to live within carbon 

budgets in getting there. xviii Yet there is increasing evidence that to limit 

global warming, average temperatures need to remain within a ‘safe 

level’ of 2ºC above pre-industrial levels. This may require industrial 

economies to make near to an 80 per cent cut by 2050. xix 

xvii. Draft Climate Change Bill, Department for Environment, Food and Rural Affairs (2007). 

xviii. Akin to a financial budget, a ‘Carbon Budget’ refers to the aggregated quantity of CO 2 emissions. 

The draft Climate Change Bill proposes that carbon budget periods be set at least three periods (ie 

for 15 years) ahead. This approach provides for both certainty and flexibility in the system: emissions 

can vary between years provided the total over a five year period does not exceed the budget. 

xix. This is consistent with maintaining atmospheric concentrations of CO 2 at or below 450ppmv, which 

recent IPCC evidence suggests would give us a reasonable chance (30 per cent) of not exceeding the 

2ºC stabilisation level. The government is currently reviewing the national target of a 60 per cent 

reduction in emissions by 2050, and whether this should in fact be closer to 80 per cent by 2050, in 

line with the trajectory that underpins the RES headline target. 

79.9 

56.0 

78.8 

55.3 

79.4 

55.3






xx That is, the emissions associated with the 

electricity consumed in the region are 

attributed to the region and not the 

emissions associated with the electricity 

generated in the region. The indicator also 

includes emissions from both domestic 

and international aviation. For reasons of 

attribution, the treatment of aviation in 

the target is limited to emissions from 

take-offs and landings and an imputed 

share of domestic cruise. See Resource-use 

and CO 2 Emissions Modelling Cambridge 

Econometrics (April 2008) for a detailed 

definition. 

xxi Memorandum submitted by the RSPB to 

the EFRA Select Committee on the Draft 

Climate Change Bill (2007). 

xxii Environmental Goods and Services Core 

Script, Environmental Industries Sector 

Knowledge Team (BERR). 

xxiii The 2.25 per cent pa rate of decline 

projected is consistent with delivery of a 

60 per cent reduction in emissions from 

their estimated 1990 level by 2031. At the 

present time, estimates of regional CO 2 

emissions for 1990 are unavailable on a 

consistent basis with the data used in the 

REEIO model. However, these data will be 

forthcoming through SCPnet. To illustrate 

the sensitivity of the future rate of 

declines necessary to achieve the 60 per 

cent reduction target, if emissions in 2005 

were at the same level as in 1990, then the 

target reduction by 2031 would require 

emissions to be cut by an average of 

3.5 per cent pa from 2005. 

44 

Given the significance of climate change as an environmental challenge, 

the RES sets the ambition for a 60 per cent reduction in CO 2 emissions by 

2031. This target is defined on an end-user basis. xx This would put the 

region on a trajectory to reach 80 per cent by 2050. xxi Converting 

leadership in tackling climate change into commercial leadership is a 

huge opportunity for the region, which is supported by each of the RES 

goals. In 2005, the UK market for environmental goods and services was 

around £25 billion; the global market was worth $548 billion and is 

expected to grow by 45 per cent by 2015. xxii 

Achieving the CO 2 emissions target is consistent with the other regional 

ambitions around economic performance if bold policies are in place to 

de-couple economic growth from resource-use and greenhouse gas 

emissions. The REEIO environmental modelling project undertaken to 

support the RES investigated the impact on emissions of achieving the 

RES-RSS scenario of GVA and employment growth to 2031. Although 

existing policies would see the continued de-carbonisation of electricity 

and most sectors of the economy achieving strong reductions in the 

energy intensity of their production, they will be insufficient to achieve 

the objective for CO 2. New policies are needed to achieve major carbon 

savings for households, the transport, manufacturing, services and 

electricity generation sectors, whilst there is also a need to increase the 

scope or effectiveness of current policies. 

The RES also recognises the wider range of greenhouse gas emissions 

such as N 2O, methane and hydrofluorocarbons. Ongoing work with expert 

partners will establish baselines and policy options. Informed by the 

emerging regional climate change action plan, the Spatial Economy 

section of the RES addresses adaptation. 

Figure 11 xxiii 

Carbon Reduction dioxide in COemissions 2 emissions on 2005 levels (2005=100) under the RES-RSS 

underlying trends and further policies scenarios; target line 

110 

100 

90 

80 

70 

60 

50 

40 

2005 2007 2009 2011 2013 2015 2017 2019 2021 2023 2025 2027 2029 2031 

RES-RSS - underlying trends 

RES-RSS - further policies 

Target: 60 per cent reduction on 1990 levels (2.25 per cent pa fall) 

Source: REEIO model 

Domestic water consumption under water-neutral RES-RSS growth 

(x00 Liters per head, per day) 

190 

180 

Unmetered

Managers need to embrace the idea of 

working closely with non-UK companies, 

particularly those in the fastest-growing 

regions of the world. They should also 

accept that a constant but positive business 

churn is needed to ensure that market 

forces, in the main, can determine which 

businesses succeed, grow and innovate. 

Professor Jay Mitra, 

School of Entrepreneurship and 

Business, University of Essex 

Professor Jay Mitra, founding 

professor of business enterprise and 

innovation, on campus at the 

University of Essex and South East 

Essex College, Southend-on-Sea, Essex






xxiv Based on research undertaken by the 

Environment Agency using the COPS 

model (February 2008). In this ‘deficit’ 

scenario the water-supply would still 

outstrip projected demand but be below 

the target headroom that needs to be 

maintained for contingencies. 

xxv Water resource zones represent the level 

at which water is supplied (sub-regional, 

water company areas). 

xxvi RSS14 Housing and Water Efficiency 

Scenarios, Environment Agency, Water 

Resources Planning (February 2008). 

xxvii Litres per head per day. 

xxviii The RES water target of 120 l/h/d relates 

to all housing and includes water used 

both internally and externally. It is 

consistent with the ambition in the 

East of England Plan to reduce internal 

water consumption in metered new-build 

properties to 105 l/h/d (Level 3 of the 

Code for Sustainable Homes). Making 

allowance for external use results in a per 

capita consumption target for new-build 

housing of 115 l/h/d. These targets are 

illustrated in Figure 12. 

46 

Water resources 

Reducing the per capita consumption of water by 20 per cent by 2030 

would support the RES ambitions on GVA, housing and employment. 

Water is a vital economic input: neither industry nor domestic households 

can function without it. Unlike electricity, there is no national grid in water 

supply and both the Department for Environment, Food and Rural Affairs’ 

(DEFRA) national strategy for England, Future Water, and the Environment 

Agency’s consultation document, Water for People and the Environment, 

ruled out such a network over the lifetime of this strategy. The region’s 

water resources will need to sustain the coming increase in housing and 

population, yet the East of England is the country’s driest region and 

water resources in some local areas are already over-committed. Even with 

the new resources and infrastructure currently planned by water 

Carbon 

companies, 

dioxide 

the 

emissions 

housing supply targets in the East of England Plan, if 

achieved 110 and rolled forward to 2031, could lead to a deficit by the early 

2030s in the absence of further action. Without greater levels of water 

100 

efficiency, individual water-resource zones could be in deficit as early as 

xxiv, xxv 

2015, 90 with the greatest stress in the South of the region. 

80 

The centrality of water to future physical development and the challenge 

70 

of water-stress demands a headline regional ambition to achieve greater 

efficiency 60 in our use of water. Research suggests that, if economic and 

population 50 growth placed no additional demands on the water supply 

over the RES period, deficits could be avoided. To achieve this, per capita 

40 

consumption in existing houses would need to fall steadily from around 

xxvi, xxvii 

150 l/h/d today to at least 130 l/h/d by 2041. 

2005 2007 2009 2011 2013 2015 2017 2019 2021 2023 2025 2027 2029 2031 

RES-RSS - underlying trends 

Future Water sets a more ambitious target to achieve 120–130 l/h/d by 

2030. In addition to addressing future stress on water availability, this 

will also benefit business and the environment: tackling over-abstraction 

will benefit the ecology of rivers and wetlands, supporting tourism and 

fisheries. Given the unique challenges in this region, the RES sets the 

ambition to achieve 120 l/h/d per capita by 2030. xxviii RES-RSS - further policies 

Target: 60 per cent reduction on 1990 levels (2.25 per cent pa fall) 

This will require 

incorporating high, water-efficient standards into future development, 

reducing leakage rates, increasing the efficiency of existing buildings and 

behavioural change in how we use water in our homes. 

Domestic Figure 12 water consumption under water-neutral RES-RSS growth 

(x00 

Domestic 

Liters 

water 

per head, 

consumption 

per day) 

(l/h/d) under water-neutral RES-RSS growth 

190 

180 

170 

160 

150 

140 

130 

120 

110 

100 

Unmetered 

Metered existing 

Future water target 

RES target 

Metered new builds 

2002/03 2007/08 2012/13 2017/18 2022/23 2027/28 2032/33 

Source: Environment Agency

What do 

we need to 

change? 

3.1 Enterprise 50 

3.2 Innovation 54 

3.3 Digital Economy 58 

3.4 Resource Efficiency 62 

3.5 Skills for Productivity 67 

3.6 Economic Participation 71 

3.7 Transport 76 

3.8 Spatial Economy 82 

3.9 The spatial response 87 












3

What do we 

need to change? 

Introduction to the goals 

For further information, 

see the evidence base 

48 

Introduction 

The following section sets out eight goals and associated 

priorities that provide a clear framework for action if we are to 

deliver the ambitions set out for the East of England. 

The goals and priorities have been informed by: 

• analysis of the principal market failures in the East of 

England and potential options for addressing these market 

failures 

• understanding of the key trends and drivers affecting the 

region both now and looking forward 

• models of economic change, including the HM Treasury’s 

five drivers of productivity (skills, enterprise, innovation, 

investment, competition) 

• consideration of both demand and supply-side factors, and 

the key role of the private sector as the main driver of growth 

• development and testing of the goals and priorities through 

stakeholder surveys, events and the consultation process 

• evaluation of the impacts of previous policies and actions. 

Alongside the eight goals are short sections addressing the 

key strategic priorities for the engines of growth, rural and 

coastal areas. 

This recognises that: 

• the particular history and geography of places shape 

economic performance and future pathways for growth 

• in taking forward delivery, there will need to be a careful 

consideration of the appropriate spatial scale of action, 

eg neighbourhood, local labour market, city-region, region 

or pan-regional. 

Image right: The Paper Trail in Apsley, Hertfordshire, has converted a working Victorian paper 

mill and disused buildings with significant industrial heritage into a self-financing education, 

business and heritage centre. Its outstanding entrepreneurial spirit and culture of innovation 

was publicly recognised in 2007 when it was crowned regional winner and national runner-up 

of the 2007 Enterprising Britain awards.

Enterprise 

Enterprises are the heart of the East 

of England’s economy, creating jobs, 

wealth, competition and new ideas. 

How can entrepreneurship become 

the option of choice for people in the 

East of England?

What do we 


Enterprise 


used within the Enterprise goal, 

please, see the evidence base, part 2 

section 3 and statistical annex 

50 

3.1 Enterprise 

Improving business performance and 

a stronger culture of entrepreneurship 

Improving the performance of the region’s enterprises and encouraging 

more people to start an enterprise can contribute significantly to economic 

growth, productivity and job creation. New enterprises and increased 

market competition can also help to stimulate the adoption and 

development of innovations. Enterprises can increase their performance 

by taking advantage of opportunities in the international economy. 

A number of enterprises also have the ambition and prospects to realise 

high growth. These enterprises will become some of the major innovators 

and employers of the future. Responding to their needs, and assisting 

growth potential in these enterprises, will also sustain and help improve 

the region’s economic performance. New and growth enterprises can also 

inject new wealth and jobs into the economies of areas that are deprived 

or that are in need of regeneration. 

There are persistent disparities in rates of entrepreneurship according to 

ethnic background, disability, age and gender. This represents untapped 

potential which, once addressed, will boost the overall rate of 

entrepreneurship in the region. 

The regional economic strategy seeks to encourage entrepreneurship and 

improve leadership and management capacity amongst existing and 

potential entrepreneurs. The strategy aims to seek further benefits and 

opportunities in the international economy, using the advantage of the 

proximity of the region to core European markets. Being responsive to 

growth enterprises, and the need to enable improved business 

performance, the strategy seeks to improve the accessibility and impact 

of business support services. 

What will success look like? 

• start-up rates increased to 60 per 10,000 resident adults by 2031 

(around 12,000 more new businesses created each year than in 2004) 

• total entrepreneurship activity rates to 2031 that are: 

• higher than in 2008 

• above the UK average 

• demonstrating female entrepreneurship rates closer to male 

rates than in 2008. 

• an increase in the share of small and medium-sized enterprises 

(SMEs) using external advice 

• an increase in the proportion of the region’s SMEs that operate 

internationally.

What do we 


Enterprise 

51 

Priority 1: 

Strengthening the region’s enterprise culture 

New enterprises contribute to job and wealth creation and help drive 

productivity growth and the development and adoption of new 

innovations. Entrepreneurship is also a vehicle for economic inclusion 

if it occurs within a deprived community or disadvantaged group. 

There is a need to create an embedded culture of entrepreneurship 

amongst all groups and parts of the region, and to increase leadership 

and management capacity for both new and existing enterprises. As well 

as improving enterprise performance and the survival and growth rates of 

business, this will lead to improved rates of enterprise start-ups, 

particularly where there is untapped potential for entrepreneurship such 

as amongst women, ethnic minorities, the disabled, in deprived 

neighbourhoods and amongst young people. 

Priority 2: 

Increasing opportunities from international trade, investment and 

collaboration 

There is a wide range of opportunities in the international economy that 

the East of England can compete for and access, and the region is in a 

prime geographical position in terms of access to European markets. As well 

as continued efforts to capture and retain foreign direct investment and 

secure new or expanded export markets, there are opportunities for using 

new ideas and innovations from overseas, collaborating with 

international partners, or deploying intangible assets internationally such 

as skills or intellectual property. The region continues to be an attractive 

location in terms of access to European markets. Only a small percentage 

of enterprises in the region trade internationally, and support to increase 

the level of internationalisation of the economy is warranted. 

Priority 3: 

Enabling high-growth businesses to realise their potential 

The East of England can improve the rate of growth in its enterprises that 

have the potential or aspiration to grow. Managing the process of growth 

is complex for businesses of any size, but is particularly problematic for 

small firms. They may need guidance in understanding regulation, the 

practicalities of entering a new export or product market, or developing 

appropriate skills. Predicting where the next growth enterprise or 

home-grown multi-national corporation will come from is difficult. 

Support for growth businesses must necessarily be responsive and 

enabling and able to recognise the diversity of the enterprise base. 

The region will need to prioritise assistance to businesses with recognised 

potential for productivity improvement or growth. 

The region must ensure that potential and existing entrepreneurs are 

encouraged and nurtured and have the opportunity to develop the 

leadership and management potential required to support growth 

businesses.

What do we 


Enterprise 

52 

Priority 4: 

Improving enterprise performance through effective business 

support 

Evidence shows that enterprises that seek advice tend to report greater 

profits than those that do not. Ensuring that enterprises are aware of, 

and access, the right business support services for their needs, will 

improve enterprise performance in the region. The key objective, as laid 

out in the region’s business support strategy ‘Better for Business’, is to 

provide and direct enterprises to high-quality advisory services that meet 

business needs and are easy to access. For start-ups and early-stage 

businesses, business support services can make a big contribution by 

improving the investment-readiness of business ideas. More generally, 

quality business support services play an important role in spreading 

good business practices. 

Reducing the complexity of government-funded business support is the 

aim of the national Business Support Simplification Programme (BSSP): 

improvements to the ‘East of England offer’ must be considered in this 

context. Business support services need to continue to evolve to meet the 

needs of businesses and entrepreneurs, against a backdrop of changing 

regulation, technology and globalisation. 

Implementation priorities 

• developing the suite of high-quality business support products accessed 

through the single Business Link East gateway service 

• developing a strong enterprise culture in under-represented groups by 

widening mainstream support and developing targeted programmes 

• creating an integrated system of support for international trade, 

investment and collaboration 

• improving access for regional businesses to leading-edge leadership 

and management training, advice and support 

• ensuring all publicly funded business support is consistent within an 

agreed BSSP framework 

• providing a comprehensive business support package and access to 

finance for high-growth businesses. 

Image right: CSR is a shining example of how to take innovative ideas and turn them into 

global commercial success. A product of the Cambridge phenomenon, CSR span out from 

world-renowned product and technology developer Cambridge Consultants in the late 1990s. 

It is now the leading global provider of personal wireless technology, with a product portfolio 

covering Bluetooth, FM receivers and Wi-Fi. It is a FTSE top 250 company with offices all over 

the world, yet with its headquarters remaining in Cambridge, UK.

Innovation 

Innovation – the successful exploitation 

of new ideas – provides businesses with 

the competitive edge to succeed in 

increasingly competitive global markets. 

How can we translate the East of England’s 

strengths in R&D and leadership in 

niche markets into large-scale commercial 

success?

What do we 


Innovation 


used within the Innovation goal, 

please see the evidence base, part 2 


54 

3.2 Innovation 

Realising the value of innovation 

by bringing ideas to market 

If the East of England is to thrive in the global economy, then it will 

increasingly be on the basis of ideas and knowledge and not on cost. 

Innovation – the ways ideas become products, processes and new 

business models – is changing. Open innovation is increasingly prevalent 

in a number of forms – specialist research and development (R&D) 

companies and universities working with local and global businesses; 

consumer-driven development of products, services and digital content; 

innovation at the intersections of disciplines and sectors; and the next 

generation of web-based communities, social networking and other new 

channels for people to shape their own lives and experiences. 

The East of England has the opportunity to be at the forefront of this new 

era and, as part of Greater South East, to be one of the ten to 15 global 

innovation poles that will emerge in the period to 2031. The East of 

England is already an EU-leading region for research and development 

activity, crucial for innovation. Private-sector R&D accounts for a higher 

proportion of economic output than in any other UK region. In addition, 

the region hosts world-class research institutes, university departments 

and the University of Cambridge, a global top-five research university. 

However, our strength in R&D is not matched by a record of 

commercialising or adopting technologies and processes. UK and 

international comparisons show that the East of England’s firms are less 

likely to introduce a new or significantly improved product, service or 

process, and less likely to allocate funds to training or make capital 

investments to support innovation. Crucially, it is the use of technology 

not the generation of technology that has the biggest impact on growth, 

and this presents important opportunities for all sub-regions and sectors. 


• an increased share of businesses that are innovation active 

• an increased share of businesses that translate new ideas and research 

into new products, services and processes 

• an internationally renowned science base and hi-tech clusters, reflected 

in European-leading levels of private-sector R&D and venture capital 

investment 

• becoming the UK exemplar region for open innovation and absorption 

of existing technologies. 

Priority 1: 

Developing a thriving culture of innovation and creativity 

To prosper, the region needs to increase innovation activity in all 

businesses. This must be matched by a culture of creativity and 

collaboration, in education and civic life. Many of the biggest challenges 

facing the region – climate change, inequality and an aging demographic 

– are resistant to conventional approaches and demand innovation. The 

public sector is an important driver of innovation – in terms of developing 

new and more effective services, promoting creativity in education and 

workforce development and, crucially, through using procurement to

What do we 


Innovation 

55 

generate innovation and product viability. The third sector can also be 

a source of social innovation, improving and complementing mainstream 

public service provision. 

Leading innovative companies and organisations share a number of 

attributes. These include recruiting innovative employees, providing training 

in creativity and innovation, developing a learning culture, empowering 

employees to take forward new ideas and rewarding successful innovation. 

Priority 2: 

Commercialising R&D and adopting innovation 

Despite the region’s strengths in R&D, evidence suggests a problem in 

translating new products and services into profit or scaling up innovative 

companies beyond niche markets. In part, this can be explained by the 

fact that innovation often takes time to have a major impact on 

economic growth. However, it also reflects the fact that the region and key 

cities are often ‘knowledge-generating’ locations as opposed to 

‘knowledge-using’ locations. Business profitability and wider economic 

growth are often driven more by adoption of existing ideas, products or 

processes in the workplace and implementing them to improve quality 

and efficiency, or to develop new goods and services. Innovative 

companies are often prevented from becoming keystone companies of 

local economies through financial drives for early exit or acquisition, 

limited management, creative and technical skills pools. 

Universities are a critical part of the regional innovation system. Close 

collaboration between universities, research institutes, businesses and 

the government is a feature of successful regions. This goes beyond 

knowledge transfer, spin-outs and licensing, to a wider range of interactions 

with businesses and society. Universities provide access to new ideas; 

skilled labour and internships; levering research funds and grants; 

consultancy services; public space and levering intellectual resources from 

a wider range of disciplines than a single business could do on its own. 

Success in commercialising and adopting innovation can be increased 

through effective business support, access to a range of finance products, 

effective business and social networking and exposure to national and 

international markets. Collective public sector procument can also create 

demand for emerging technologies and services. 

Priority 3: 

Strengthening clusters around leading private sector R&D companies 

and research-intensive universities 

The East of England contains the major facilities of a number of global 

top 50 R&D companies, the internationally renowned University of 

Cambridge and the associated technology cluster in the Cambridge 

sub-region, with in excess of 1,400 companies and employing 43,000 

people. The region has major ‘knowledge-generating’ clusters in health 

and life sciences, ICT, and emerging strengths in high-growth areas such 

as environmental technologies and renewable energy. 

During the lifetime of this strategy, there needs to be a focus on the sectors 

and clusters in which the region has existing or potential international 

advantage. To retain, attract and nurture companies at the forefront of 

innovation and R&D, the region needs to develop networks and a leading 

innovation infrastructure. This includes ‘third-generation’ science parks 

and business infrastructure linked to major R&D companies, institutes and 

research-intensive universities. Beyond high-quality commercial, research

What do we 


Innovation 

56 

and incubation space, these parks and enterprise hubs will offer 

businesses access to technology expertise, skilled labour pools, finance 

providers, support services and networks. 

Development of key clusters will also require a positive planning approach 

to wider housing, infrastructure and utilities provision to enable the 

continued growth of high-value activity and employment. 

Priority 4: 

Positioning the East of England and Greater South East as global 

innovation regions 

Large-scale R&D and innovation is a global, open activity involving many 

players in many locations. Rising costs and skill shortages in traditional 

locations of R&D activity, growth in emerging markets such as China and 

India and advances in information and communications technologies are 

driving this trend. Research demonstrates that the investment decisions 

of innovation-based companies are heavily influenced by proximity to 

markets, suppliers and skilled workers. These are often in technology and 

research-intensive clusters. 

The East of England must be at the forefront of places that are attractive 

to major innovators and investors. For global impact, the region can be 

marketed as part of the Greater South East, Europe’s leading innovation 

super-region. There must also be a focus on developing and promoting 

the region’s key strengths – health and life sciences, ICT and environmental 

technologies – and the benefits of location in, or collaboration with, the 

East of England’s key clusters. This requires a bold approach to promotion 

in international markets, matching other leading technology locations, 

such as the US, Israel and Sweden. 


• developing a positive planning framework, ensuring timely delivery of 

key infrastructure and utilities provision, and tailored skills provision to 

create research and technical talent pools to enable growth of existing 

and emerging clusters 

• increasing rates of commercialisation of R&D, technology uptake and 

innovation in finance, marketing and distribution through an 

integrated business support and access to finance package 

• maximising the productivity benefits of co-locating private sector, 

research institutes and universities and progressing the development 

of next-generation science parks 

• expanding the full range of knowledge exchange, skills provision and 

business engagement of regional universities and increased investment 

in the international quality research departments and institutes 

• promoting dense business and social networks to enable flows of ideas, 

advice and investment opportunities 

• developing shared marketing propositions with key partners in 

London and the South East to promote international investment and 

talent attraction 

• developing a suite of financial products, support for creativity and 

incentives to encourage social and public sector innovation. 

Image right: The East of England Production Innovation Centre (EPIC), on the site of the 

former Anglia TV studios in Norwich, is one of the most advanced higher definition broadcast 

production facilities in Europe, hiring out studios and post-production to the UK broadcast and 

production industry. It is recognised as a centre for the development of new services and 

digital communications technologies. EPIC works with universities and colleges and other 

training organisations to develop the creative talents of the digital age.

Digital Economy 

Digital technologies are driving 

innovation and growth in business and 

revolutionising education and training, 

leisure and entertainment. 

How can we equip our people and 

businesses with the skills to be at the 

forefront of the digital age?

What do we 

need to change ? 



used within the Digital Economy goal, 

please see the evidence base, part 2 


58 

3.3 Digital Economy 

Accelerating the use of digital technologies in 

public services, society and commerce 

Digital technologies are rapidly shaping economies through broadband, 

digital broadcasting, telecommunications and wireless technologies. 

This is driving competition, productivity, innovation and growth in 

business; influencing work patterns; access to public services; 

revolutionising education and training, leisure and entertainment. 

Our global competitiveness and prosperity depend upon securing the 

maximum benefit from digital technologies. The region has a relatively 

high take-up of broadband, but there are sub-regional differences and the 

quality of the broadband available is still an issue. The challenge for us is 

even wider adoption of information and communications technologies 

(ICT) to improve efficiency and enable innovation. 

The ability to adopt digital technology is vital to the effectiveness of all 

organisations as it presents new opportunities for the way services are 

planned and delivered, for example, in healthcare, education and in 

community participation in decision-making. 

Economic growth through the effective exploitation of digital technologies 

requires next-generation broadband and digital infrastructures offering a 

utility service available throughout the region at affordable prices. 

Leading cities and regions are already planning the provision of nextgeneration 

services and integrating technology into buildings. This region 

must ensure it is not left behind as faster broadband becomes available 

and, with its expertise in digital and building technologies, must strive to 

be a leader in this area too. 


• widespread access to the latest digital infrastructure for businesses 

and households 

• a more efficient and innovative economy through maximum 

exploitation of ICT by businesses and households 

• businesses and individuals able to use ICT proficiently, with a reduction 

in information technology skills gaps among the region’s workforce 

• transformation in working methods, with an increased share of 

enterprises adopting smarter/flexible working practices 

• reduction in overall travel resulting from use of ICT 

• a digital infrastructure that ranks highly among leading international 

regions.

What do we 



59 

Priority 1: 

Improving efficiency and innovation through the application of 

digital technologies 

Many of the region’s businesses, small and medium-sized enterprises 

(SMEs) in particular, have yet to exploit fully the benefits that ICT can 

bring. They need access to specialised high-quality and independent ICT 

expertise to demonstrate how ICT and digital technologies can improve 

productivity in their unique circumstances. 

Embracing digital applications, systems and services will ultimately 

transform the region’s businesses and help reduce ‘digital exclusion’. 

Evidence indicates that the major driver of the productivity lead of the 

US over Europe is its rapid adoption of ICT right across the economy, 

combined with better management practices. 

ICT makes flexible working an option for many organisations, increasing 

the availability of labour and providing significant environmental benefits. 

ICT can change working methods, aid the management of demand for 

travel and improve the flow of people and goods. 

The region’s public sector has a particular role to play in encouraging 

SMEs to participate in e-procurement, an integral part of the buying and 

selling process. 

Priority 2: 

Equipping people and businesses with the skills and capability to 

innovate through digital technologies 

Recent research on ICT skills in the region suggests that only 58 per cent 

of businesses are confident that staff have the knowledge to develop 

their ICT. xxix Scarcity of appropriately skilled personnel may be a serious 

threat to the region’s businesses and economy. ICT user skills will 

continue to be a factor in enabling individuals to find work. 

ICT is fundamental to business change, innovation, creativity and 

entrepreneurship, so in addressing ICT skills gaps, it is equally important 

for the region’s organisations to have the right management and 

leadership skills to derive full benefits from ICT implementation. 

Literacy and numeracy are basic-level skills or ‘skills for life’ and now ICT 

skills are equally important, especially in the workplace. ICT training can 

motivate people to develop literacy, numeracy and language skills and is 

an increasingly popular way to acquire and develop skills. 

xxix. ICT Adoption Baseline Survey, BMG Research (2008).

What do we 



60 

Priority 3: 

Investing in a leading digital infrastructure 

The region has good basic broadband availability (99.7 per cent of the 

region). The region needs higher-speed services to remain competitive, 

to attract new and retain existing businesses and to meet business 

requirements. Higher speeds will bring better, faster and more productive 

ICT solutions for business, service delivery and the home. 

Broadband, telecommunications, wireless technologies and software are 

the foundations of the region’s digital infrastructure. We must continually 

monitor and benchmark the region’s digital infrastructure against our 

competitors and ensure that excellent services are available throughout 

the region. Where necessary, we must stimulate demand for such services 

and promote their benefits. 

The region is strong in developing digital technologies and software, with 

higher levels of long-term GVA and employment growth than the national 

average. The continued growth of this internationally renowned cluster is 

a priority, not least because it helps to deliver economic and social benefits 

to the wider region through enabling technology and knowledge transfer. 


• enabling SMEs to enhance their productivity using new digital 

technologies through advice and skills development 

• increasing the quantity and quality of ICT skills provision to increase 

the rate of adoption of digital technology 

• lobbying, collaborating and planning for region-wide availability of 

high-speed broadband services comparable to competitor regions 

across the world. 

Image right: The Building Research Establishment (BRE) Innovation Park in Hertfordshire 

showcases the latest in innovative methods of construction and in cutting-edge sustainability. 

It features a number of demonstration properties featuring modern methods of construction, 

near zero-carbon homes, and hundreds of innovative and emerging technologies. BRE, with 

other partners, is also looking at how the region’s older housing stock can be refurbished into 

attractive, flexible and energy-efficient accommodation for the future.

Resource Efficiency 

Getting more from less is essential if we 

want to increase economic growth and 

living standards and reduce greenhouse 

gas emissions and our use of resources. 

What can you and your organisation 

change to contribute to a low-carbon, 

low-resource economy?

What do we 




used within the Resource Efficiency 

goal, please see the evidence base, 

part 2 section 6 and statistical annex 

62 

3.4 Resource Efficiency 

Benefiting from a low-carbon, 

low-resource economy 

Global climate change poses a very real threat to the East of England. 

Our low-lying geography, vulnerable coastline and already scarce water 

resources make us the region most at threat from climate change and 

degradation of ecosystems services in the UK. Following the Stern Report, 

climate change has become a central matter of economic policy. As 

energy and carbon emissions become constrained, businesses, communities 

and individuals contributing to regional economic development must 

take resource productivity seriously as a source of competitive advantage. 

In response to changing demand, tighter regulation and scarcer natural 

resources, the market for environmental goods and services is growing 

sharply. The global market was worth $548 billion in 2005 and is expected 

to grow by 45 per cent by 2015. This presents a huge opportunity for 

sustainable wealth creation, reinforced by the increased focus of 

governments on carbon pricing that will impact on all sectors of the 

economy in the East of England. 

Getting more from less is essential if we want to enjoy improved living 

standards in a way that significantly reduces carbon emissions, use of 

resources and increases competitiveness. To do so requires large 

reductions in the use of energy, fuels, water and other materials such as 

packaging, as well as more effective and efficient use of those resources 

that are required. We also need to minimise the use of resources in the 

manufacture and full life-cycle of products through improved design and 

development. Finally, we must de-carbonise and de-centralise our energy 

supply, for reasons of both efficiency and security. 


• end-user CO 2 emissions in 2031 that are 60 per cent below 1990 levels 

and reduced emissions of other greenhouse gases 

• waste arisings per £ million GVA in 2031 that are 37 per cent (143 

tonnes) below 2005 levels 

• increased recycling rates for household and municipal waste 

• per capita consumption of water by households in 2030 that is 20 per 

cent below 2008 levels, or 120 litres/head/day (l/h/d) 

• an increased share for the region’s businesses of the markets for 

environmental goods and services 

• growth in the region’s sustainable energy sector with 20 per cent of 

electricity demand being generated from renewable sources by 2020 

and the region’s lead position being maintained through to 2031 

• for the East of England to be a renowned leader in resource efficiency 

and climate change adaptation.

What do we 




resource-use and CO 2 emissions 

modelling report 

63 

Priority 1: 

Improving resource efficiency through behavioural change 

Non-renewable resources are being consumed at an unsustainable level. 

With rising prices and increasing concern over energy supply, the price 

and availability of resources is becoming a priority for many businesses. 

Electricity prices for the non-domestic sector have risen by 60 per cent in 

real terms between 2002 and 2007 and gas by 64 per cent over the same 

period, while prices for copper and lead have tripled since 2004. Such rises 

are likely to increase further as markets respond to imbalance between 

supply and global demand. 

Minimising resource-use is therefore a key to the profitability of businesses, 

the development of a sustainable economy and to meeting growing 

consumer expectation of high environmental standards. The regional 

economic strategy (RES) sets the challenging target of reducing waste 

arisings per £ million GVA to 37 per cent below 2005 levels by 2031. 

Achieving this is consistent with the regional ambitions around economic 

performance if bold policies are enacted to de-couple economic growth 

from resource-use. Resource efficiency requires attention at all stages of the 

product life-cycle, from design and material specification, through efficiency 

in use, to end-of-life recovery in resources. To be fully effective, this requires 

changing the behaviour of individuals, businesses and organisations. 

Poor information can affect our consumption and production choices. 

Organisations or individuals may not change behaviour, due to a lack 

of enabling services or infrastructure. Actions under the Transport, 

Digital Economy and Spatial Economy goals are particularly relevant 

to this agenda. 

The East of England currently has one of the highest levels of resource-use 

of the UK regions. The region has already made progress on a number of 

fronts: increasing the levels of renewable energy generating capacity and 

recycling, as well as developing a supportive policy framework for 

resource efficiency. However, more needs to be done to position the 

region as among the best in Europe on this agenda. The RES sets the 

challenging ambition of reducing end-user CO 2 emissions to 60 per cent 

below 1990 levels by 2031 and to reduce emissions of other greenhouse 

gases. This would put us on course for an 80 per cent reduction in C0 2 

emissions by 2050, the position many scientists now believe needs to be 

achieved to avert climate change.

What do we 



64 

Priority 2: 

Leading the UK in sustainable energy production 

The East of England has a strong skills and science base for energy 

technologies. The region has a rich history of energy generation and 

supply, including supplying nearly half of the UK’s domestic gas needs, 

provision of nuclear energy, as well as being the leading region for 

renewable generating capacity. 

The region will continue to require a broad sustainable energy 

infrastructure. The proposed levels of growth in the East of England 

present a major opportunity for widespread deployment of renewable 

and low-carbon energy technologies, both offshore and onshore. 

In particular, the region will need to continue to maximise its potential 

in the wind, bio-renewables and on-site renewables arenas. There are 

also significant opportunities in further R&D and technology 

development for offshore renewables through wind, wave and tidal and 

in carbon-abatement technologies such as carbon capture and storage. 

This goal of the RES sets the ambition of renewable sources accounting 

for 20 per cent of energy generation by 2020 and maintaining the 

region’s lead position through to 2031. xxx 

Regional companies and universities have specialist expertise in elements 

of the wider energy supply chain, and developing new capacity and 

generation presents a major opportunity to create new businesses, jobs 

and investment. 

Priority 3: 

Increasing share of environmental goods and services markets 

Environmental goods and services businesses run across the broad 

spectrum of sectors and the East of England is well placed in all parts 

of the supply chain. The region has a wealth of environmental 

technology-focused university and research establishments, related 

specialisms within its agriculture, energy and engineering sectors, as 

well as expertise in understanding and adapting to the impacts of 

climate change. 

The region also has the third highest level of employment in the 

environmental sector in the UK and the second highest number of 

companies. The business support needs of the sector are the same as 

the wider economy – investment, innovation, strengthening the skills 

base, business management and support. 

The focus on climate change, changing targets, regulation and consumer 

demands, increases the opportunities for the sector. Indeed, many 

opportunities exist to use technologies or redesigned processes to reduce 

costs and save resource. The Spatial Economy goal recognises the 

business opportunities from retro-fitting to existing buildings and from 

enhancing the natural environment. Growth in global markets presents 

a major export opportunity, particularly in mature markets such as 

xxx The 2020 target was recommended by the Placing Renewables in the East of England study, 

East of England Regional Assembly (February 2008): its feasibility and breakdown by 

resource type were tested under scenario 2 of the report. If achieved, this would equal 

1595.5 MW of installed capacity and 6441.5 GW h of energy generated.

What do we 



65 

pollution control, water, waste and other materials management. In this 

area, our export growth lags behind that of international competitors and 

we are less successful in exploiting research. While we must strengthen 

the science base, we must also stimulate demand, enabling near-market 

technologies to become viable. 

Priority 4: 

Making the East of England a water-efficient region 

Water is a fundamental resource requirement for the economy, 

supporting industry, services and households. Research undertaken for 

the RES finds that the trend towards water efficiency in manufacturing 

is already strong, but the coming growth in population and the services 

sector will put additional pressure on this scarce resource. The East of 

England is the UK’s driest region and the lack of a national grid for water 

means there are limited opportunities to draw on surpluses elsewhere in 

the country. Even with the planned investment in infrastructure by water 

companies, there is an urgent need to stabilise and reduce per capita use. 

The Environment Agency has estimated that, without additional policies, 

the region could move into deficit by the early 2030s. 

The RES sets the challenge of steadily reducing per capita household 

water use to achieve a 20 per cent reduction on the levels in 2008 by 

2030 (from around 150l/h/d to 120l/h/d). This will require incorporating 

high, water-efficient standards into future development, reducing leakage 

rates, increasing the efficiency of existing buildings and behavioural 

change in how we use water in our homes and businesses. Introducing 

water-saving measures also benefits resource efficiency more generally. 

For example, using less water can reduce trade effluent. Tackling 

over-abstraction will also benefit the ecology of rivers and wetlands and 

the tourism and fisheries sectors they support. 


• coordinated action to implement Local Area Agreement (LAA) 

commitments to reducing carbon emissions and increasing recycling 

rates 

• reinforcing the East of England’s position as the UK’s leading region in 

renewable energy infrastructure through a positive planning 

framework, applied R&D and supply chain development 

• increasing demand for, and the viability of, near-market environmental 

technologies through public-sector procurement, business support and 

finance 

• providing high-quality business support to enable businesses to 

improve their resource efficiency and profitability 

• a network of private sector and university centres of excellence for 

applied research in environmental technologies, goods and services 

• creating a regional system that reduces waste arisings and manages 

waste effectively 

• raising standards for water efficiency in new-build and supporting a 

major retrofit programme through a regional centre of excellence for 

water efficiency.

Skills for Productivity 

Raising skills levels increases 

competitiveness and profitability for 

businesses, enhances career options and 

leads to higher incomes for individuals. 

How can we change to inspire businesses 

and individuals to invest in skills while 

ensuring that education and training 

meet their needs?

What do we 




used within the Skills for Productivity 



Image left: Cranfield University is 

one of the region’s leading 

universities for postgraduate 

education. It is also ranked in the UK’s 

top five research-intensive universities 

and its MBA is 11th in the world 

according to the Economist 

Intelligence Unit. 94 per cent of 

students graduating go on to relevant 

work or study within six months. 

67 

3.5 Skills for Productivity 

Developing skills for the changing economy 

Improving the skills of the workforce is central to the region’s economic 

development. For businesses, a more highly skilled workforce will achieve 

increased competitiveness and profitability. For individuals, better skills 

lead to enhanced career options and higher wages. The region’s economy 

and the available job opportunities and skills requirements have also 

changed significantly over time and will continue to change. Workers must 

therefore adapt their skills to move into new sectors and work with new 

technologies. This will be particularly important as working lives lengthen. 

Overall, the East of England’s skills base compares unfavourably with the 

national average, particularly in terms of its supply of intermediate and 

higher-level skills. This can be partly explained by the low percentage of 

adults undertaking job-related training, the low percentage of graduates 

and postgraduates remaining in the region and the high number of 

people entering low-skilled employment after compulsory education. 

The East of England’s entry rate to higher education is lower than 

average, with higher rates of economic activity among young people 

being a key reason for the region’s high employment rate. However, the 

picture is not uniform across the East of England. Alongside localities 

exhibiting low-skilled, low-productivity activity – particularly the 

peripheral areas of Great Yarmouth, Fenland, Maldon, Castle Point and 

Tendring – are areas such as Cambridge and St Albans, with residents and 

workforces that are amongst the highest skilled in the country. 

For the region to develop as a successful economy, skills levels must be raised 

across the board. The region needs to increase the demand for learning 

among individuals, employees and employers, and improve progression to 

intermediate and higher-level skills. This will involve enhancing the skills of 

our indigenous population and embracing the skills and talent of migrant 

workers and international students. Given the difficulties of predicting and 

planning the future supply of skills, the regional economic strategy also 

seeks to ensure that skills provision responds flexibly to changing demand. 


• an increased percentage of graduates who view the region as a place 

to exploit their higher-level skills, with graduate retention rates above 

the UK average 

• an increased share of people gaining higher-level skills, through 

increased participation in academic and vocational education and 

training at level 4 and above 

• a culture of learning embedded at an early age, with an increased 

percentage of young people participating in post-compulsory 

education and training 

• an increase in qualification attainment with over 40 per cent of adults 

qualified to at least level 4, 68 per cent of adults qualified to at least 

level 3 and over 90 per cent of adults qualified to at least level 2, 

consistent with Leitch targets 

• development and use of economically valuable skills, leading to a 

reduction in skills gaps and shortages 

• improved productivity resulting from an increase in work-related learning.

What do we 



68 

Priority 1: 

Increasing the demand for and supply of higher-level skills 

A highly skilled workforce is adaptable to structural changes in the 

economy and is well positioned to grasp new opportunities. Higher-level 

skills lead to higher productivity for employers and higher incomes for 

employees, and are crucial to realising a higher standard of living for the 

region’s residents. The demand for higher-level skills is increasing and the 

share of jobs in sectors that use highly skilled labour intensively is set to rise. 

The East of England performs below the national average in the 

proportion of the workforce with higher-level skills – both qualificationbased 

and more transferable skills such as management, leadership, 

team-working, communication and problem-solving. The region also 

produces and employs relatively low proportions of graduates and 

postgraduates relative to the size of the population. To counteract this, 

we need to establish a virtuous circle, in which employers recognise the 

value of – and therefore demand – higher-level skills, while highly skilled 

people can be confident of finding high-quality employment opportunities 

in the region. This will require increased engagement and investment 

from employers and individuals in higher education, addressing market 

failures around information and risk, and ensuring that the higher 

education system is geared towards meeting workforce needs. 

Priority 2: 

Creating a culture where people aspire to train and learn throughout life 

Continuous participation and investment in skills – by individuals, 

employees and employers – enables our economy to keep pace with 

global economic and technological change and provides economic 

security for our residents and workers. Levels of participation in education 

and training must therefore improve. 

In the East of England, a significant number of young people with GCSE 

achievements leave education early for – often low-skilled, low-wage – 

work, where no further training or vocational education is offered. 

This reduces the pool of intermediate and technician-level skills in the 

region’s labour market. For many adults, particularly those in parts of 

the region with lasting legacies as low-skilled economies, participation 

in learning is not seen as an integral part of their working lives. The East 

of England also has an increasing supply of older workers, who are more 

likely to have to update their skills but are least likely to participate in 

training. To motivate young people to stay in education and training and 

to continue to learn and improve their skills as adults, we must therefore 

raise aspirations and communicate the links between learning, work and 

prosperity. With the majority of our 2031 workforce having already left 

compulsory education, it is particularly important to ensure that the 

culture of continuous learning becomes embedded in the workplace. 

Priority 3: 

Providing clear progression pathways for learning that improves 

business performance 

Young people taking up vocational and further education opportunities 

after compulsory school-leaving age will improve their future career 

prospects, while adults progressing towards higher-level skills will 

contribute to increased productivity. Individuals must therefore be free 

to progress up the skills ladder.

What do we 



69 

In the East of England, many individuals face blockages to progression, 

with the transition from lower to intermediate and higher-level skills being 

complicated by different provision and funding arrangements. 

Progression across the further and higher education divide is particularly 

problematic due to such issues as non-recognition of further education 

qualifications by higher education institutions and financial contributions 

being required from individuals and/or employers. There are also market 

failures in the provision of work-related learning, with employers often 

more prepared to invest in skills than in whole qualifications, and workers 

being unable to commit to full-time learning while remaining in work. 

Removing barriers to progression, improving the links between further 

and higher education and offering more flexible provision into the 

workplace market, often as accredited units that lead to full qualifications 

and progression over time, are therefore important in improving 

participation and skills attainment in the region. 

Priority 4: 

Providing education and training that meets the needs of individuals, 

employers and the economy 

Value added from participation in education and training will be 

maximised if skills provision is economically relevant and meets the needs 

of individuals, employees and employers. The Leitch Review therefore 

advocates a shift to a more demand-led system of flexible provision to 

deliver what employers and individuals need: this will help to manage 

global market pressures, given the difficulties of predicting and planning 

the future supply of skills. 

At present, the complexity and bureaucracy of skills provision, combined 

with the large number of qualifications available that are not valued by 

individuals and employers, has constrained investment in skills. There is 

therefore a need to assist employers to influence provision and to 

participate in the design of relevant courses, and to assure existing and 

planned vocational courses so that they reflect the skills that are valued 

by employers. Services to help employers identify and meet the training 

needs of their workers will also need to be expanded, while the format 

and location of course delivery will need to be flexible to encourage the 

take-up of learning by individuals and employees. The region’s schools, 

colleges, universities and other providers will need to adapt and develop 

their courses and methods of delivery to respond to this challenge. As 

such, major investment programmes are renewing the region’s schools 

and further education colleges, while universities are adapting to improve 

access to higher education. 


• continuous work between employers, sector skills councils, local 

authorities, commissioning bodies and providers to understand current 

and future skills demand 

• major upgrades of the skills infrastructure through Building Schools for 

the Future, the further education capital programme, national skills 

academies and university expansion programmes 

• ensuring accessible and flexible vocational provision and pathways 

between skills levels and institutions to meet individual business needs 

• improving demand for and access to new level 4 products and 

higher-level skills training in the workforce.

Economic Participation 

A successful region maximises the 

contribution of the whole population 

to the economy and raises the quality 

of life for all who live and work there. 

How can we provide all people with 

the opportunity to access rewarding 

employment and reach their full 

potential?

What do we 




used within the Economic Participation 



71 

3.6 Economic Participation 

Opportunity for all in the sustainable economy 

Successful regions seek to maximise the contribution of the whole 

population to the economy, and the opportunities for everyone to benefit. 

They actively attract and embed new groups, generate wealth within all 

communities and respond quickly and positively to change. 

Accelerating economic change has had positive effects on many parts 

of the region. However, some people have not been able to benefit from 

this growth and achieve their full potential because of the barriers they 

face. These may include a lack of appropriate skills, knowledge or 

confidence; lack of access to business support; having a work-limiting 

illness or employer attitudes or practices. These barriers to participation 

may particularly affect people in certain geographical locations or in a 

certain demographic sector of the population. They have costly 

implications for the individuals concerned, for the communities in which 

they live and for overall quality of life. 

Supporting economic participation is a key driver of productivity. By 

overcoming these barriers, the region will be able to: harness the untapped 

time, skills and creativity of its people; reduce the costs of benefit claims; 

grow its workforce to meet our economic targets and raise the quality of 

life for all who live and work in the region. 

The regional social strategy provides a full analysis of the nature and 

sources of social exclusion and disadvantage in the East of England, 

and sets out a strategy for tackling the issues. The regional economic 

strategy is not intended to duplicate the regional social strategy, but to 

work alongside it by addressing the economic factors identified there as 

important causes of disadvantage. Economic Participation tackles the 

barriers that inhibit people’s opportunities to participate in the economy 

and make the most of their potential. 


• economic activity rates for disadvantaged communities that are higher 

than in 2008 and closer to the regional average 

• a regional employment rate of 70 per cent for residents aged 16-74 

and 80 per cent for working-age residents by 2031 

• a reduction in income inequality for those in work, with lower-quartile 

earnings at 60 per cent of regional average earnings 

• 95 per cent of adults with functional literacy and numeracy (basic skills) 

by 2020 and maintained to 2031 

• fewer inequalities in skills attainment and health between 

disadvantaged communities and the regional average 

• business start-up rates in disadvantaged communities that are higher 

than in 2008 and closer to the regional average. 

Image left: North Suffolk Skills Centre takes an innovative approach to training young people 

in vocational skills while still at school, linking them into further education and skilled 

employment. It offers courses including mechanics, catering, hairdressing, engineering, health 

and social care. In a rural area with low levels of qualifications, the centre is creating economic 

opportunities for young people and providing valuable skills for the local economy.

What do we 



72 

Priority 1: 

Equipping people with the confidence, skills and choices for 

employment and entrepreneurship 

Employment rates are high throughout most of the East of England. 

However, for many people access to rewarding employment remains 

difficult. Basic skills – and enhanced progression routes to higher skills 

levels – are essential, along with raising aspirations and self-confidence, 

to increase the likelihood of getting into work, education or training. 

Certain social groups systematically experience greater barriers than 

others. Some people aged over 50, some black and minority ethnic 

communities, people with disabilities or mental health needs and single 

parents, for example, are more likely to experience barriers to economic 

participation. Reducing these barriers will require targeted programmes, 

effective multi-agency working and ensuring an offer shaped around 

individual circumstances. 

For single parents, worklessness or low-paid, part-time work can be a 

major determinant of severe and persistent poverty. Targeted support 

to reduce barriers to rewarding work for single parents – in particular 

availability and affordability of childcare – will make a valuable 

contribution to the government’s goal of eliminating child poverty, as 

well as making additional talent available in the labour market. 

Priority 2: 

Tackling barriers to employment in the poorest 20 per cent of 

communities 

Certain places exhibit levels of worklessness consistently above local and 

regional averages. Frequently, communities where a high proportion of 

people are not in work also experience other forms of disadvantage, such 

as crime, anti-social behaviour, poor educational outcomes, access to 

public services and transport. 

Health and health inequalities have a major impact on productivity, 

employment and educational performance. A concerted focus on tackling 

persistent health inequalities, and adding to the quality and length of life 

of local people will have a major impact on the economic outcomes at 

community and regional level. 

Lack of access to transport can also be a significant barrier to employment, 

particularly amongst young people in isolated rural areas and for those 

with childcare responsibilities. 

Local Area Agreements (LAAs) are a powerful mechanism for delivering 

an ambitious and integrated approach to improving well-being, access 

to services and the economy in communities. Within LAAs, a concerted 

focus on the poorest 20 per cent of communities will have a profound 

effect on narrowing the gaps in employment and wider outcomes, 

contributing not only to improved life chances for individuals, but also 

to stronger communities and improved regional economic performance.

What do we 



73 

Priority 3: 

Increasing economic demand in areas with low economic activity 

rates 

Some communities exhibit low levels of employment demand, 

entrepreneurship or diversity of enterprise. This can result from a legacy 

of industrial change or from thin labour markets in sparse or remote rural 

and coastal areas. This limits job opportunities, wealth generation and 

reduces resilience in the face of economic shocks. These places need 

comprehensive packages of support and investment to encourage 

start-up and growth of indigenous enterprises, including social enterprises, 

and relocation of external employers. Public-sector location, employment 

practices and procurement can stimulate areas with low economic 

activity rates. 

Enterprise is about more than just new businesses and jobs. It’s about 

enterprising behaviour. Therefore, there needs to be more emphasis on 

increasing community capital. This includes supporting communities 

to take on ownership of local buildings as a base for local enterprises, 

or supporting local people to set up social enterprises to address local 

issues, for example, where a village shop has closed or where recycling 

facilities are poor. 

Priority 4: 

Employers valuing a flexible, diverse and healthy workforce 

Globalisation and migration have created a more ethnically and culturally 

diverse workforce in the East of England. The region also has an aging 

population, a growing number of women in the workforce and an 

increasing number of people who balance care and work responsibilities. 

In the context of a tight labour market, it is more important than ever 

before to promote the full economic participation of all sections of the 

potential workforce and to use the talents of all. 

Employers increase profitability through responding positively to changes 

in the labour market and helping to remove barriers to participation for 

groups who are under-represented in employment. To benefit from the 

full range of talent in the population, some employers may need support 

in engaging with the potential available and in providing appropriate 

training. There are many benefits of a flexible and diverse workforce, 

including motivation, enriched creativity and access to new markets. 

There is also a growing recognition that businesses that invest to create 

healthier jobs and working environments benefit greatly from a more 

productive workforce. Collaboration between the NHS, employers and 

business support organisations to improve the health of the workforce will 

deliver major long-term benefits to individuals, businesses and economic 

growth.

What do we 



74 

Priority 5: 

A vibrant, skilled and resourced third sector 

Third-sector organisations often have a good understanding of need 

at individual and community level, and the ability to deliver services in 

a tailored and sensitive way. The cultural sector and the third sector – 

voluntary and community organisations and social enterprises – can play 

important roles in helping to empower people and communities to tackle 

local issues and have major economic impact in their own right. Additional 

support for community capacity-building and local leadership will help 

to ensure that interventions are most effectively targeted and shaped 

in response to need. 

The opportunity for engagement in volunteering and cultural activities 

offers people pathways towards employment as skills are enhanced, 

confidence is gained and, importantly, as they have access to new social 

networks and opportunities. Government policies envisage an enhanced 

role for the third sector. To help ensure that third-sector organisations can 

fulfil this contribution, appropriate support is needed to enhance their 

capacity. 


• Local Area Agreements improving economic and wider outcomes in 

disadvantaged communities 

• comprehensive regeneration programmes to improve quality of place 

and economic opportunities in disadvantaged communities 

• Multi-agency programmes shaped to individual and community needs 

• a concerted focus through Local Area Agreements and Multi Area 

Agreements to improve basic skills and meet Leitch level 1 and 2 targets 

• leveraging finance from Capacitybuilders and Financebuilders to 

provide effective and coherent packages of support for the third sector, 

including social enterprise, community asset development and land trusts 

• effective and coherent packages for migrants and improving workforce 

health and childcare 

• improving local and regional intelligence and evaluation to increase 

the impact of programmes. 

Image right: Peterborough railway station lies on the East Coast Main Line, connecting 

the region with London and the South, as well as with the North and Scotland. Its regional 

importance is recognised for long-distance travel, rail freight and as a rail interchange.

Transport 

A transport system that enables the 

efficient and sustainable movement of 

people and goods, contributes to 

international competitiveness, investment 

and employment opportunities. 

How should we change behaviour, harness 

technology and invest to create a leading 

21st century transport system?

What do we 


Transport 

For information on sources of 

data used within the Transport goal, 

please see evidence base, part 2 


76 

3.7 Transport 

A transport system that fully supports 

sustainable economic growth 

To increase international competitiveness, investment and employment 

opportunities, the East of England’s transport network must enable the 

efficient and sustainable movement of people and goods. This requires 

reliable access to ports and airports, excellent inter-urban corridors, 

enhanced links to London, improved rural accessibility and seamless 

intra-urban connectivity. 

The combination of a low-density population and long-distance 

commuting to major employment centres, including London, results in a 

higher rate of travel per head than any other region. The region suffers 

from congestion in urban areas and on the strategic road network, 

overcrowding on passenger rail routes to London, and inadequate road 

and rail access to ports and airports for freight and people. Transport 

accounted for around 36 per cent of end-user carbon emissions in 2005 

and is the sector of the economy most resistant to major reductions. 

The regional transport strategy (RTS) sets out the framework for the 

delivery of transport investment and policy in the East of England. xxxi 

This regional economic strategy (RES) aims to maximise the economic 

benefits of the RTS framework by: 

• fully exploiting economic opportunities arising from the development 

of international gateways 

• supporting productivity growth arising from agglomeration in our 

growing cities and towns 

• enhancing productivity from improved connectivity on the key 

inter-urban network. 

In supporting improvements to the transport infrastructure and services, 

we must also moderate demand and carry a greater proportion of 

movements in a more sustainable manner. 


• a reduction in the cost of congestion in the region 

• a free-flowing transport system with improved journey times and 

increasing journey-time reliability 

• flourishing transport gateways that are exemplars of sustainable 

economic development, served by reliable and effective multi-modal 

surface access 

• parity in transport investment with leading international competitor 

regions 

• greater direct and wider economic benefits realised from an increase 

in public and private investment in transport priorities 

• a leading region for embedding technology in the transport system 

to increase efficiency and reduce environmental impact 

• stabilising and then progressively reducing the carbon emissions 

resulting from transport by increasing the use of public transport. 

xxxi The regional transport strategy is included in the regional spatial strategy.

What do we 


Transport 

77 

Priority 1: 

Creating a resilient transport system that is used effectively 

and efficiently 

It is possible to greatly increase the effectiveness of the existing transport 

system by concentrating on measures, on both the demand and supply 

side, that can lead to significant benefits at relatively low cost in short 

timescales. These will reduce congestion and increase network resilience, 

providing shorter and more reliable journey times. 

On the demand side, it is critically important to introduce interventions 

that aim to bring about behavioural change in travelling habits in the 

region. In particular, we must reduce the need to travel where we can and 

reduce reliance on road-based private transport. The region needs to 

make best use of the wide range of hard and soft demand management 

techniques available, including digital technology and employer travel 

planning, to encourage behavioural change in business and personal 

travel. Furthermore, land-use planning decisions should be more ambitious 

in achieving sustainable travel objectives, and ensure that they contribute 

to effective operation of the local and strategic regional transport networks. 

On the supply side, the region needs to deliver local solutions to small-scale 

bottlenecks or constraints on the existing transport network, in both rural 

and urban areas. Such solutions can offer a cost-effective means of 

reducing congestion at key pinchpoints. 

Priority 2: 

Investing in transport to maximise economic growth 

In addition to making the best use of the existing network and 

encouraging sustainable travel behaviour, new investment is required to 

enable the region’s transport system to support the planned increase in 

population, housing, employment and economic growth over the period 

to 2031. A significant funding deficit is restricting development of the 

region’s transport infrastructure to the standard required to compete with 

other comparator international regions. 

A number of major transport schemes are expected to be completed in 

the lifetime of this strategy. These include Crossrail, Thameslink, the first 

stage of rail improvements to the Felixstowe-Nuneaton line and several 

regional transport schemes. However, the region needs long-term, 

sustained investment in the key strategic economic corridors. 

These include: 

• Felixstowe-Ipswich-Cambridge-Huntingdon-Kettering/Nuneaton 

(the A14 and Felixstowe-Nuneaton rail corridor) 

• London-Basildon-Southend (A127, A13, London Tilbury and Southend 

rail route) 

• London-Stansted-Cambridge (M11, West Anglia main line) 

• London-Chelmsford-Colchester-Ipswich-Norwich (A12, Great Eastern 

main line) 

• Cambridge-Norwich (A11, parallel rail route) 

• London-Luton-Milton Keynes (M1, A5, rail corridor) 

• Luton-Bedford (A5, Midland main line, Thameslink) 

• Stansted-Colchester-Harwich (A120) 

• London orbital (M25, A414, London Arc links) 

• Cambridge-Bedford/Milton Keynes (A428/A421 corridor) 

• London-Peterborough (A1, East Coast main line corridor) 

• Peterborough-Norwich-Great Yarmouth/Lowestoft corridor (A47 and rail).

What do we 


Transport 

78 

In taking forward specific scheme proposals to address the development 

needs of these corridors, regional partners will need to rigorously test the 

economic impacts of schemes using a consistent evidence base and 

appraisal methodology. This will be necessary to establish priorities and 

strong business cases for regional, national and EU investment. 

The East of England Implementation Plan will publish specific transport 

priorities for economic growth, based on the results of the Transport 

Economic Evidence Study and sub-regional work including Integrated 

Development Programmes. This evidence will quantify the cost of existing 

constraints on the transport network to the economy, and identify those 

parts of the network where constraints are holding back economic 

growth. The subsequent identification of evidence-based solutions to the 

most severe constraints will form the small set of economic transport 

priorities most critical to the development of prosperity. 

The region must find and agree new and innovative methods of funding, 

to ensure that the East of England can develop the transport infrastructure 

that it needs to support a world-class economy. This should include 

different models for public/private funding and rolling infrastructure funds, 

such as a Regional Infrastructure Fund, which should be fully developed 

and implemented within the early years of the RES. 

Priority 3: 

Increasing economic benefit to the East of England from major 

international gateways 

The East of England has a distinctive role as the UK’s gateway to global 

markets. Our ports currently account for 53 per cent of UK container 

capacity and more than 20 per cent of the UK port employment. With the 

planned expansions at Felixstowe South, Bathside Bay and London 

Gateway, this will rise to over 70 per cent of the UK’s container capacity. 

Forecast growth in demand for aviation remains strong. International 

gateways provide significant employment, are hubs of wider economic 

activity and are vital to international trade and collaboration – the 

primary driver of global economic growth. The Channel Tunnel Rail Link to 

St Pancras gives the region easy access to Europe’s high-speed rail network. 

Our major international airports and ports are of national economic 

importance, and decisions to increase capacity will be taken nationally. 

The principal roles of regional decision makers are to realise the economic 

benefits for local areas and the region from expansion, whilst addressing 

and mitigating global and local environmental impacts. 

Proposals to develop gateways in the East of England will have significant 

benefits for the regional and national economy. GVA per employee is 

higher for the transport gateway sectors than the regional average. Work 

for the RES evidence base has predicted that, by 2030, between 115,000 

and 131,000 direct, indirect and induced jobs would result from gatewayrelated 

activity if national government policy on gateway development is 

implemented. This would mean that transport gateways could account 

for between 4 and 5 per cent of total GVA, an increasing proportion of the 

regional economy. If a second runway is not developed at Stansted,

What do we 


Transport 

79 

overall gateway jobs would range between 96,000 and 108,000 by 2030. 

Under all possible scenarios, the region must ensure that it acts to 

optimise the economic benefits of gateway development. 

The local, regional and national economic benefits arising from the 

expansion of our gateways will need to be balanced against the global 

and local environmental impacts of such development. At international 

level, this strategy strongly supports the proposed inclusion of aviation 

into the EU emissions trading scheme. In national policy terms, the RES 

advocates an element of tax revenues from gateway expansion being 

hypothecated to local and regional level to manage impacts and help 

finance regional strategic infrastructure. 

The mitigation of local environmental impacts from gateway expansion 

should be addressed by the implementation of sustainable surface access 

plans and low-carbon development packages, incorporating significant 

use of rail and other public transport. In order to achieve this, international 

gateways in the East of England must be national exemplars of sustainable 

development – characterised by flourishing and internationally focused 

businesses, high and growing employment, increased productivity, with 

low-carbon footprints. 

Priority 4: 

Reducing the environmental impact of moving goods and people 

Transport is the fastest-growing contributor to carbon emissions, and the 

East of England has one of the highest household car ownership rates and 

percentage of workforce travelling to work by car of all English regions. 

Given our vulnerability to the impacts of climate change, it is in our own 

interests to be an exemplar region and to act to reduce the environmental 

footprint of the transport system and increase network resilience to future 

climate change impacts. 

The region faces an enormous challenge in reducing the impact from 

transport on climate change. The East of England is a unique polycentric 

region. With its mix of rapidly growing urban areas, expanding transport 

gateways, sparsely populated rural areas and proximity to London, it is a 

challenging environment for the development of a sustainable transport 

system that meets both economic growth and carbon reduction targets. 

Solutions will need to reflect this context. 

The region’s academic and private research institutes provide the 

expertise to put the region at the forefront of innovation to reduce the 

environmental impacts of travel, including the use of technology 

enhancements and alternative fuels. Some of the most promising 

technologies to bring about greener modes of transport are in early 

stages of development or are untested, and will need investment to 

ensure they can be successfully adopted.

What do we 


Transport 

80 

Using our existing transport network more sustainably requires reducing 

the need to travel. Enabling greater use of alternatives to private car and 

lorry use will require major improvements to public transport and 

encouraging the modal shift of freight from road to rail. Other actions, 

such as employer travel planning and innovative accessibility planning 

need to be enhanced in urban and rural areas where locally supported. 

Demand management schemes could make a significant contribution. 

More work needs to be done to incorporate the environmental costs of 

transport into the pricing mechanisms for transport usage, to influence 

behaviour change through fiscal measures. 


• an agreed set of regional strategic transport priorities to inform the 

East of England’s Regional Funding Advice submission 

• progress in developing a Regional Infrastructure Fund to better 

leverage market investment 

• increasing investment in the region’s transport system through the 

full range of national, EU and private sector funding streams 

• increased national infrastructure investment and pricing incentives 

to enable a greater share of freight to be transported by rail and short 

sea shipping from our international gateways 

• developing integrated transport planning and investment across all 

modes, and increased use of technology to improve the use of the 

system and reduce the environmental impact of the need to move 

people and goods. 

Image right: The city of Norwich is home to a Norman cathedral and castle, yet is also in the 

UK’s top ten retail destinations. Norwich successfully preserves its historic past whilst also 

being a progressive, vibrant city. This combination makes it a great place to live, work and visit.

Spatial Economy 

High-quality and distinctive natural 

and built environments are key factors in 

attracting and retaining people and 

investment. 

How can we harness the region’s 

distinctive towns, cities and landscapes 

to attract and retain people and 

investment? 

Photograph: Tom Mackie

What do we 




used within the Spatial Economy goal, 

please see evidence base, part 2 


82 

3.8 Spatial Economy 

Sustainable places that attract and retain 

the people and investment necessary for a 

world-class economy 

Place matters! In an increasingly competitive international economy, 

the nature and quality of places are becoming ever more significant. 

Sustainable built and natural environments are key factors in attracting 

investment, a well-skilled labour force, businesses and visitors. Cities and 

towns play a particularly critical role in the development of knowledge 

economies, in part due to agglomeration effects, which mean that 

businesses can benefit from large labour pools, local supply chains and 

informal networks. Our towns and cities are the building blocks of prosperity. 

Agglomeration effects such as skilled labour pools, specialist suppliers, 

business networks, knowledge flows, supportive institutions and finance 

and innovation are important issues in creating competitive sub-regions. 

If the scale and effectiveness of urban areas can be increased, then the 

economic performance of the town or city and wider rural areas can be 

improved. The principles of agglomeration lie at the heart of the 

approach to successful place-making in the East of England and have 

informed the identification of the ‘engines of growth’. 

The East of England is facing a number of opportunities and challenges 

over the next decades. The scale of growth faced at local and regional 

level, and the major challenges we must embrace such as climate change, 

resource-use, an aging population and migration, mean that the region 

needs to plan and deliver growth in a holistic manner. 

There is an external perception that the East of England is performing very 

strongly; however, there are some significant issues of under-performance 

and disadvantage across the region that require a targeted approach in 

order to maximise the impacts of the growth agenda. It is vital to identify 

and foster the specialist economic roles that our towns, cities and rural 

areas play in the global economy. There is also recognition of the 

convergence and linkage between urban and rural economies. We must 

ensure that our settlements and rural areas are vibrant and that the 

region’s special and vulnerable landscapes and environments are 

conserved and improved. 

Sustainable communities in both urban and rural areas also need access 

to a wide range of services, transport, education, community and social 

facilities, ICT, quality environments, health and culture. The importance 

of these assets and infrastructure in promoting economic success and 

well-being cannot be overstated.

What do we 



83 


• a better balance between housing and employment opportunities 

contributing to effective and affordable places 

• increased business investment in the identified engines of growth 

• enhanced profile for the region through its places, natural, heritage 

and cultural assets 

• reinforced roles for our market towns as sub-regional centres 

• sustainability of the vitality of rural areas 

• renaissance of our coastal towns. 

In meeting our goal of delivering sustainable places as the drivers of 

the regional economy, the priorities identified for the regional economic 

strategy encompass the ambitions of quality, distinctiveness and 

sustainability. 

Priority 1: 

Ensuring physical development meets the needs of a changing economy 

The approach that is taken to the delivery of new physical development 

will define our success in planning for growth and change and will leave a 

legacy for generations to come. The quality, adaptability and appropriate 

delivery and phasing of development must be the keystones in ensuring 

that the East of England’s investment in the growth and regeneration 

agendas adds value to the regional offer rather than compromising the 

quality of lives for our residents. 

Design quality is well established, both in terms of contributing 

significantly to sustainable communities, ensuring sensitivity to vulnerable 

landscapes and habitats, but also in making sound commercial sense and 

adding value to the development process. The creation of successful 

places in the East of England will rely heavily on our combined ability to 

achieve high levels of design quality and environmental standards 

through new development. Development of any scale that does not 

contribute positively to making places better, is inappropriate in its 

context; any that does not reflect the character or distinctiveness of an 

area is not acceptable and should be resisted. Aspirations for design 

quality across the region can in part be met by agencies such as the 

Regional Centre for Sustainable Communities, which provides further 

guidance, skills development and information sharing and encourages 

the provision of appropriate design guidance at the local level. 

In a rapidly changing economy, an adaptable approach to physical 

development is essential in creating long-term sustainable communities. 

In planning for new developments in the East of England, there should be 

a view as to their longevity, robustness and adaptability. The Local 

Government White Paper placed an emphasis on giving communities a 

greater say and enabling partners to respond flexibly to local needs. 

Local inputs to place-making is key to success, with local authorities and 

other partners at the forefront of actively and meaningfully engaging 

with communities, businesses and stakeholders in planning for new 

physical development.

What do we 



84 

Priority 2: 

Increasing economic gain from the region’s distinctiveness and vitality 

It is becoming increasingly recognised nationally and internationally that 

culture makes a dynamic contribution to communities, revealing its 

distinctive heritage and attitudes, and that culture-led regeneration helps 

underpin the success of small and medium-sized cities. In the East of 

England we have a rich cultural heritage to draw upon. To further our 

prosperity and attractiveness as a region, we need to safeguard, develop 

and promote our cultural strengths, as well as our diverse natural and built 

environments. This will enhance the quality of life for those who live in 

and visit the region, and be an integral part of economic development 

and meeting the needs of growing communities. 

There is an increasing number of compelling examples in the region 

where culture is playing a leading role in regeneration and economic 

development. International centres of excellence are being developed in 

many of our key regional cities and towns, which are already beginning to 

make this region one of the best places in Europe to live and work. One 

example is firstsite:newsite in Colchester, which is in one of the fastest 

growing communities in the UK. firstsite:newsite will become an 

international contemporary art space, vital to the communities, catalysing 

creativity and entrepreneurship, increasing profile and tourism and 

forming an integral part of town centre renewal plans. As populations are 

more mobile and people can individually choose where they live and work, 

the East of England needs to show internationally the distinctiveness of 

our region. The region could take a more integrated approach in developing 

culture as part of place-shaping and developing the value proposition for 

places, thereby securing vital opportunities for economic development 

and regeneration and ensuring the region is vital and sustainable. 

The region has good proximity to London and good transport connections 

to the London 2012 Olympic and Paralympic Games venues. There is the 

potential for the region to capitalise on the 2012 Games using them as a 

catalyst to drive forward economic development and to realise positive 

benefits for the region’s cultural life, communities and tourism industry. 

The region will host two venues and the potential value of the Games to 

the East of England economy could exceed £600 million. The East of 

England Charter – Benefiting from the 2012 Games – defines success for 

the East of England across tourism, business, skills, sport, health, culture, 

infrastructure and volunteering with delivery structures in place to ensure 

the region can capitalise fully on legacy benefits. 

In rural areas there is a need to enable people and businesses to thrive as 

the managers of many of our natural and cultural assets. This priority also 

recognises and supports the importance of the region’s landscapes, 

wildlife and open spaces. These include such unique and vulnerable 

environments as the Fens and the Broads, Thetford Forest, our extensive 

and varied coastline and areas of tranquil countryside. These locations 

have direct impacts on the economic performance of the region both 

through positive impacts on people’s well-being and productivity, but also 

through the range of specific economic opportunities that arise from the 

natural environment.

What do we 



85 

Protecting and enhancing our green infrastructure is central to securing 

sustainable communities. Accessible networks of high-quality parks and 

other green spaces that link urban and rural areas provide diverse benefits 

to communities. The region should seek to create distinctive areas within 

and between cities and towns, enhance biodiversity, provide opportunities 

for leisure activities and deliver a sense of place and community. 

Priority 3: 

Creating sustainable places for people and business 

This priority focuses on the need for the region to have a balanced 

approach to the provision of homes and jobs to support economic growth 

and regeneration. Sufficient high-quality, affordable and accessible 

homes are required in the right locations to support the region’s labour 

force. Equally, it is essential that the region secures the provision of 

high-quality business infrastructure and premises to support the needs 

of current and future businesses. 

It is critical that the region’s key centres of development and change can 

provide the amount and quality of housing, and create the economic 

activity, business opportunities and wealth needed to benefit the whole 

region. The refresh of the East of England Plan will consider how housing 

provision can be reviewed beyond 2021 to address demographic, 

affordability and economic demands, including the further potential of 

existing key centres for development and change and small or major 

eco-towns and new settlements. 

A key element in achieving a balance of housing and jobs is protecting, 

promoting and developing employment sites that support business growth 

and ensure the economic viability of local communities. These allocations 

need to consider the requirements of different business sectors and their 

aspiration for locations that promote partnership, collaboration, 

innovation and competitiveness. Urban brownfield sites are increasingly 

under pressure to be developed for housing. While it is acknowledged that 

the long-term vacancy of derelict employment sites can harm a town’s 

image, it is important to retain existing employment sites where possible 

and appropriate. Only sites that no longer meet regeneration and growth 

objectives, informed by an up-to-date Employment Land Review, should be 

made available for alternative uses. 

Priority 4: 

Adapting the region’s places to meet the challenges and 

opportunities of climate change 

The impacts of climate change on the region have been well documented, 

and include: the increased risk of flooding, whether tidal, fluvial or ‘flash’ 

flooding, reducing availability of water resources and higher 

temperatures. Whilst successful businesses, communities and individuals 

across the region are working to mitigate the impacts of climate change, 

in creating sustainable places for the future, adaptive changes will 

inevitably be necessary to meet a potential increase in global average 

temperatures of at least 2ºC by the end of the century. This priority 

therefore focuses on the adaptive climate change measures that need to 

be embedded in the long-term planning and decision-making for the 

region’s places.

What do we need to change? 


86 

The planning system has a key role in ensuring that current and future 

risks are taken into account in development and growth decisions across 

the region. Such plans must be prepared with the full range of sustainable 

development objectives in mind. New building design and construction 

and appropriate retrofit techniques are also important, for example, the 

use of pollution filtering, as well as enhancing the use of quality green 

space and promoting the connectivity of natural landscapes. The public, 

private and voluntary sectors will need to work together increasingly to 

improve emergency and contingency planning, risk management, skills 

development and adaptive techniques. 

Managing the long-term process of change, however, will also bring 

economic challenges and opportunities. Where possible, adaptation 

strategies should work with the natural processes on the coast, and with 

close community engagement, as this is the best chance of delivering 

long-term solutions that make economic and environmental sense. 

The development and commercialisation of innovative and applied 

technologies and their knowledge transfer, whether to support building 

design and construction, to explore the potential for new or alternative 

crops and products for sustainable land use or for species for habitat 

creation and enhancement, are also important. 


• improving the design quality and sustainability of places in the East 

of England through access to advice, services, exemplars and capacity 

building in key locations 

• developing a network of internationally important cultural centres 

of excellence and creative quarters in our leading cities 

• protecting and conserving the region’s key cultural and historic 

landscapes 

• ensuring the deliverability of existing housing and jobs targets through 

a range of measures such as: positive local development documents, 

strengthening investment planning and delivery partnerships, strategic 

employment land reviews and raising the region’s share of 

infrastructure funding to support delivery of affordable housing 

• supporting the regional coastal initiative to develop a long-term 

strategy for the East coast to progress an integrated approach to 

coastal zone management 

• developing the evidence base for responding to climate change in the 

region and supporting the use of innovative and applied technologies 

through positive planning for adaptation 

• reviewing the spatial options for long-term growth to maximise 

competitiveness and sustainable development.


The spatial response 

For information on sources of data used 

within the spatial response, please see 

the evidence base, part 3 section 11 

87 

3.9 The spatial response 

In addressing the unique economic geography of the region, the regional 

economic strategy examines three key contextual issues, all of which have 

direct impacts on the spatial response to future economic development. 

The three distinct but related aspects, all crucial to the prosperity and 

well-being of the region, are as follows: 

• the relationship to London and the role of the East of England in the 

Greater South East, the powerhouse of the UK economy 

• a network of small and medium-sized cities and market towns 

• geographical differences in performance. 

The Greater South East – the relationship to London and the South East 

London as a leading global city has major effects on the East of England. 

This is most visible through the high levels of commuting from areas in 

the South of the region. 

Figure 13 

The Greater South East 

London-Stansted-Cambridge-Perterborough 

Milton Keynes/South Midlands 

Ashford 

The Thames Gateway 

Dacorum-St Albans-Welwyn Hatfield 

BERKSHIRE 

HAMPSHIRE 

Bedford 

BEDFORDSHIRE 

SURREY 

Crawley 

WEST SUSSEX 

CAMBRIDGESHIRE 

OXFORDSHIRE 

Aylesbury 

LUTON 

Luton 

HERTFORDSHIRE 

STANSTED 

ESSEX 

BUCKINGHAMSHIRE 

Harlow 

Oxford 

Watford 

Chelmsford 

Winchester 

Southampton 

Basingstoke 

SOUTHAMPTON 

ISLE of 

WIGHT 

Reading 

SOUTHAMPTON 

Milton Keynes 

Bracknell 

FARNBOROUGH 

Portsmouth 

PORTSMOUTH 

Guildford 

Peterborough 

CITY 

LONDON 

HEATHROW 

Brighton 

Cambridge 

EAST SUSSEX 

King’s Lynn 

Bury St Edmunds 

KENT 

NORFOLK 

Colchester 

SOUTHEND 

Olympic site Southend-on-Sea 

BIGGIN HILL 

GATWICK 

Tunbridge Wells 

KING’S LYNN 

SUFFOLK 

Ipswich 

TILBURY & LONDON GATEWAY 

The Medway Towns 

Hastings 

Ashford 

Norwich 

NORWICH 

MANSTON 

Canterbury 

DOVER 

GREAT 

YARMOUTH 

LOWESTOFT 

FELIXSTOWE 

IPSWICH 

HARWICH 

CHANNEL TUNNEL



88 

However, there is also evidence of an increasing functional relationship 

between cities within the East of England and London. Examples include 

the role of Norwich, Ipswich, Peterborough and Southend-on-Sea as 

centres for wholesale financial and insurance services that complement 

London’s global head office function in financial and business services. 

The relationships between London, the East of England and the South 

East of England are deepening, with growing integration of labour and 

housing markets, economic and leisure functions. 

The challenge for the region is to capture the value of its proximity to 

London as a leading global city, and increasingly Milton Keynes as a 

centre of core city scale in the future. London itself will benefit from 

improved performance and growth in the network of surrounding towns 

and medium-sized cities, given their assets, economic functions and 

collective market scale. However, to realise these benefits, coordinated 

investment is needed to improve infrastructure to the level of other 

world-city regions, and foster greater knowledge and technology transfer. 

A network of cities and towns 

It is immediately apparent that the East of England is quite distinctive in 

terms of the scale and distribution of its towns and cities. In most other 

parts of the UK, individual core cities such as Birmingham or Manchester 

dominate where people live and work, where businesses locate and how 

transport systems operate. In recognising the benefits of agglomeration, 

the government has increasingly sought to invest in and plan for the 

future of these places as major regional and national economic drivers. 

The East of England is heavily influenced by its close relationship with 

London as a world city. It does not contain any core city scale conurbations 

within its geography. Given this position, the key is to understand the role 

that the East of England’s urban areas can play both in relation to London 

and each other in accommodating the levels of growth required in the 

region, and in responding to the benefits of agglomeration. 

The Sustainable Communities Plan (2003) identified four national growth 

areas. Substantial parts of three growth areas fall within the East of 

England, including: 

• London-Stansted-Cambridge-Peterborough, which now includes 

Chelmsford and Bury St Edmunds 

• Milton Keynes-South Midlands, including Luton and Bedford 

• Thames Gateway South Essex. 

Consultation is under way on the inclusion of Dacorum, St Albans and 

Welwyn Hatfield within the growth areas. In addition, Haven Gateway, 

Norwich, King’s Lynn and Thetford have been identified as new growth 

points. The region’s growth areas and growth points are important in 

improving the balance of housing supply, affordability and economic growth. 

The East of England Plan sets out 21 key centres for development and 

change. Whilst all are a focus for growth, they vary greatly in their 

economic scale, role and drivers. The urban framework identifies distinct 

typologies within the key centres within the East of England: 

• centres that act as independent centres of regional-scale cities, such as 

Norwich, Peterborough, Cambridge and Ipswich 

• regional cities and larger settlements that have greater integration with 

London in terms of the labour market, such as Luton, Southend-on-Sea, 

Colchester, Chelmsford and Watford



89 

• smaller settlements that act as sub-regional centres largely 

independent of the London effect, such as Bury St Edmunds, King’s 

Lynn, Great Yarmouth and Lowestoft 

• sub-regional urban centres in Essex and Hertfordshire with high levels 

of commuting and connection to London, such as Hemel Hempstead, 

Harlow, Stevenage and Thurrock. 

These typologies are important in planning for the economic future of 

places, and have influenced the identification of ‘engines of growth’ set 

out in Figure 14 on page 91. So too is a recognition that collaboration 

between places, both within the East of England and the wider Greater 

South East, can be effective in sharing best practice, advocacy and 

presenting a critical mass in international markets. 

Geographical differences in economic performance 

The East of England is not one economy, but instead is made up of a 

number of overlapping economies. The complex economic geography 

of the region changes through time and is not confined to administrative 

boundaries at regional or local level. Growth has played out differently 

in different cities and across sub-regions and the region is characterised 

by an increasing gap in productivity and employment rates. 

Raising productivity and employment rates in under-performing parts of 

the region is critical to our future prosperity. To do so requires concerted 

effort to address economic drivers and enable the transition to a strong 

and adaptive economy, able to compete in global markets. Different 

places will require a different mix of interventions, appropriate to their 

economic history, structure and location. Performance is a product of 

‘supply-side’ drivers such as skills and innovation, and their interaction 

with demand. The prosperity of places is therefore dependent on the size 

of local markets, and crucially, connectivity to wider national and 

international markets. 

In particular, local and regional partners must take action to improve poor 

skills performance. The region also needs to engage with the government 

on the infrastructure investment required to improve connectivity 

between major economic drivers in the region. 

Clearly, this is a complex question that will require interventions to 

support employment rates, skills, innovation, business registrations, 

economic structure and quality of life factors. However, there are different 

levels of performance relating to the geography of the East of England. 

There is a need to develop responses that are specific and allow each 

place to meet an identified role in a successful economic future. 

Spatial economic planning in the East of England 

In responding to these issues, the regional economic strategy identifies 

the following as requiring distinct economic and planning approaches: 

• engines of growth – the cities and urban sub-regions where success 

will increasingly drive regional economic growth 

• coastal renaissance – maximising the performance of the region’s 

coastal settlements and assets and addressing Great Yarmouth and 

Lowestoft as particular regeneration priorities 

• market towns and rural areas – recognising the essential contribution 

of the rural economy and the role of market towns as key sub-regional 

centres.



Engines of growth 

90 


For the regional economy to grow in a way that is sustainable, it is 

important that agglomeration processes, and the economic benefits that 

derive from them, are recognised and supported in a manner that reflects 

the current situation but also anticipates likely changes in the region’s 

functional geographies. In terms of regional economic performance, a 

subset of the East of England Plan key centres for development and 

change – the larger urban sub-regions, cities and their hinterlands – will 

disproportionately drive growth, given the importance of agglomeration 

and the concentration of assets (businesses, higher education institutions 

and labour pools). There is also sound evidence to suggest that strongly 

performing functional urban areas have major benefits to the economic 

and social well-being of their rural hinterlands and market towns. 

These ‘engines of growth’ are: 

• Thames Gateway South Essex 

• Greater Cambridge 

• Greater Peterborough 

• the Milton Keynes South Midlands growth area focusing on 

Luton as a regional city 

• London Arc 

• Greater Norwich 

• Haven Gateway. 

The engines of growth are identified either in relation to the functional 

urban areas associated with the region’s larger cities, or with the networks 

of interdependent urban areas that characterise much of the area closer 

to London. Additionally, we have taken a dynamic, forward-looking 

perspective, taking into account both the geography of planned growth 

and the potential impacts associated with major international gateways. 

The engines of growth are impossible to demarcate precisely through 

boundaries on maps. Physically, many of the cities around which they are 

defined are under-bounded as the built-up area already extends beyond 

the local authority district and much future growth is in adjacent districts. 

However, the functional influence of the engines of growth has a broader 

geography, again particularly in relation to labour and housing markets. 

It is also vital to recognise that many of the engines of growth have a 

strong relationship with London, in both directions. The geography of 

economic influence is therefore multi-layered and complex. 

In this context, cross-boundary working will be vital within the engines 

of growth. Collaborative approaches will be needed in planning for future 

change and prioritising investment. In doing so, these urban areas and 

their functional hinterlands will maximise the benefits of agglomeration, 

ensure that the geographical concentration of assets is available to the 

widest population and engender stronger sub-regional governance and 

joint working.




91 

To deliver significant growth and change, each of these seven areas 

requires: 

• a bold and visionary strategy for the economic development of the 

area led by the local authorities, identifying and supporting a limited 

number of sectors and clusters of international and national 

significance, alongside outlining improvements in the general 

environment for businesses that serve local and regional markets 

• effective partnerships that span administrative boundaries, tiers of 

government and the public and private sectors to deliver regional 

economic and regional spatial strategy ambitions 

• recognition as major economic centres and labour markets, and 

therefore targeting of appropriate services and investment through 

Local Area Agreements or Multi Area Agreements 

• Integrated Development Programmes and strong investment planning 

approaches that identify the phasing and financing of major physical 

infrastructure and growth 

• a planning framework and system that provides clarity and confidence 

to the market, including masterplans or area action plans for areas of 

transformation. 

Figure 14 


Note: All boundaries are indicative 

Milton Keynes 

South Midlands 

London Arc 

Greater Peterborough 

Greater Cambridge 

Greater Norwich 

Thames Gateway 

South Essex 

Haven Gateway 

Great Yarmouth/Lowestoft 

(Coastal Regeneration Priority)



Thames Gateway South Essex 

Queen Elizabeth II bridge 

92 


National regeneration priority, powerhouse 

and playground for London 

Overview 

Thames Gateway South Essex (TGSE) incorporates the regional city of 

Southend-on-Sea, Basildon, Castle Point, Thurrock and part of Rochford 

district. Thames Gateway is the largest regeneration opportunity in Europe, 

and straddles London, the East of England and the South East of England. 

The South Essex economy is greatly influenced and shaped by London. 

Of approximately 300,000 workers resident in the sub-region, some 

88,000 out-commute (compensated partly by some 31,000 in-commuters) 

– often those with higher-level skills and professional employment – 

leaving just over 240,000 jobs within the gateway. 

The Thames Gateway Economic Statement sets out priorities for action 

that should deliver an additional £12 billion of GVA to the UK economy 

by 2021. EEDA, the South East England Development Agency (SEEDA) 

and London Development Agency (LDA), working with the government 

and sub-regional partners, have prepared an Economic Development 

Investment Plan setting out spatial and economic drivers across the 

gateway and priority regional interventions. The three RDAs have agreed 

a joint investment fund of £200 million with The Department for 

Communities and Local Government (CLG) to deliver the priorities. The 

plan has been developed in parallel with the South Essex Economic Strategy. 

Assets and opportunities 

• Thurrock is a major port location, with the Port of Tilbury (currently 

accounting for 80 per cent of Port of London container traffic) and 

approved plans for London Gateway port development, a £1.5 billion 

investment by DP World, creating up to 14,000 jobs 

• together with Dartford, Thurrock, with the existing Port of Tilbury, 

provides the greatest concentration of logistics operations supporting 

London as a world city 

• the retail cluster in the Lakeside Basin is a destination and employment 

location of regional importance. It has potential to draw significant 

further commercial investment into South Essex 

• Basildon is a major employment centre with a net inflow of commuters 

to the urban area (despite strong out-commuting to London) 

• it has a significant advanced engineering presence along the A127 

‘Enterprise Corridor’, with Ford’s research and development facility at 

Dunton and New Holland 

• Southend-on-Sea is the largest urban area in the region and an 

important service and growing cultural centre. Major opportunities 

exist to strengthen Southend as a centre for knowledge-based 

employment, building on the creation of the university campus and 

leading companies such as Olympus Keymed and RBS 

• Southend-on-Sea receives approximately six million visitors per annum, 

and is home to London Southend Airport, which has potential for 

passenger growth and enhancement of its engineering and 

maintenance activities




93 

• business creation rates in TGSE are high with 10.76 new businesses 

created per 1,000 population, against a national average of 10.08. 

Job growth over the 1991–2001 period has been strong, with 18,400 

jobs created, an increase of 7.7 per cent 

• proximity of TGSE to the London Olympic and Paralympic site provides 

the opportunity to capture business contracts and tourism investment, 

as well as a cultural and sporting legacy 

• over 400 hectares of brownfield land that can be brought forward for 

new employment developments of a transformational scale 

• a distinctive estuarial waterfront and rich cultural heritage with the 

potential to form part of a package to attract and retain a skilled 

workforce and strong business base. 

Constraints 

• TGSE underperforms in terms of GVA, growth and has low levels of skills 

attainment 

• 42 per cent of TGSE residents do not have entry level 2 qualifications to 

underpin longer-term learning and employability 

• The proportion of the working population with NVQ level 4+ is 16 per 

cent, significantly lower than the regional average (25 per cent) and 

there is a low proportion of economic activity in ‘knowledge-intensive’ 

sectors 

• its competitiveness, measured by productivity, is below the national 

average (90 against GB=100). Basildon is an exception to this 

• TGSE has existing pressures on transport infrastructure, which are likely 

to be exacerbated by further growth. Key blockages include the 

A130/A13 junction and the A127 in Southend 

• TGSE has a relatively poor perception as a place to do business, which has 

resulted in a poor track record of inward investment. 

Strategic ambitions 

• achieve levels of productivity and earnings of at least the regional average 

• radically improve the skills base through employer-led learning 

opportunities and the creation of 21st century education facilities, 

including schools, new university campuses and industry-led skills 

academies 

• London Gateway as a national logistics and ports enterprise hub - a centre 

for research and technical support as part of an associated cluster, 

including the Port of Tilbury 

• reinvent and revitalise the city and town centres in Southend-on-Sea, 

Basildon, Thurrock and Castle Point with thriving residential, retail and 

leisure offers 

• major reinvention of the Lakeside Basin and West Thurrock to include 

increased leisure and industrial zones, interactive and ecological corridors 

and a new residential offer 

• become renowned for high-quality public and green spaces and attractive 

waterfront development 

• develop as a centre for investment in environmental technologies and 

services, including potential leadership in automotive energy efficiency in 

Basildon and a new bioenergy park in Thurrock 

• become a niche centre in the creative industries, including the Production 

Campus and Creative National Skills Academy in Thurrock and a focused 

offer in Southend-on-Sea built around the university, METAL and thriving 

arts and new media businesses 

• realise and harness the potential of London Southend Airport as a key 

transport gateway for the Thames Gateway, by improving operational 

capacity, surface access and supporting business development in 

engineering and maintenance.



Greater Cambridge sub-region 

Napp Pharmaceuticals, 

Cambridge Science Park 

94 


Global centre for learning, technology 

and life sciences 

Overview 

The Greater Cambridge economic footprint covers parts of no fewer than 

nine districts including Cambridge City, South Cambridgeshire, East 

Cambridgeshire, Huntingdonshire, Fenland, St Edmundsbury, Forest Heath, 

Uttlesford and East Hertfordshire. The sub-region provides 365,000 jobs 

with an employment rate of 81 per cent. Over 43,000 people are 

employed in an estimated 1,400 high-technology companies, and 

Greater Cambridge attracted over 18 per cent of all UK venture 

investment in 2007. The resident population has grown by 6 per cent 

since 2000, considerably above the national rate of 2.5 per cent for the 

same period. Success has brought with it the pressures of growth, notably 

deteriorating housing affordability and congestion. There are also 

warning signs that the constraints in Greater Cambridge are beginning to 

erode competitiveness, with minor contraction of the cluster and 

increased competition to the world-leading status of the University of 

Cambridge. Despite this, Greater Cambridge remains a learning and 

innovation centre of global repute. 


• the University of Cambridge, currently ranked fourth in the Shanghai 

Jiao Tong ranking of global universities, and the leading research 

university in the UK and Europe. University of Cambridge spin-outs have 

attracted more venture capital investment than any other UK university 

• world-class research institutes and science base including the 

University of Cambridge, the Genome Campus at Hinxton, the 

Laboratory of Molecular Biology adjacent to Addenbrooke’s Hospital, 

the Babraham Institute and the Cambridge Nanoscience Centre 

• globally significant information and communications technologies and 

biotechnology clusters 

• corporate and/or R&D functions of multi-national corporations such as 

Schlumberger, Microsoft, Hitachi, Toshiba, Monsanto, with others 

relocating to Cambridge such as Philips 

• an EU top-four locality for total institutional investment into innovative 

start-ups, number one in terms of investment per capita 

• a strong presence of professional service, legal and consultancy 

companies and networks (eg the Cambridge Network) enabling 

business growth and knowledge exchange in the technopole 

• specialist accommodation for knowledge-intensive and early-stage 

ventures, including at least seven science parks or incubators 

• a cohort of serial entrepreneurs, pools of management expertise, a 

supply of high skills, with an ability to attract international mobile talent 

• significant heritage, leisure and cultural assets that provide drivers for 

the tourism sector 

• a bloodstock cluster of international renown at Newmarket 

• strong links to global markets and a history of international 

collaborative programmes (eg Cambridge-MIT Institute, 

Cambridge-Munich network links).




95 

Constraints 

• the lack of ‘keystone’ technology companies of large scale 

• the declining availability of seed funding to support business start-up 

and early-stage growth 

• a limited supply of creative, computing and technician skills in the local 

economy 

• whilst a global leader, the University of Cambridge is small by 

international standards and unlikely to grow significantly 

• housing affordability is a major barrier to attracting and retaining 

talented people 

• high levels of congestion, both within Cambridge and on national and 

regional strategic routes 

• considerable variation in economic and educational performance 

across the sub-region and pockets of significant deprivation 

• a need to improve the cultural, creative and environmental offer to 

match efforts of other leading centres in the knowledge economy. 


• maintain the University of Cambridge as a top-five global university 

and deepen the local and regional impact of the university 

• increase the interaction between local SMEs and the applied 

research capability of the University of Cambridge and Anglia Ruskin 

University through increased access to academics, departmental 

facilities and libraries 

• increase collaboration between the University of Cambridge and 

Anglia Ruskin University to ensure the complementarily of the research 

and skills offer for the local and regional economy 

• support the expansion and growth of Anglia Ruskin University to be a 

recognised international force in specialist research, creative and 

technical areas 

• deliver major new applied research and innovation facilities at East 

Forum and Addenbrooke’s, and ensure a long-term supply of high-quality 

sites for R&D and commercial activity 

• develop a comprehensive suite of financial products to support start-up, 

early-stage and mature company growth 

• develop comprehensive support packages to enable renewal through 

emerging clusters such as plastronics, display technologies, 

bio-informatics, semi-conductor design and environmental technologies 

• develop a stronger creative quarter in Cambridge and harness the 

potential of the area to be a leader in the interface between the arts, 

media and new technologies 

• diversify and improve performance of the economy of market towns 

within the sub-region 

• overcome shortages of affordable housing and other infrastructure by 

establishing high-quality, sustainable new communities, including 

Northstowe 

• address the major infrastructure deficit and, in particular, key strategic 

routes connecting Cambridge to regional and national markets, such 

as the A14 and rail routes to London, Stansted and other regional cities 

• to continually upgrade the skills of local communities and ensure an 

increased supply of soft and technical skills into the local labour market 

• deliver major environmental enhancement of Cambridge, surrounding 

settlements and create new habitats of international importance 

through a coherent programme and marketing of the Great Fen, 

Wicken Fen, the Ouse Washes, Needingworth and Fen Drayton initiatives 

• preserve the unique character of the historic core of Cambridge and the 

distinctiveness of the sub-region’s market towns.



Greater Peterborough sub-region 

Peterborough cathedral 

96 


Environment city, inland port and 

northern gateway 

Overview 

Peterborough is a major regional centre and gateway with an influence 

that extends into the East Midlands region. The sub-region enjoys a 

strategic location on the national road and rail network, allowing easy 

access to national and international markets. More than 6,000 companies 

are currently based within Peterborough, including some with their 

regional and international headquarters based in the city. Peterborough 

has demonstrated the strongest performance of the East of England cities 

in the State of the English Cities report. However, recent population 

growth appears to have slowed and the GVA growth is also reflective of 

the 19,000 people who commute into the city. 

163,000 people live in the unitary authority area of Peterborough and the 

sub-region has experienced high levels of in-migration in recent years. 

The regional spacial strategy is now targeting 25,000 additional houses 

and 20,000 jobs for the sub-region building on a series of target sectors 

and current strengths, in particular environmental technologies. This is to 

be balanced with a concentration on improvements in the urban fabric 

and renewal of the city centre, new housing and investment in new 

educational and training opportunities, including the development of a 

university presence. 


• a strong and continuing tradition of high-value manufacturing and a 

current concentration of employment in banking, finance and 

insurance services 

• Environment City status and emerging and well-supported clusters in 

environmental technologies and media, printing and publishing 

• strong public sector employment presence with the continuing ability 

to attract national agencies and organisations 

• a key gateway to and from the region towards the Midlands and the 

North, with good access to London and the Greater South East, with key 

investments infrastructure, which has enabled an emerging proposal 

for an ‘inland port’ 

• continuing strong growth, which will attract investment (eg to the city 

centre) 

• a strong commitment to new development and regeneration to tackle 

some of the causes of economic underperformance, including 

affordable housing provision and the quality of all developments 

• presence of major companies including Thomas Cook Group, Hotpoint, 

Pearl Assurance, Perkins Engines Co, Peter Brotherhood, Amp, EMAP, 

British Sugar plc and Fairline Boats plc.




97 

Constraints 

• limited higher education offer and a concentration within some 

wards of low skills and education base 

• perception of a poor external image and a limited cultural leisure 

offer for the city 

• the challenges of delivering affordable housing 

• notwithstanding a positive strategic location, an identified need for 

specific and significant transport investment 

• an inadequate supply of suitable business premises in particular 

start-up and incubator units, in comparison to other major centres 

a weaker track record of high-value job creation. 


• continue to diversify and improve economic performance through 

high-quality business support, helping businesses to grow and 

attracting new entrants into the local economy 

• develop attractive and distinctive public spaces throughout the city, 

particularly through a programme of international-quality public art 

• renew the city centre and increase Peterborough's pull as a major retail 

centre in the North of the region 

• provide a university presence in the city, with longer-term development 

of an higher education campus to increase supply of demand-led 

higher-level skills 

• expand the environmental technology cluster through targeted 

business support, finance and business space creation 

• strengthen the Environment City status by the creation of UK-leading 

zero-carbon housing developments 

• promote the locational advantages of Peterborough to secure 

increased inward investment in logistics and advanced services 

• improve opportunities for excluded people and communities to access 

education, training and jobs 

• harness the diversity of the city to promote community cohesion and 

build links for international trade and collaboration.



Milton Keynes South Midlands 

growth area 

London Luton Airport 

98 

Milton Keynes South Midlands growth area 

focusing on Luton as a regional city 

Inter-regional regeneration and growth focus 

Overview 

Milton Keynes South Midlands (MKSM) is a national growth area 

spanning parts of the East of England, South East and East Midlands. 

The economy of the East of England part of the MKSM growth area is 

centred on the two conurbations of Bedford/Kempston and Luton/ 

Dunstable/Houghton Regis. The sub-region has a population of 590,000 

people, with Luton being one of the most ethnically diverse places in the 

region. The area has seen steady population growth and significant 

immigration over the recent years. 

The main economic ambition for the area is to continue the transition to 

a higher value economy and raise GVA growth rates. This will enable the 

sub-region to play a complementary role to the strong growth forecast in 

neighbouring Milton Keynes, Northampton and Cambridge, and realise 

the benefits of proximity to London. The sub-region has committed to 

delivering 50,000 jobs by 2021, and housing targets of over 26,000 for 

Luton/Dunstable/Houghton Regis and nearly 20,000 for Bedford/Kempston. 

Important to the area’s success will be developing a stronger sub-regional 

employment land offer and marketing proposition to attract and retain 

companies and entrepreneurs. 


• Luton and South Bedfordshire have undertaken significant economic 

restructuring and are continuing the move into higher-value industries. 

A higher proportion of the workforce is now employed in financial and 

business services 

• London Luton Airport is a major gateway for London and the Greater 

South East, and provides the base for major airline operations including 

EasyJet Airlines, Monarch Airlines, Monarch Engineering Ltd and 

Britannia Airways 

• strong higher and further education infrastructure, including the 

unique applied research and postgraduate offer of Cranfield University 

and the business and skills-focused University of Bedfordshire 

• leading companies and facilities such as Unilever, BAE Systems, Nissan, 

Lockheed Martin Insys, Astra Zeneca, Siemens, Trafficmaster and the 

Millbrook Proving Ground 

• the Bedford growth area has also been successful in attracting logistics 

inward investors such as Amazon, ASDA, Argos and Healthcare 

Logistics, given proximity to key UK markets and location on the 

strategic transport network 

• good North-South strategic transport routes such as the A1, M1 and 

the West coast and Midland main line rail routes, albeit suffering 

increased congestion 

• proposed new developments including the National Institute of Research 

into Aquatic Habitats (NIRAH) and a new Center Parcs village, which 

enable the development of further new housing and leisure facilities



Milton Keynes South Midlands 

growth area 

99 

• a young and diverse population profile, and a vibrant cultural offer 

including Luton Carnival and the UK Centre for Carnival Arts 

• proximity to Milton Keynes, as a major employment centre and growth 

locality that will grow to near core city scale by the end of the regional 

economic strategy period 

• location at the heart of the Oxford2Cambridge Arc increasing 

opportunities for inward investment, innovation and technology transfer. 

Constraints 

• compared to the rest of the region, there are lower rates of business 

start-up 

• meeting the demand in supply of affordable housing completions 

• poor East/West transport links, eg rail links with the Midland and 

East Coast main lines 

• traffic congestion, particularly on the main routes between and 

within urban centres, and the need for improved connection between 

the local and national network 

• in Luton and South Bedfordshire just under 23 per cent of the 

working-age population have level 4 qualifications, well below regional 

and national levels. In line with this, more of our people have no 

qualifications, 17 per cent compared to 14 per cent in the region 

and England 

• persistent pockets of deprivation, particularly concentrated in the 

urban areas of Luton and Bedford. 


• significantly raise entrepreneurship, employment and skills rates – and, 

in particular, to narrow the gaps between disadvantaged communities 

and the average 

• enable continued growth of Luton as a regional city and reinvent town 

centres in Bedford and Dunstable 

• promote business growth and innovation through high-quality physical 

developments combined with a complimentary business support offer, 

such as Butterfield Park and Capability Green in Luton, Priory Business 

Park and the i-lab in Bedford 

• develop a next-generation science park at Colworth, anchored by 

Unilever, with a thriving business community collaborating with both 

private sector and university R&D expertise 

• realise the role of Cranfield University as a major driver of the local and 

regional economy, through a sustained programme of investment in 

applied research, ensuring access of local and regional entrepreneurs to 

leading management expertise and further developing the Technology 

and Air Parks as preferred locations for local and multi-national 

businesses seeking academic partnerships 

• continue to grow the University of Bedfordshire's contribution to 

higher-level skills in the local economy and extend the knowledge hub 

offer, supporting business start-up and growth and applied research 

• ensure delivery of high-quality and mixed housing supply, with a major 

focus on sustainable urban extensions 

• ensure enhanced environmental assets to provide a network of green 

infrastructure of national importance (eg Forest of Marston Vale, the 

Chilterns Area of Outstanding Natural Beauty) 

• improve rail and public transport in the sub-region and connections to 

the national road network (eg M1).



London Arc sub-region 

GlaxoSmithKline’s pharmaceuticals 

research and development facility, 

Stevenage 

100 


Maximising the benefits of a world city 

Overview 

London’s economic footprint extends well into the East of England, its 

influence being most intense within the arc stretching from Watford and 

Hemel Hempstead in the West to Chelmsford in the East. The London Arc 

has a population of approximately 1.35 million. 290,000 people commute 

from their homes in the East of England to London, the vast majority of 

these from within the London Arc. It has features of a competitive 

location on the doorstep of a world city contributing significantly to GVA 

growth and within the influence of a global agglomeration economy. 

The arc is not dominated by any one regional city although it does contain 

six key centres for development and change. Chelmsford and Watford 

have populations of above 100,000 across their urban areas and some 

of the others are proposed to grow to significantly more than 100,000 

by 2021 under the East of England Plan. Some of these key centres of 

development and change, such as Harlow, also have a sub-regional 

economic and social role. Whilst all the centres share common issues in 

terms of their relationship to London, there are distinct relationships 

within the London Arc, effectively split East and West in terms of mid 

Essex, the M11 corridor and mid/West Hertfordshire, and how these 

locations manage the increasing pressures of growth and competition. 


• a world-class knowledge-based economy with pharmaceutical 

businesses such as GlaxoSmithKline in Harlow/Stevenage/Ware; 

multi-national headquarters such as Tesco in Cheshunt; major 

employment concentrations such as Maylands in Hemel Hempstead 

and other global businesses, such as Astrium in Stevenage, Raytheon 

Systems in Harlow and BAE Systems in Chelmsford 

• each of the six key centres in the arc is connected by the mainline rail 

and motorway (except Chelmsford (A12)) to London 

• access to major international airports at Stansted and Luton and, in 

particular for the western end of the arc, Heathrow 

• the University of Hertfordshire as a leading business-facing university 

and Anglia Ruskin University with major strengths in applied research 

and skills development 

• a national and international centre for the media/TV/film sector 

with studios at Borehamwood and Leavesden, linked to the London 

creative cluster 

• the strongest skills base and highest average earnings in the region, 

strongly influenced by the London economy 

• a number of the region’s largest business parks including Maylands in 

Hemel Hempstead and Gunnels Wood in Stevenage, and the proposed 

Chelmsford Business and Technology Park Incubator 

• the potential to relocate businesses out of London 

• the potential of the 2012 Games to raise the profile and improve the 

image of the area.




101 

Constraints 

• the arc is home to a number of individual new towns, which offer a 

range of employment land and premises and are home to major, often 

foreign-owned businesses. However, these places also demonstrate 

common challenges of urban environmental quality, uncompetitive 

town centres, traditional and protected townscapes, pockets of 

deprivation and poor image 

• particularly high levels of resource-use, domestic emissions and 

emissions from road transport with a significant transport 

infrastructure deficit for East-West travel 

• significant existing pressures on infrastructure and future growth 

rates that will place additional demands on transport and other 

supporting community and cultural infrastructure. This is particularly 

critical in terms of orbital transport constraints, as well as on key 

corridors such as the A12 

• low employment rates and low wage rates in some areas with 

particular barriers to employability due to a lack of basic skills and 

participation in deprived wards 

• shortages of affordable and key worker housing and other community 

infrastructure, along with an inadequate supply of private sector 

housing in some areas 

• with the exception of some key locations such as Chelmsford and 

Gunnels Wood in Stevenage, a constrained supply of quality 

employment land. 


• support improvements in sustainable transport connections between 

key centres across the arc and between key centres and the 

international airports 

• retain and enhance the quality and frequency of train services to 

London, maximise the economic benefits to the region from planned 

investment in the form of Crossrail and Thameslink and promote a 

refreshed case for an East-West orbital public transport system linked 

to future development 

• support the development of other basic business infrastructure (eg 

power and water supply and treatment) to support housing and 

economic growth 

• support measures to raise employment rates and the profile of 

higher-value employment across the arc by overcoming barriers to 

employability and raising basic and higher-level skills and participation 

in deprived wards 

• support further expansion of the higher and further education offer 

across the arc, focused upon the key centres, including Harlow, to 

strengthen skills at NVQ3 and 4 in sectors to facilitate progression to 

higher education that supports the arc’s globally competitive position 

• support the sub-regional roles of key centres of development and 

change by recognising the reality of sub-regional economies and the 

need to support the roles that they play within the region and sub-region 

• deliver a high-quality and sustainable urban environment across the 

arc, that supports historic assets, brings forward brownfield sites for 

development and delivers new town regeneration




102 

• establish a positive strategy for green space across the arc that 

consolidates a robust greenbelt review and positively manages a 

‘green grid’ strategy to embrace natural assets such as Epping Forest, 

Lee Valley Regional Park, the Stort Valley, Weald Country Park and 

Aldenham Country Park 

• overcome shortages of affordable and key-worker housing and other 

community infrastructure by supporting the delivery of high-quality 

and sustainable development as part of an integrated package for 

growth. Broaden the housing offer more generally to deliver greater 

diversity and choice 

• enhance the important economic link between Harlow and Stansted in 

terms of skills and employment and improved transport connections 

• ensure a supply and mix of employment land and premises in sustainable 

locations that meet the needs of business, support the requirements of 

key sectors, growing businesses, innovators and start-ups 

• enable and facilitate cluster expansion, business innovation and radical 

performance enhancements around the arc’s globally leading 

companies and research institutes, supporting and enabling supply 

chains and business network 

• use the Olympic and Paralympic opportunity to consolidate and 

stimulate global business investment and networks across the arc 

and the arc’s Olympic and Paralympic venues to trigger wider 

economic opportunity 

• promote the key transport corridors including the A12 and M11 corridor 

as economic drivers and consider improvements to support economic 

growth and competitiveness 

• continue to grow the University of Hertfordshire as the UK’s leading 

business-facing university and Anglia Ruskin University’s applied 

science offer.



Greater Norwich sub-region 

Norwich Research Park 

103 


A science city and regional financial centre 

Overview 

368,000 people live in Greater Norwich and the Norwich policy area has 

a population of 230,000, which is predicted to grow to 280,000 by 2025 

comparable to the present size of Nottingham. About 123,000 people 

work in the Norwich area, which makes it the largest labour market in the 

East of England and it is the fifth most popular retail centre in England. 

Greater Norwich has a challenging growth agenda; the regional spatial 

strategy proposes growth of 33,000 dwellings and 35,000 additional jobs 

by 2021. 


• Norwich Research Park (NRP), one of Europe’s largest sites of 

biotechnology research, already generates a number of high-value 

spin-out companies (eg in drug development, DNA profiling, genomics 

and software development). NRP supports 6,500 jobs and 900 

postgraduate research sciences students and includes the John Innes 

Centre, the Institute of Food Research, the Sainsbury Laboratory and 

the Norfolk and Norwich University Hospital Trust 

• the University of East Anglia is an international leader in areas such as 

climate change, health and life sciences 

• highest graduate retention rates in the East of England 

• an advanced automotive engineering cluster and enterprise hub based 

at Hethel, with Lotus as an internationally renowned innovative 

company as its anchor 

• existing and emerging sectoral strengths in finance and business 

services, biggest cluster of creative industries in the region, food 

processing, environment and bioscience and automotive engineering. 

Norwich supports more than 50 regional or national headquarters, with 

companies including Norwich Union, Marsh, Virgin, Bayer Crop Science, 

Colmans, and Adobe Systems 

• Norwich City has the highest job density of any local authority area in 

the UK outside London 

• a vibrant city centre with extensive cultural, leisure, sports and heritage 

offer, with the largest collection of heritage assets in any UK provincial 

city and access to the Broads and the Norfolk coast 

• a strong quality of life with attractive urban and rural living environments 

• one of the UK’s largest open access free wireless broadband networks 

• Norwich city centre is by far the highest-ranking retail centre in the 

region and fifth in the UK 

• Norwich International Airport as a direct economic driver and 

connecting the sub-region to international markets and Amsterdam 

Schipol as an international hub.




104 

Constraints 

• a perceived lack of a clear and positive external identity is impeding the 

sub-region to capture its full share of inward investment as evidenced 

by the low numbers of enquiries 

• the city has high levels of multiple deprivation concentrated at ward 

level. Over 30 per cent of Norwich children are affected by income 

deprivation 

• the structure of the labour market is out of balance with a lack of 

intermediate-level jobs 

• there is inadequate or constrained employment land availability, 

particularly in the quality of office accommodation within the city centre 

• dwellings targets for Greater Norwich sub-region represent a 30 per 

cent increase in the required rate of delivery and are largely dependent 

on a number of major sites that will require intervention and 

infrastructure to bring them forward 

• the current rate of affordable housing delivery is currently 20 per cent, 

falling short of the government’s target of 35 per cent of all new 

housing development stock 

• national and regional connectivity is poor. 


• strengthen Norwich as a leading medium-sized science city in the UK 

• further transition to a knowledge-based economy through major 

improvements to the skills and employment base 

• improve the position of University of East Anglia in global university 

rankings and significantly increase spin-out technology transfer and 

R&D collaboration, with close ties to the local economy 

• enable the development of clusters at Norwich Research Park and Hethel 

around globally renowned anchor companies and research institutes in 

areas of automotive engineering, environment and life sciences 

• develop Norwich as a nationally important centre in financial and 

business services and creative industries, and maintain Norwich as a 

top ten retail centre with matching city centre office accommodation 

• develop Norwich as an international exemplar of a low-carbon city, 

with the promotion of renewable energy, combined heat and power, 

wind, solar and biomass 

• improve the connectivity of Norwich to key national, regional and local 

markets through infrastructure improvements to key roads and 

enhanced rail services to London and other regional cities 

• greater coordination and intervention to bring forward large brownfield 

sites for redevelopment 

• increase linkages between Norwich International Airport, Amsterdam 

Schipol as a European hub and other key international markets 

• diversify and strengthen the economy of market towns within the 

sub-region 

• a nationally recognised heritage and arts offer and regionally important 

retail and leisure functions as part of a stronger inward investment 

strategy that demonstrates the distinctiveness of the sub-region.



Haven Gateway sub-region 

Ipswich waterfront 

105 


International port gateway and eastern 

regional cities 

Overview 

The sub-region is one of the key international gateways to the UK. Its 

growth and infrastructure are therefore of national significance to the 

well-being of the UK economy. 740,000 people live in the Haven Gateway 

sub-region, which contains the regional cities of Ipswich, which has 20 per 

cent of the population and is Haven Gateway’s largest functional urban 

economy, and Colchester, which contains 15 per cent of population but is 

functionally quite separate from Ipswich. The increasing links with London 

are a feature of the economic flows within and across the gateway. 

The sub-region is also defined in relation to the internationally significant 

Haven Ports (principally Felixstowe, Harwich and Ipswich), its market and 

coastal towns and its high-quality rural hinterland. The Haven Gateway 

is gearing up for substantial economic and housing growth over the next 

two decades, with regional spatial strategy targets of 49,700 jobs 

focusing on key economic specialisms of hi-tech and knowledge-based 

employment growth and 50,840 new homes by 2021. 


• there is a high concentration of employment in post and 

telecommunications and in some aspects of financial services; the 

former accounts for over 7,000 jobs and it is likely that many of these 

are located on or near Adastral Park, home of BT’s research activity 

with a visible presence of higher and further education institutions 

and the largest telecommunications park in Europe 

• the ports of Felixstowe, Harwich, Ipswich and Mistley. Felixstowe is the 

largest container port in the UK, part of the Hutchison Port Holdings 

Group, and is set to expand from 3 million 20-foot equivalent unit to 

5.2 million 20-foot equivalent unit 

• the University of Essex in Colchester is a UK top-ten research university. 

International strengths include industry-linked departments such as 

electrical systems engineering (including photonics, RF engineering 

and multimedia architectures), computer science (including the 

largest robotics research group in the UK) and the Essex Biomedical 

Sciences Institute 

• national strengths in sectors such as transport-related hi-tech 

engineering (Colchester), insurance and telecommunications (Ipswich) 

• the presence of companies such as Hutchison Ports, Flakt Woods, Man 

B & W Paxman Diesels, Brackett Geiger and Axa Insurance, Willis Ltd, 

Textron Inc, Crane Fluid Systems and BT, who are active players in 

national and global markets.




106 

Constraints 

• modelling work highlights a potential challenge in delivering quality jobs 

and growth targets particularly across the Suffolk part of the gateway 

• there is a need to create a more enterprising local economy. Current 

rates of new business formation are relatively low within the Ipswich 

area compared both to the East of England and elsewhere in the 

Haven Gateway 

• as the population grows, the issues relating to the economic vibrancy 

of town centres will need to be addressed 

• housing completions are currently projected to exceed annual targets 

but in later years may slow down and fall behind 

• there is a potential lack of high-quality employment land availability 

particularly in and around Colchester 

• a number of coastal towns are in need of regeneration with pockets of 

severe deprivation including in relation to labour market participation 

• water resources are predicted to become increasingly stretched 

whilst, at the same time, the risk of coastal flooding will threaten parts 

of the area. 


• development of a next-generation 30-acre science-based business 

park at Martlesham, with the real potential both to create over 

1,100 high-value jobs and provide future stability in the sector 

• expand the international port functions of Haven Gateway, including 

expansions at Felixstowe South and Bathside Bay 

• carry out major reinvention of city and town centres, including Ipswich 

waterfront, East Colchester, Harwich and regeneration priorities such 

as Jaywick 

• develop cultural infrastructure of national and regional significance, 

such as an International Centre of Excellence for Classical Music at 

Aldeburgh, firstsite:newsite visual arts facility in Colchester and 

DanceEast as part of the Cranfield Mill development in Ipswich 

• strengthen the research excellence and resultant commercialisation at 

the University of Essex through the development of Colchester 

Research Park and increased knowledge transfer activity 

• improve capacity and address constraints on strategic road and rail 

routes connecting the Haven Gateway to national markets, including 

the Felixstowe-Nuneaton rail route, Great Eastern main line, A12, A120 

and A14 

• preserve and enhance the sub-region's landscape and biodiversity 

• continue to develop University Campus Suffolk as a driver of a highly 

skilled workforce and applied research in the sub-region.



Coastal renaissance 

EastPort, Great Yarmouth 

107 

Coastal renaissance 

An environmentally rich, scenic and 

economically diverse landscape 

The coast of the East of England is among the most environmentally rich, 

scenic and economically diverse landscapes in the country. This covers 

areas of outstanding natural diversity, major tourism spots as well as some 

of the UK’s busiest ports. It is one of the region’s most valuable assets. 

The coast is also home to some of the East of England’s most deprived 

and economically under-performing communities. Our coastal 

communities and economies face changes and pressures that, although 

different in character, are as challenging and far reaching as those facing 

communities directly affected by growth. In addition, coastal and 

estuarine environments cannot be taken for granted as fixed regional 

assets, and there is a pressing need to address some significant 

challenges associated with climate change. 

The region’s coastal towns are under-performing against a range of 

economic performance indicators. They are failing to act as strong 

employment magnets or to exert a significant influence on their wider 

hinterlands. The towns of Clacton-on-Sea, Great Yarmouth, Lowestoft and 

Southend-on-Sea all share these challenges. Importantly, however, whilst 

Clacton and Southend receive growth point funding, the Great Yarmouth 

and Lowestoft urban areas do not, and are therefore identified as the 

principal regeneration priority area for the region. The settlements of 

Great Yarmouth and Lowestoft share a number of challenges. Economic 

restructuring has left a legacy of low employment, low population growth 

and low-skilled jobs. 1st East, the urban regeneration company (URC) for 

Great Yarmouth and Lowestoft was formed in 2005 and the regional 

economic strategy supports the aspirations of this body to address the 

high levels of unemployment and social deprivation through the 

regeneration of large areas of physical dereliction, creating new 

employment and social opportunities in the two towns. 

Regeneration to improve the social and economic well-being of our 

coastal towns is essential, but it is important to avoid inappropriate 

development within areas which are at potential risk from flooding or 

erosion. The government’s strategy for flood and coastal erosion risk 

management, Making Space for Water, has a central theme for the coast 

of learning to work with, and adapt to, the natural processes which affect 

our shoreline. The planning system has a key role to play here by ensuring 

that current and future risks are taken into account in development and 

growth plans for the coastal zone. Such plans must be prepared with the 

full range of sustainable development objectives in mind. However, this 

has to be viewed in the context of the ability of the government via its 

agencies to fund mitigation and defence.



Great Yarmouth and Lowestoft 

OrbisEnergy, Lowestoft 

108 

Great Yarmouth and Lowestoft 

A leading centre for offshore energy 


• attractive biodiversity, landscape and coastline providing major 

tourism opportunities 

• unique built heritage and history 

• emerging economic catalysts in Great Yarmouth, with EastPort and 

offshore renewable energy in Lowestoft supported by OrbisEnergy 

• a critical mass of regeneration opportunities with over 300 hectares 

of land available for redevelopment within the next ten years, 

including 26 kilometres of water frontage. 

Constraints 

• road and rail connectivity to major markets and a perceived poor image 

reduce the attractiveness of both towns for new business investment 

• below average percentages of the population with NVQ4 or above 

qualifications and significant numbers with no formal qualifications 

at all 

• high levels of deprivation, with average earnings below both county 

and regional averages 

• inadequate supply of quality affordable housing 

• a need to manage issues of coastal and fluvial flooding effectively. 


• expansion of the higher and further education offer through the 

existing colleges, with support from the University of East Anglia and 

University Campus Suffolk 

• development of the EastPort outer harbour to provide modern port 

facilities and major employment opportunities 

• improving the tourism offer and including development of a large 

casino and associated investment in high-quality hotel, entertainment 

and leisure facilities 

• delivery of major physical restructuring as set out in the 1st East area 

action plan.



Market towns and the economy 

of rural areas 

Rural Norfolk 

109 

Market towns and the economy of rural areas 

Contributing to the prosperity of regional centres 

The future of the economy in rural areas is dependent on many of the 

same factors that drive the wider economy and demands innovation, 

new skills and a supportive business environment. Indeed, structural 

convergence between rural and urban areas, and in particular the 

dominance of the service sector means at regional level it no longer 

makes sense to talk of a single, distinct rural economy. 

The relationships between the major urban areas, market towns and 

their rural hinterlands are now recognised as a highly interdependent 

economic system. Rural areas in the hinterland of high-performing cities, 

both contribute to, and benefit from, the prosperity of regional centres. 

However, sparse or more remote areas are often characterised by low 

growth and low-wage economies. There is evidence that focusing on the 

economic gains from building stronger complementary relationships 

between the region’s urban and rural areas will deliver significant and 

sustainable economic gain for these remoter areas, as well as for those 

closer to their urban neighbours. 

These relationships should recognise the opportunities for: 

• appropriate development to support and enhance the value of 

these areas 

• addressing the economic challenges that prevent these areas from 

reaching their full contribution to the growth 

• enhancing the quality of life of the region as a whole, for example, 

via the relevant scale of service provision. 

Approximately 31 per cent of the population of the East of England live 

in a rural area. Rural areas will play an active role in the development of 

a dynamic and sustainable knowledge-based economy. The region’s 

important rural assets include the premier agriculture, food processing 

and biofuel locations in the UK, leading agriculture and food processing 

companies and entrepreneurs who are among the most productive in 

Europe. The rural areas also help to create an attractive environment for 

the region, increasing quality of life for the whole population. While many 

of the issues are similar in urban and rural areas, the solutions will often 

need to be tailored so that delivery is appropriate to local needs. 

The provision of affordable rural housing, business support and space for 

rural enterprise, and access to other services whether health, transportation 

or ICT infrastructure, need to be balanced with the issues of flood risk and 

landscape impact in creating successful responses to rural economic 

development. The region’s rural areas, and in particular, the more remote 

settlements, should accommodate appropriate scales of new development 

in achieving our aspirations of a living and working countryside.



Market towns and the economy 

of rural areas 

110 

The East of England contains around a fifth of the UK’s market towns. 

These fulfil a vital role as sub-regional centres. Important relationships 

exist between individual market towns and the region’s larger urban 

areas. Notwithstanding the restructuring of the rural economy in recent 

years, the region’s market towns continue to play an important role 

relative to their defined rural hinterland. Towns such as Bury St Edmunds, 

King’s Lynn and Thetford have grown their economic catchments and 

provide significant retail, cultural, tourism and other service and social 

provisions. Importantly, a number of the region’s market towns have 

achieved growth point status and as such will be expecting to 

accommodate significant levels of housing development. 


• a positive planning framework, that enables: 

• increased provision of affordable housing within broader plans that 

help sustain the scale and vitality of villages and market towns 

• provision of employment space that allows rural businesses to start 

up and grow 

• greater certainty to the market on the deployment of renewable 

energy. 

• effective delivery of skills and workforce development to rural and 

coastal communities 

• maintaining the East of England as the UK’s leader in agriculture and 

food sector, supported by leading research centres of excellence and 

knowledge exchange in fields such as biofuels, non-food crops and 

agricultural engineering 

• improved connectivity and transport services between rural areas and 

regional cities to increase connections to the knowledge base centres 

of excellence, hubs and markets 

• timely provision and take-up of next-generation broadband services, 

to enable rural businesses to reach new customers and suppliers 

• successful development, management and conservation of 

environmental assets to deliver tourism, biodiversity and healthy 

living objectives 

• improved pathways to employment and access to high-quality services 

for those experiencing deprivation in rural and coastal areas.

How 

do we get 

there? 

4.1 Leadership, governance and delivery 112 

4.2 Monitoring 126 












4

How do we get there? 

Leadership, governance 

and delivery 

112 

4.1 Leadership, governance and delivery 

Delivering the regional economic strategy 

in the region 

The East of England Development Agency (EEDA) prepares the regional 

economic strategy (RES) with and on behalf of the region. Implementation, 

however, is the region’s shared responsibility. The test of the strategy will 

be its success in changing behaviour and investment, to bring about 

sustainable prosperity and an economy that can adapt to global issues 

and competition. 

To this end the RES will be used to: 

• direct the activities and investment of key regional and national 

agencies, particularly in areas such as transport and skills that are key 

drivers of regional productivity growth 

• inform the economic outcomes agreed with local authorities through 

Local Area Agreements, and enable local government to contribute 

effectively to the region’s sustainable economic growth 

• provide the basis for our discussions with the government and the EU 

in areas that will influence the achievement of sustainable economic 

growth in the East of England. 

The key components of RES delivery and performance management will be: 

• clear and effective governance arrangements, owning and 

managing delivery of improved economic outcomes at regional 

and sub-regional level 

• an East of England Implementation Plan 

• Local Area Agreements 

• Multi Area Agreements 

• Integrated Development Programmes or equivalents 

• robust sustainable community strategies and local development 

frameworks. 

Delivery arrangements for the RES will need to be adaptable to take 

account of: 

• the implications of an early review of the regional spatial strategy (RSS) 

• institutional changes affecting major delivery partners, such as 

local government reform and the creation of the Homes and 

Communities Agency 

• progress in implementing the Sub-national Review of Economic 

Development and Regeneration (SNR), including the move towards a 

single regional strategy.



and delivery 

113 

Throughout these changes it is important that economic development 

strategy and delivery arrangements are based upon: 

• a concerted focus on improved economic performance 

• the political leadership and democratic mandate of local authority 

members 

• a strong partnership ethos, harnessing the different ideas, skills and 

resources of a wide range of public, private and third-sector players 

• the opportunities and challenges of globalisation and supporting the 

region’s comparative advantages in international markets 

• greater opportunities for the business community to shape local and 

regional economic policy and action 

• a recognition of real economic geographies and the need to address 

the significant differences in economic, social and environmental 

circumstances across the region 

• robust evidence, with a clear understanding of market opportunities, 

failures and the potential impacts of different investment choices 

• effectiveness and efficiency in using public sector expenditure and 

leveraging private sector finance 

• the premise that predictability and certainty are vital for business 

competitiveness – to this end implementation of the RES must be 

based on a clear framework that avoids proliferation of initiatives – for 

instance, through an agreed Business Support Simplification 

Programme framework in the East of England and avoiding significant 

variations in local business rates or tariffs 

• greater local and regional freedoms and flexibilities, to address the 

specific economic drivers and issues in the East of England – with 

delegation of resources to the most appropriate level for delivery. 

East of England Implementation Plan 

The draft RES sought partners’ views on an initial delivery framework and 

proposed actions. Subsequently, the Regional Partnership Group, the East 

of England Regional Assembly (EERA), EEDA Board and Strategy 

Committee have approved a proposal to take forward a joint implementation 

plan for the regional economic and spatial strategies. The RSS and RES 

have now been adopted and set the spatial and economic context for 

sustainable development over the next 15 to 20 years. Given that the 

spatial strategy and the economic strategy are interdependent, there are 

clear benefits in preparing a joint RES-RSS implementation plan. 

The East of England Implementation Plan will be developed with partners 

and stakeholders. It will define a prioritised, phased and resourced 

programme to deliver the two leading regional strategies and aligned 

local objectives. 

The plan will set out an important framework for how the region can best 

use investment and strategic programmes to support the changes facing 

localities and communities in the region, and to ensure they continue to 

thrive, are vibrant and sustainable. Existing prioritisation processes will 

provide inputs to the plan, as will the strategies and evidence of local 

authorities and sub-regional partners. Preparation of the plan will require 

engagement with the private sector and local communities to reflect local 

and stakeholder needs.



and delivery 

114 

The implementation plan will set a longer term context for investment 

across areas such as housing, transport and wider infrastructure and 

economic development. Early work will inform the East of England 

Regional Funding Advice (RFA) submission in spring 2009. This process of 

developing the implementation plan will strengthen regional partnership 

working and provide important learning in moving towards an integrated 

single regional strategy after 2010. 

The implementation plan will draw on: 

• work led by EERA to develop a regional investment strategy to deliver 

the growth aspirations of the emerging East of England Plan and 

related priorities from other regional strategies 

• consultation feedback on the draft RES delivery framework, including 

the roles and responsibilities of partners in delivering actions 

• new functions and responsibilities set out in the Sub-national Review 

of Economic Development and Regeneration and Local Government 

White Paper 

• the work of local strategic partnerships in developing Local Area 

Agreements and sustainable community strategies 

• Integrated Development Programmes and equivalent growth and 

infrastructure plans in the engines of growth and key centres for 

development and change 

• current transport prioritisation work and Regional Funding Advice 

scheme testing. 

EEDA, EERA and the Government Office for the East of England (Go-East) 

have worked together on early scoping work for taking forward an East of 

England Implementation Plan. The implementation plan will have a 

strong spatial focus and demonstrate how investment priorities are linked 

to wider regional outcomes. The implementation plan will also outline 

expenditure against identified funding sources, specific project outputs 

and proposed time frames. A third function of the implementation plan 

will be to identify critical investment shortfall where more difficult choices 

may have to be made. In doing so, sub-regional involvement and 

ownership will be key to developing the plan successfully. 

The implementation plan will be subject to a sustainability appraisal 

(SA)/strategic environmental assessment (SEA). The SA and SEA will be an 

iterative process informing the draft and final joint implementation plan. 

A successful implementation plan will provide: 

• a clear programme to deliver the shared objectives and targets of the 

RES and RSS 

• a compelling business case to investors (across public and private sectors) 

• regional consensus on investment priorities with clear partner 

responsibility and timetables for delivery 

• be a ‘live’ document that is updated regularly 

• a clear framework for monitoring performance and managing risk 

• the basis for an East of England RFA submission in spring 2009.

Our universities’ interaction with business 

is one of the best-kept secrets of the 

region. They’re very diverse, so they have 

very distinct and different relationships 

with business. They play a key role in 

business growth, whether it’s through 

knowledge transfer, higher-level skills or 

pure and applied research. 

Sal Brinton, 

Association of Universities 

in the East of England 

Sal Brinton, director of the Association of 

Universities in the East of England, at the 

University of Cranfield, Bedfordshire

People’s health and well-being are greatly 

improved by access to green spaces – not 

trees in concrete squares, but places to 

breathe good air and look at wildlife, and 

where children can play and explore. The 

East of England is the most important 

region for biodiversity in England. We need 

to protect this, and design more green 

spaces into any development from the start. 

Richard Powell, 

Royal Society for the 

Protection of Birds 

Richard Powell OBE, regional 

director of the Royal Society 

for the Protection of Birds, 

at Strumpshaw Fen, Norfolk



and delivery 

117 

In order to achieve these results, the process of developing the investment 

plan must: 

• engage a wide range of stakeholders and generate shared ownership 

of targets and investment priorities 

• build on a robust, shared evidence base and modelling work that 

supports the priority actions proposed, and the strong work on 

investment planning at sub-regional level 

• have clear and consistent criteria for adopting priorities into the 

regional implementation plan 

• be representative of the full range of regional stakeholders and interests 

• be dynamic and identify a critical path for the delivery of RES and RSS 

objectives over the medium and longer terms (ie to 2031) 

• clearly identify the appropriate spatial level of delivery, with coherent 

and robust packages for sub-regions that are consistent with Local Area 

Agreements and are based on robust investment planning mechanisms 

(eg well-founded Integrated Development Programmes). 

What is the timetable for producing the implementation plan? 

RSS adopted spring 08 

RES submitted to BERR spring 08 

RFA guidance summer 08 

East of England Implementation Plan development autumn 08 

RFA submission spring 09 

Draft plan for consultation spring 09 

East of England Implementation Plan finalised spring 09 

RES and RSS delivery, performance and risk management will benefit from: 

• a new Council of Economic Advisors, bringing leading expertise to 

strategy and implementation and a better understanding of the effects 

of the macro-economy on regional performance 

• a stronger economic intelligence network and joint commissioning of 

economic intelligence – involving the regional intelligence centre, local 

authorities, business representative organisations, the Eastern Region 

Public Health Observatory and universities – to better understand 

economic performance and its determinants and wider sustainable 

development issues 

• integrating RES and Local Area Agreement performance management 

and information systems and extending this in future to cover Multi 

Area Agreements 

• work to develop local, sub-regional and regional economic 

development capacity and capability through EERA and Improvement 

East, the regional improvement partnership 

• agreed protocols for managing strategic risks such as economic shocks 

and recession, globalisation and market uncertainties, changing 

national and international policy and regulation, tightening public and 

private sector investment, institutional reform, demographic change, 

climate change, pressures on land, energy and water supply 

• progress in developing a Regional Infrastructure Fund, leveraging major 

investment from the market.



and delivery 

118 

Regional governance arrangements 

The East of England Implementation Plan will be approved, owned and 

its performance overseen by: 

• EERA and, in future, East of England Councils, the post-SNR regional 

grouping of local authorities 

• the Regional Partnership Group 

• the EEDA Board in conjunction with the Strategy Committee and future 

regional stakeholder groupings. 

RES goal programme development and implementation will be overseen by: 

RES goal Principal regional governance mechanism 

Enterprise East of England Skills 

and Competitiveness Partnership 


Innovation Science and Industry Council 

Digital Economy Digital Partnership 

Resource Efficiency Resource Efficiency Partnership 

Economic Participation EERA Social Inclusion Panel 

Transport Regional Transport Forum 

Spatial Economy Sustainable Communities Delivery Group 

This framework will need to evolve in light of the implementation of the 

Sub-national Review of Economic Development and Regeneration and 

Local Government Reform.

Peterborough plays a significant role in 

delivering the East of England’s regional 

economic strategy. The city council is 

working with partners to drive the city’s 

ambitious growth programme and 

create 20,000 new jobs. Two-thirds need 

to be in high-technology companies, 

particularly in environmental goods 

and services, to build on our status as 

a leading Environment City. 

Councillor John Peach, 

Peterborough City Council 

Councillor John Peach, leader of Peterborough 

City Council, at the Millennium Green Wheel, 

part of the new sustainable transport system 

for the city of Peterborough



and delivery 

120 

Delivering the regional economic strategy at sub-regional level 

Local Area Agreements(LAAs) will make a major contribution to delivery 

of regional economic strategy (RES) targets, goals and priorities. In 

particular, they can address many determinants of economic participation 

and performance – including employment and entrepreneurship rates, 

skills and health. LAAs can be particularly effective in contributing to RES 

delivery by: 

• setting ambitious targets, aligned with those of the regional economic 

and spatial strategies (and in future the single regional strategy) 

• having a clear model for delivering economic change 

• shaping services and aligning investment resources of local, regional 

and national partners to deliver shared objectives 

• having a strong understanding of economic geography, the particular 

needs of deprived communities, urban and rural communities, local 

business needs and labour markets – expressed in future through local 

economic assessments 

• developing effective multi-agency approaches to delivery of local 

outcomes 

• greater involvement of the private and third sectors in local prioritisation, 

delivery and governance 

• ongoing commitment to capacity development, improving sub-regional 

intelligence, learning and evaluation. 

The RES identifies the engines of growth as critically important to the 

long-term competitiveness of the region and a focus for major housing 

and population growth. In these localities, local authorities and partners 

may decide to take forward Multi Area Agreements (MAAs). 

These would be based upon: 

• a bold and visionary strategy for the economic development of the 

area led by the local authorities, identifying and supporting a limited 

number of sectors and clusters of international and national 

significance, alongside outlining improvements in the general 

environment for businesses that serve local and regional markets 

• effective partnerships that span administrative boundaries (both local 

and regional), tiers of government and the public and private sectors, 

urban centres and rural hinterlands, to deliver local and regional 

strategy ambitions 

• Integrated Development Programmes (IDPs) that identify the phasing 

and financing of major physical infrastructure and growth necessary 

to underpin major economic centres and labour markets 

• a clear planning framework that provides clarity and confidence to 

the market, including masterplans or area action plans. 

Significant progress has been made in preparing IDPs across a number of 

regional cities and their hinterlands. During 2008, it will be important to 

roll-out such an approach across other RSS key centres for development 

and change, and for the government and key partners to recognise their 

importance in planning investment. To respond to the particular economic 

and environmental challenges of our coastal areas, partners are 

committed to establishing a regional coastal forum and action plan.



and delivery 

121 

Given the new prioritisation mechanisms such as LAAs and MAAs, alongside 

the growing role of local authorities and local strategic partnerships in 

economic development, sub-regions will want to review existing partnership 

structures to ensure they remain fit for purpose and efficient. 

Local and regional partners will want to ensure that appropriate, effective 

and well-resourced delivery arrangements are in place at the sub-regional 

and local level. This may build on successful sub-regional economic 

partnerships and local delivery vehicles or seize the opportunities and 

potential efficiency savings provided by new models such as economic 

development companies or greater commercial involvement in the 

delivery of economic development. Importantly, arrangements will vary 

across the region and the focus must be on improving economic outcomes 

and greater involvement of the private sector as the primary source of 

growth in jobs and prosperity. 

Leadership and delivery in the international arena 

Looking forward, the world economy is likely to undergo radical 

transformation within the timescale of the regional economic strategy, 

with growth being driven by the improved performance of emerging 

economies, such as China, India, Russia and Brazil. The East of England 

and Greater South East can benefit from the growth of such economies, 

as mass markets for goods and services, as partners in science in 

innovation and as sources of highly skilled labour. However, it also means 

that the region has to strive to increase our international activity and 

deepen our relationships abroad. 

The regional economy strategy therefore looks to achieve the following 

key results: 

• increased GVA resulting from international trade 

• increased numbers of businesses exporting and collaborating 

internationally and greater share of growing global markets 

• increased foreign direct investment, built upon the East of England as 

a global partner of choice for high value R&D and commercialisation.



and delivery 

122 

Increasing the regional presence in global value chains and markets 

Competitive advantage increasingly depends on the ability of firms and 

institutions to exploit networks and alliances across regions and nations. 

This includes the ability to capture and absorb external knowledge, 

information and innovation; attract key labour, mobile capital and 

external finance and engage in inter-firm and inter-region strategic 

alliances, collaborations and ventures. 

There is a very strong correlation between the proportion and nature of 

companies trading in national and international markets and the overall 

performance of the regional economy. At the level of the firm, action is 

needed to: 

• increase the number of business leaders who recognise the benefits of 

trading internationally 

• equip firms with the knowledge and tools to operate in international 

markets and value chains 

• support businesses and universities in the developing international 

alliances for R&D and open innovation 

• attract foreign direct investment, which brings new employment and 

also contributes a new stock of innovative processes, skills and 

management practices that can help stimulate local economies and 

supply chains 

• provide intensive aftercare for incoming companies and embedding 

them in local and regional communities and economies 

• tailor skills programmes to meet the needs of firms trading in 

international markets 

• provide a supportive environment for companies seeking to expand 

in the East of England, in particular, reducing risk through an effective 

planning system. 

Regional stakeholders, local authorities and the business community 

will need to ensure effective arrangements are in place for coordinated 

international activity. The region needs a coherent programme of 

activity to: 

• increase influence on European policy and realise greater access to 

European funding streams 

• further strengthen the international trade and investment offer, led 

at regional level by East of England International, in close conjunction 

with UK Trade & Investment – and integrated with sub-regional 

international promotion activities 

• develop targeted trade and cultural partnerships with leading regions 

and emerging markets 

• utilise the critical mass provided through promoting the Greater South 

East and our position within the London city region 

• deliver a global festival of innovation and use new technologies to 

promote the region, including virtual presence for the region 

• actively promote regional assets and investment opportunities through 

our expanding international gateways 

• leverage the 2012 Games for international business and tourism 

opportunities.

We aim to make the East of England the 

best environment for social enterprises to 

grow and flourish, and to maximise their 

social and economic impact on the region. 

An important part of our job is helping 

policy-makers understand the needs of 

social enterprises, so that this can happen. 

Michele Rigby, 

Social Enterprise East of England 

Michele Rigby, chief executive of Social 

Enterprise East of England, at furniture and 

electrical reuse charity Furniture Link, Bedford

Improving health in the workplace 

is a priority, and to do this we need to 

work with many partners, including 

employers. A recent national report by 

Dame Carol Black argued that greater 

emphasis on occupational health 

would have significant economic 

benefits. We’re embracing this work, 

particularly in relation to SMEs. 

Neil McKay, 

NHS East of England 

Neil McKay, chief executive, NHS East of 

England, at their headquarters, Cambridge



and delivery 

125 

In exercising their economic and place-shaping leadership, local authorities 

will make a major contribution through: 

• local economic strategies and Local Area Agreements to help create 

the conditions for regional businesses and places to compete in 

global markets 

• ensuring there is concerted support for key clusters and businesses 

who operate internationally 

• major efforts made to create a skills base fit for the global economy 

• the local planning framework and system makes provision for growth 

of high-value economic activity 

• appropriate resources and actions targeted to measures that attract 

mobile talent investment and build community cohesion – including 

cultural provision, education and civic spaces. 

Investment 

Delivery of the strategy is dependent on aligning a wide range of funding 

sources, both public and private to best effect. Ultimately, the primary 

source of investment will be private capital. Investment in the East of 

England needs to be: 

• increased, given that the East of England has the lowest levels of 

identifiable public expenditure of the English regions 

• aligned and focused to leverage private sector investment and reflect 

real economic geographies 

• guided by a medium and long-term perspective necessary to create the 

conditions for an adaptive and competitive economy 

• flexible, with greater local and regional ability to tailor national funding 

streams through Local Area Agreements, Multi Area Agreements and 

the Regional Funding Advice process, to meet specific needs at the local 

level and address key drivers of regional economic performance in the 


• sourced creatively, maximising opportunities through private capital, 

EU non-territorial programmes, lottery funding, foundations and 

other sources 

• accessible and appropriate to the needs of businesses, communities 

and the voluntary sector. 

To this end, the regional economic strategy proposes a number of 

innovative funding solutions, including a major Regional Infrastructure 

Fund and a greater share in the proceeds of growth for local and regional 

stakeholders.


Monitoring 

126 

4.2 Monitoring 

The strategy is underpinned by a robust 

framework that integrates performance 

monitoring and management. 

Performance monitoring 

The monitoring framework comprises four tiers of indicators to assess 

progress towards the regional economic strategy (RES) vision: 

Figure 15 

Monitoring framework 

Delivering the strategy 

Vision 

Goals 

Priorities 

Actions 

Monitoring progress 

Headline ambitions 

What success will look like 

Core indicators 

Delivery milestones 

Headline ambitions: these are long-term targets that set the overall scale 

of ambition for the RES and quantify the strategy’s vision (see Where do 

we want to be? Headline regional ambitions section on page 31 and the 

table opposite). 

There are six headline ambitions based around: 

• economic output • employment 

• skills • inequality 

• greenhouse gas emissions • resource efficiency. 

What success will look like: these are visions for what success will look 

like for the successful delivery of each goal. They can be quantitative or 

qualitative (see table opposite). 

Core indicators: these form a set of quantitative monitoring indicators 

linked to the priorities of each RES goal. 

Delivery milestones: this tier comprises the milestones and key 

performance measures of activities that are directly related to the inputs 

of partners delivering the strategy. They will be attached to actions set 

out in the East of England Implementation Plan.


Monitoring 


Headline ambition 

Annual growth in real workplacebased 

GVA per capita of 2.3 per cent 

and GVA per worker of 2.1 per cent 

between 2008 and 2031 

Employment rate for the working 

population of 80 per cent and for the 

16-74 population of 70 per cent by 

2031 

Over 40 per cent of adults qualified to 

at least level 4, 68 per cent of adults 

qualified to at least level 3 and over 

90 per cent of adults qualified to at 

least level 2 by 2020 and maintained 

to 2031 

A rise in lower-quartile earnings to 60 

per cent of average earnings by 2031 

End-user CO 2 emissions in 2031 that 

are 60 per cent below 1990 levels 

Per capita consumption of water by 

households in 2030 that is 20 per cent 

below 2008 levels, or 120 

litres/head/day (l/h/d) 

127 

Local and sub-regional contributions to RES outcomes 

Key elements of the RES will be delivered at the sub-regional and local levels 

through Local Area Agreements (LAAs) and, in future, Multi Area Agreements. 

The tables that follow provide the spatial dimension of the RES 

monitoring and performance framework. In doing so, they link regional 

outcomes to regional core indicators, which will also be monitored at the 

sub-regional level where data allow. These are linked to local outcomes by 

mapping onto the national set of indicators for LAAs. This framework is 

intended to support the selection of national indicators and the 

development of local indicators and targets to measure progress against 

LAA economic priorities. 

Regional/sub-regional core indicators 

GVA per capita and GVA per worker 

Employment rates: 

• 16-74 year olds 

• working-age population. 

Percentage of adults qualified to at least 

level 4, at least level 3 and at least level 2 

Residence-based average earnings and lower 

quartile earnings 

End-user CO 2 emissions 

(disaggregated by sector) 

Per capita consumption of water within: 

• metered and unmetered households 

• existing and new build housing. 

National indicators for 

local area outcomes 

NI 166 Average earnings of 

employees in the area 

NI 151 Overall employment rate 

NI 163 Working-age population 

qualified to at least level 2 





NI 185 CO 2 reduction from local 

authority operations 

NI 186 Per capita CO 2 emissions 

in the LA area 

NI 194 Level of air quality – 

reduction in NO X and primary 

PM10 emissions through local 

authority’s estate and operations

Business Link East is committed 

to helping the region’s economy 

grow. As the recognised place to go 

for business support, we help more 

than 100,000 people to start, run 

and grow their businesses each year. 

Pat Smith, 

Business Link East 

Pat Smith, chief executive of 

Business Link East, at chilli farm 

Edible Ornamentals, Chawston, 

Bedfordshire

Indicators linked to RES goals 

Enterprise 


Start-up rates increased to 60 per 

10,000 resident adults by 2031 

(around 12,000 more new businesses 

created each year than in 2004) 

Total entrepreneurship activity rates 

to 2031 that are: 

• higher than in 2008 

• above the UK average 

• female entrepreneurship rates 

closer to male rates than in 2008. 

An increase in the share of SMEs using 

external advice 

An increase in the proportion 

of the region’s SMEs that operate 

internationally 

Innovation 

An increased share of businesses that 

are innovation active 

An increased share of businesses that 

translate new ideas and research into 

new products, services and processes 

An internationally renowned science 

base and hi-tech clusters, reflected in 

European-leading levels of private 

sector R&D and venture capital 

investment 

Becoming the UK exemplar region for 

open innovation and absorption of 

existing technologies 


Widespread access to the latest digital 

infrastructure for businesses and 

households 

129 


VAT-registered start-ups per 10,000 resident 

adults xxxii 

Net change in number of VAT registered 

businesses (mid-year estimates) 

Total/female entrepreneurship activity 

People considering going into business 

(expecting to start a business in the next 

three years) 

Business Link penetration rates 

Share of businesses receiving external advice 

Exports (levels, year-on-year growth rates, 

per employee job) 

Value of foreign direct investment to the 

regional economy 

Percentage of businesses with co-operation 

agreements, of which the percentage of 

businesses that have co-operation agreements 

within Europe and the rest of the world 

Percentage of businesses that are ‘innovation 

active’ 

Patent applications to the UK Intellectual 

Property Office per million inhabitants 

Design applications filed and registered with 

the UK Intellectual Property Office per million 

inhabitants 

Business Enterprise Research and Development 

(BERD) 

BERD as a percentage of workplace-based GVA 

Amount of venture capital investment in the East 

of England and as a percentage of the UK total 

Percentage of businesses investing in machinery, 

equipment and software, linked to innovation 

activities 

Percentage of businesses investing in external 

knowledge, linked to innovation activities 

Availability of next-generation broadband 

services to premises in the region 

Proportion of premises connected to a 

LLU-enabled exchange 

Households able to receive cable modem 

broadband 

Average download speed achieved by 

broadband users in the region 



NI 171 New business registration 

rate 

xxxii RES monitoring will make use of new ONS statistics for business registrations from autumn 

2008. These statistics will also include businesses that are registered for PAYE but below the 

VAT registration threshold.




A more efficient and innovative 

economy through maximum 

exploitation of ICT by businesses and 

households 

Businesses and individuals able to use 

ICT proficiently, with a reduction in IT 

skills gaps among the region’s 

workforce 

Transformation in working methods, 

with an increased share of enterprises 

adopting smarter/flexible working 

practices 

Reduction in overall travel resulting 

from use of ICT 

A digital infrastructure that ranks 

highly among leading international 

regions 


End-user CO 2 emissions in 2031 

that are 60 per cent below 1990 

levels and reduced emissions of 

other greenhouse gases 

Waste arisings per £ million GVA 

in 2031 that are 37 per cent 

(143 tonnes) below 2005 levels 

Increased recycling rates for 

household and municipal waste 

Per capita consumption of water by 

households in 2030 that is 20 per cent 

below 2008 levels, or 120 l/h/d 

An increased share for the region’s 

businesses of the markets for 


130 


Proportion of businesses implementing ICTenabled 

improvements to their processes or 

procedures 

Proportion of businesses viewing ICT as 

important in accessing new markets, improving 

innovation, increasing turnover, increasing 

profitability and improving competitiveness 

Percentage of staff with skills gaps that lack IT 

user skills and IT professional skills 

Percentage of businesses stating that ICT skills 

of staff meet current needs 

Percentage of businesses with flexible working 

options available to employees 

Percentage of businesses stating that ICT has 

enabled flexible working options 

Percentage of businesses stating that use of 

ICT has resulted in: 

• a reduction in business travel 

• changes in commuting times for employees 

(avoiding peak-time travel) 

• greater use of online conferencing for 

business meetings. 

Indicators above compared to leading 

comparator regions 

End-user CO 2 emissions 

(disaggregated by sector) 

Waste arisings by sector: 

• commercial and industrial 

• household 

• other municipal 

• construction and demolition 

• agriculture 

• other. 

Percentage of municipal and household waste 

• per head 

• recycled and composted. 

Per capita consumption of water within: 

• metered and unmetered households 

• existing and new build housing. 

Indicator to be agreed 



NI 185 CO2 reduction from local 

authority operations 

NI 186 Per capita CO2 emissions 

in the LA area 

NI 194 Level of air quality – 

reduction in NOX and primary 

PM10 Emissions through local 

authority’s estate and operations 

NI 191 Residual household waste 

per head 

NI 192 Household waste recycled 

and composted 

NI 193 Municipal waste landfilled

From soca to steel pan, mas to new media, 

carnival arts offer an innovative approach to 

skills development and enterprise. Luton’s 

UK Centre for Carnival Arts will help to 

transform the town and the region by 

creating an entrepreneurial resource 

to nurture untapped creative talent. 

Paul Anderson, 

UK Centre for Carnival Arts 

Paul Anderson, executive director 

of the UK Centre for Carnival Arts 

in Luton, at the 2008 Carnival

Our location is an amazing natural 

asset and the East of England’s ports 

are the UK’s trade gateway to the 

world. Felixstowe South and Bathside 

Bay will double our deepwater port 

capacity and bring many new jobs, 

but we need sustained investment 

in infrastructure and skills. 

Chris Lewis, 

Hutchison Ports 

Chris Lewis, chief executive of 

Hutchison Ports, on the docks at 

Felixstowe, Suffolk




Growth in the region’s sustainable 

energy sector, with 20 per cent of 

electricity demand being generated 

from renewable sources by 2020 and 

the region’s lead position being 

maintained through to 2031 

Increased use of ecosystems services 

techniques in deriving comparative 

advantage in resource efficiency and 

climate change adaptation 


An increased percentage of graduates 

who view the region as a place to 

exploit their higher-level skills, with 

graduate retention rates above the 

UK average 

An increased share of people gaining 

higher-level skills, through increased 

participation in academic and 

vocational education and training at 

level 4 and above 

A culture of learning embedded from 

an early age, with an increased 

number of young people 

participating in post-compulsory 

education and training 

Increase in qualification attainment, 

with: 

• over 40 per cent of adults qualified 

to at least level 4 

• 68 per cent of adults qualified to at 

least level 3 

• over 90 per cent of adults qualified 

to at least level 2 consistent with 

Leitch targets 

Development and use of 

economically valuable skills, leading 

to a reduction in skills gaps and 

shortages 

Improved productivity resulting from 

an increase in work-related learning 

133 


Renewable energy generation 

Renewable energy generation capacity 

Total final energy consumption by type of fuel 


Percentage of graduates staying in the 

region for employment after graduation 

Enrolment rates at higher education 

institutions 

19 year-olds with NVQ3 or equivalent 

qualifications 

Percentage of adults qualified to at least 

level 4, at least level 3 and at least level 2 

Percentage of employers with skills shortage 

related vacancies 

Percentage of staff reported as having 

skills gaps 

Percentage of adults participating in 

job-related training 

Percentage of employers funding/arranging 

training for staff 



NI 80 Achievement of a level 3 

qualification by the age of 19 

NI 81 Inequality gap in the 

achievement of a level 3 

qualification by the age of 19 







NI 174 Skills gaps in the current 

workforce reported by employers




Economic activity rates for 

disadvantaged communities that are 

higher than in 2008 and closer to the 

regional average 

A regional employment rate of 70 per 

cent for residents aged 16–74 and 

80 per cent for working-age residents 

by 2031 

A reduction in income inequality for 

those in work, with a rise in lower 

quartile earnings to 60 per cent of 

average earnings by 2031 

95 per cent of adults with functional 

literacy and numeracy (basic skills) by 

2020 and maintained to 2031 

Fewer inequalities in skills attainment 

and health between disadvantaged 

communities and the regional 

average 

Business start-up rates in 

disadvantaged communities that are 

higher than in 2008 and closer to the 

regional average 

Transport 

A reduction in the cost of congestion 

in the region (baseline to be 

established by the TEES Study) 

A free-flowing transport system with 

improved journey times and 

increasing journey time reliability 

Flourishing transport gateways that 

are exemplars of sustainable 

economic development, served by 

reliable and effective multi-modal 

surface access 

134 


Key benefit claimants (Jobseeker’s Allowance, 

Incapacity Benefit, Severe Disablement 

Allowance, Disability Living Allowance and 

Income Support) 

Percentage of 16 and 17 year-olds not in 

employment, education or training (NEET) 

Economic inactivity rates (breakdown by 

gender, ethnic group, reason for inactivity) 

Employment rates: 

• 16-74 year olds 

• working-age population. 

(breakdown by gender) 

Residence-based average earnings and 

lower-quartile earnings 

Learners achieving level 1 literacy and entry 

level 3 numeracy qualifications 

Percentage of adults qualified to at least level 2 

within the most deprived local authority areas 

Inequalities in life expectancy between the 

most deprived and least deprived fifth of areas 

Business start-up rates within the most 

deprived local authority areas 

Social entrepreneurial rate 

Journey time delay/average speed on strategic 

network 

Increased reliability on the major highways 

network 

Increased reliability on the rail network – 

percentage of trains delayed in the region 

Number and percentage of journeys by mode 

of travel, including percentage of journeys 

under two miles shifting from car to other modes 

Modal shift of surface access to airports from 

unsustainable to sustainable modes 

Increase in sustainable freight movements 

(freight carried by rail) 

Public transport 

(bus and light rail journeys per annum) 



NI 117 16 to 18 year-olds who are 

not in education, employment or 

training 

NI 152 Working-age people on 

out-of-work benefits 

NI 153 Working-age people 

claiming out of work benefits in 

the worst performing 

neighbourhoods 

NI 173 People falling out of work 

and on to incapacity benefits 

NI 151 Overall employment rate 

NI 161 Learners achieving a level 

1 qualification in literacy 

162 Learners achieving an entry 

level 3 qualification in numeracy 

NI 163 working-age population 


NI 171 VAT registration rate 

NI 167 Congestion – average 

journey time per mile during the 

morning peak 

NI 178 Bus services running on 

time 

NI 175 Access to services and 

facilities by public transport, 

walking and cycling 

NI 176 working-age people with 

access to employment by public 

transport (and other specified 

modes) 

NI 177 Local bus passenger 

journeys originating in the 

authority area


Transport 


Parity in transport investment with 

leading international competitor 

regions 

Greater direct and wider economic 

benefits realised from an increase in 

public and private investment in 

transport priorities 

A leading region for embedding 

technology in the transport system to 

increase efficiency and reduce 

environmental impact 

Stabilising and then progressively 

reducing the carbon emissions 

resulting from transport by increasing 

the use of public transport 


A better balance between housing 

and employment opportunities 

contributing to effective and 

affordable places 

Increased business investment in the 

identified engines of growth 

Enhanced profile for the region 

through its places, natural heritage 

and cultural assets 

Reinforced roles for our market towns 

as sub-regional centres 

Sustain the vitality of rural areas 

Renaissance of our coastal towns 

135 


Public and private investment in transport 

Average cost benefit ratio of transport 

investment approved over the RES period 

Average time taken to travel to work 

Increase in number of routes covered by 

ITS/UTMC, etc 

Transport carbon emissions 

Housing affordability (ratio of lower-quartile 

house prices to lower-quartile household 

earnings) 

Net affordable housing completions 

Net housing completions and projected 

completions compared to regional housing 

targets 

Change in housing stock 

Jobs to housing growth ratio 

Net change in jobs, workplace population and 

employed residents 


Biodiversity/heritage/landscape indicators to 

be agreed xxxiii 

Visitor numbers to regional attractions 

Rate of change in regional tourism spend 

RES indicators will be provided at local level 

where possible to monitor progress against 

this priority 

Amount of completed retail, office and leisure 

development in town centres 

Use of public libraries, galleries and museums 



this priority 



this priority 



NI 154 Net additional homes 

provided 

NI 155 Number of affordable 

homes delivered (gross) 

NI 159 Supply of ready to develop 

housing sites 

NI 5 Overall/general satisfaction 

with local area 

NI 188 Adapting to climate 

change 

NI 197 Improved local biodiversity 

– active management of local sites 

NI 9 Use of public libraries 

NI 10 Visits to museums and 

galleries 

xxxiii Work to establish indicators and baselines for biodiversity, flood risk, the historic 

environment and the landscape will draw on the recommendations of the ISA economic 

scenarios report.

Thurrock is a growth area of national 

significance attracting major private 

and public investment. This has been 

stimulated by our clear regeneration 

agenda, DP World’s London Gateway 

development and the creation of the 

Royal Opera House Production Park 

in Purfleet. 

Will McKee, Thurrock Thames 

Gateway Development Corporation 

Will McKee, chair, Thurrock Thames 

Gateway Development Corporation, 

in Purfleet, Essex


Monitoring 

2. Appraisal of programmes and projects 

Theory of change 

How and why will 

the interventions 

address market 

failures and other 

problems associated 

with each priority? 

What factors must 

exist for success? 

137 

Contextual indicators 

As well as these core indicators, a set of contextual indicators will be 

monitored to provide a full picture of broad trends in the economy, labour 

market, society and environment and to evaluate progress towards the 

underlying principles. 

Performance reporting 

The progress of implementation of the regional economic strategy (RES) 

will be reported at regular intervals: 

• targets will be measured annually and core indicators will be measured 

twice a year and published on the East of England Observatory website 

• progress against RES outcomes and latest regional development 

evidence and insight will be presented through an annual ‘State of the 

Region’ report 

• an East of England Implementation Plan progress report on actions 

and milestones will be published annually, based on quarterly reporting 

• economic and environment-economy modelling updates will be 

managed by the regional intelligence centre and published online. 

Evaluation 

The RES has been informed by extensive evidence work, drawing on 

regional, local and national research, policy and assessments. However, 

we need to refresh constantly the evidence base for the RES and evaluate 

programmes and actions agreed through the East of England 

Implementation Plan. Evaluation is important to: 

• understand and demonstrate the impact of programmes and projects 

• improve decision-making, effectiveness and value for money 

• celebrate success. 

The East of England Implementation Plan and supporting sub-regional 

delivery plans are intended to be ‘living’ documents, kept fresh through 

a cycle of monitoring, reporting, evaluation and business planning. 

The diagram at Figure 16 outlines a ‘logic chain’ for ensuring activities 

are optimally positioned to deliver the RES vision. xxxiv 

Figure 16 

Logic chain 

1. Analysis of contextual conditions 5. Impact assessment and learning 

Contextual conditions and challenges to achieving headline 

regional ambitions and goal priorities 

Analysis of the problems to be addressed by policy interventions 

Implementation planning: 

delivery milestones and key performance measures 

Inputs 

Resources 

directed and 

influenced through 

the RES - people, 

time, materials, 

funds - dedicated 

to the delivery of 


Activities 

and processes 

The support and 

services provided 

by stakeholders 

jointly or severally 

to deliver the 

interventions 

3.Targeting and monitoring 

xxxiv SQW Consulting (May 2008). 

Gross outputs 

Direct effects from 


that can be targeted 

and monitored. 

Net outputs 

Adjusted from gross 

outputs for deadweight 

displacement and 

multipliers 

Impacts 

Changes to the East 

of England’s position 

in relation to 

headline regional 

ambitions 

Outcomes 

Change in the 

behaviour, capacity and 

performance of the 

people, communities, 

businesses and 

organisations over 

the medium term as 

measured by RES 

core indicators 

4. Evaluation

Climate change and sustainability 

are burning issues that demand new 

solutions. At the BRE Innovation Park, 

seven full-scale demonstration 

buildings have been constructed with 

sustainable techniques, putting the 

region and the UK at the global 

forefront of low-carbon buildings 

knowledge. 

Peter Bonfield, 

Building Research Establishment 

Peter Bonfield, chief executive of 

the Building Research Establishment, 

at the BRE innovation park, Watford, 

Hertfordshire

Appendices 

5.1 Underlying principles 140 

5.2 Key terms 145 

5.3 Acronyms 151 

5.4 List of stakeholders involved in the process 153 

5

Appendices 

Underlying principles 

Sustainable development 

Living within environmental limits 

Ensuring a strong, healthy and 

just society 

140 

5.1 Underlying principles 

Issues/actions 

Sustainable development Issues/actions 



just society 

Enterprise – Underlying principles 

Business support services offer mainstream advice and direct businesses to 

appropriate environmental management support, enabling them to respond 

effectively to regulation and market expectations, to help reduce running costs and 

energy use, and to work towards reducing their carbon and ecological footprints. 

The priorities of this goal, as well as the Resource Efficiency goal, support 

environmental technology and science sector start-ups and growth. 

The Enterprise goal addresses shortfalls in access to, or lack of awareness of, 

business support services for marginalised groups. This goal also promotes the 

wider participation of all groups in enterprise and acknowledges the benefits that 

different cultures, ideas and experiences have for job creation and productivity 

growth. This goal, and the Economic Participation goal, recognise the responsibility 

of the region’s businesses to tackle discrimination in the workplace on such grounds 

as gender, age, disability, ethnicity, faith or sexual orientation. 

Innovation – Underlying principles 

Innovation in new technologies, products and processes can contribute to 

minimising the impact of economic growth on both the natural and historic 

environments. Innovation can improve our ability to detect and measure change in 

the environment, devise solutions to environmental problems and increase the 

efficiency with which we use scarce resources such as water. The goal of achieving 

sustainable development is an opportunity for businesses innovating in the diverse 

field of environmentally friendly technologies. This could include renewable energy, 

transport and transport management systems. 

Innovation, and particularly the emerging field of social innovation, is about 

developing new ideas to tackle social problems or meet social needs. This can include 

a new product, service, initiative, organisational model or approach to the delivery 

of public services. A number of the greatest challenges facing the region such as 

demographic change and the aging population, addressing the income and 

employment of disadvantaged groups, tackling poor health and developing 

sustainable communities are resistant to conventional approaches. The priorities 

of the regional economic strategy (RES) will contribute to developing innovative 

practice, creativity and skills, networking within and between sectors to solve 

problems, financing innovation for social purposes and developing world-leading 

expertise in areas such as healthcare. Building third-sector capacity will also allow 

innovations from the voluntary and community groups and social enterprises to be 

harnessed to improve and complement mainstream public service.

Appendices 





just society 




just society 

141 

Digital Economy – Underlying principles 

ICT and digital technologies will increasingly be key elements in creating a resourceefficient 

and low-carbon economy. This can include reducing the need to travel, 

enabling better use of the transport system and relieving congestion, making more 

efficient use of physical spaces, and managing supply and value chains more 

effectively, understanding and managing changes in climate and habitats. 

Teleworking can help overcome local labour shortages and enable disadvantaged 

groups, in particular disabled people, or those who, for other reasons, including 

caring responsibilities, would benefit from home working. 

The region must ensure, as far as possible, that no communities within the region are 

‘digitally excluded’. This may include disadvantaged people, such as those on low 

incomes, the unemployed, those in rural areas with limited access to amenities and 

migrant workers who may have more difficulty accessing new technologies. 

Improved ICT skills can help the unemployed get back into work, and ICT skills are 

also important for older workers who, increasingly, will need to remain in 

employment for longer. 

The region must ensure that all sectors can benefit from ICT developments. The use 

of ICT in the voluntary and community sector is low compared to other sectors, but it 

is a key enabler. Specifically, ICT can underpin the long-term sustainability of 

organisations in the sector through the efficient use of resources, improved 

management of, and access to, information and in supporting communication. 

Resource Efficiency – Underlying principles 

Creating a resource-efficient economy and growing the region’s environmental 

goods and services sector will move the East of England economy towards a more 

resource-efficient model and help achieve headline climate change mitigation and 

resource-use targets. 

The priorities of this goal contribute to moving the region towards living within its 

own environmental limits; to reduce resource-use and promote the efficiency of their 

use. The RES includes ambitious targets to reduce carbon emissions and water usage, 

to promote recycling and cut down on waste. The strategy recognises that the biggest 

challenge to address is that of climate change and the economic cost of not taking 

action will be greater than that of immediate and significant investment now. 

By supporting the diversification and renewal of industries such as energy, which are 

undergoing major transformation, it is likely to reduce the costs of economic 

downturn in some industries. The scale of growth in the sector will also increase 

demand for labour, often in places with weak labour markets. There are also some 

benefits from encouraging and enabling behaviour change, from the taxing of 

carbon to the designing of communities that encourage walking and cycling, 

thereby delivering health benefits.

Appendices 





just society 




just society 

142 

Skills for Productivity – Underlying principles 

The Skills for Productivity goal recognises that skills provision needs to respond and 

adapt to the needs of the economy. Skills development enables the region’s 

businesses to respond to environmental regulations and gain a greater 

understanding of how their business practices impact on the environment. It is an 

enabler for promoting resource efficiency and reducing carbon emissions and energy 

use. As the region develops and supports the use of renewable energy sources, the 

region’s businesses will need to respond to demands for different skill sets as 

consumers demand enhanced efficiency measures in new developments and 

communities, as well as adaptations to current offices and homes to save energy 

and water. To support the Resource Efficiency and Places goals, construction and 

planning skills will need to adapt to environmental legislation. 

Raising skills levels is strongly linked to improved employability, career progression 

and health, which contribute to ensuring a strong, healthy and just society. Particular 

disadvantaged groups are more likely to have low skills and are therefore more likely 

to be at risk from poverty. Demographic change in the East of England has led to an 

increasing supply of older workers who are more likely to need to update their skills 

but are least likely to participate in training. Those with higher levels of skills are more 

likely to be employed and develop social networks, which have a positive impact on 

health. The Skills and Economic Participation goals recognise the under-utilisation of 

skilled migrant workers. Migrant workers may be discriminated against or their 

qualifications not recognised in this country, which impacts on their pay. 

The RES includes a headline target around reducing income inequalities. The 

structural change of the economy towards higher-skilled employment has been a 

major factor in the divergence of incomes in recent years and promoting a 

progression in skills levels will help to address this. 

Economic Participation – Underlying principles 

Providing employment opportunities in areas suffering from deprivation, together 

with actions identified in the Skills, Transport and Places goals should improve 

accessibility for local communities and reduce their need to travel, reducing 

carbon emissions. 

The Economic Participation goal focuses on enabling wider sections of the 

community to access education, training and employment, as well as tackling 

unemployment and ensuring that those who are socially excluded have the support 

they need to become economically active. The Economic Participation goal includes 

as a priority employers valuing a flexible, diverse and healthy workforce. This priority 

recognises that, in the context of a tight labour market, it is important to promote 

the full economic participation of all sections of the potential workforce and to use 

the talents of all. This includes responding to developments such as the aging 

population, increasing participation rates among females and an increasing number 

of people who balance care and work responsibilities. 

This goal also recognises that employers who invest in creating healthier jobs and 

working environments benefit from a more productive workforce.

Appendices 





just society 

143 

Transport – Underlying principles 

Some of the larger transport infrastructure developments planned for the region, 

such as airport expansion, are likely to have negative environmental impacts. 

Decisions on such infrastructure plans are taken by national government; the 

regional economic strategy aims to ensure that, under all possible scenarios, the 

economic benefits from the transport system are maximised while mitigating 

actions to minimise environmental damage are put into place. 

The Transport goal addresses long-term sustainability issues by aiming to increase 

the share of journeys across all modes that pay the full environmental costs that 

they impose. This includes working to develop criteria that identify the environmental 

costs of new transport schemes and looking at how these costs can be incorporated 

into pricing. 

The priorities within this goal aim to encourage behavioural change in our travelling 

patterns and modal shift. Priorities under other goals, such as encouraging 

home-working and supporting mixed-use development to minimise the need to 

travel are important mitigating actions to minimise growth in carbon emissions by 

encouraging people to rely less on the car. 

The regional economic strategy recognises the need to increase the proportion of 

trips made by public transport, particularly rail, as well as increasing the proportion 

of freight carried by rail. The implementation priorities under this goal support 

these objectives. 

Improving the effectiveness of the transport system contributes to reducing 

inequalities. There is a clear link between social exclusion, transport and the location 

of services, with many jobseekers citing the lack of transport as a barrier to work. 

Around half of 16-18 year-olds experience difficulties with transport costs in 

accessing learning, with some turning down educational opportunities because of 

transport problems. Transport is also important for accessing healthcare and 

supermarkets/food outlets. The negative effects of road traffic (accidents, pollution, 

noise) disproportionately affect socially excluded communities.

Appendices 





just society 

144 

Spatial Economy – Underlying principles 

Climate change is likely to have a profound impact on the region’s places. The Spatial 

Economy goal aims to address this through a range of actions that either mitigate 

against the effects or help us adapt to unavoidable climate change. For this goal, 

mitigating actions include the incorporation of energy generation into buildings 

and integrating energy efficiency measures into planning and business design. 

Adaptation measures include the incorporation of water efficiency measures in new 

employment and housing builds and attention to flood defences where appropriate. 

Addressing climate change through both adaptation and mitigation will help to 

ensure we develop communities that are within the environmental limits of this 

region and help to reduce the global footprint of the UK. 

The Spatial Economy goal recognises the region’s key environmental, historic and 

heritage assets in planning for growth. Key environmental assets and the services 

they provide include: 

• our rivers that provide both water resources and for disposal of our waste water 

• our wetland habitats that can act as flood protection areas and as a pollution 

control system 

• our coastal systems that act as flood protection areas 

• our land that accommodates housing and businesses, disposal of waste, 

extraction of minerals and crop and livestock production. 

The assets of our natural and historic environment provide social and economic 

benefits in their own right. To live within our environmental limits, the 

implementation priorities of this goal therefore include maintaining and enhancing 

these assets through sustainable economic growth. Many small, local environmental 

sites are cumulatively important and allow the countryside and green spaces to be 

valued for their contribution to the well-being of the region. 

The Spatial Economy goal also recognises the advantages of promoting mixed-use 

development in order to reduce the need for travel. While much of the development 

will be centred on urban centres, this goal calls for consideration to also be given to 

rural communities, which can also benefit from, and contribute to, the growth agenda. 

The Spatial Economy goal emphasises that a balanced approach to the provision of 

homes and jobs is needed to support economic growth and regeneration. Providing 

sufficient high-quality, affordable and accessible homes in the right locations will 

support the wider objectives of economic participation and reducing inequalities. 

This goal highlights the need for future rounds of spatial planning to consider how 

housing provision can be reviewed beyond 2021 to address demographic, 

affordability and economic demands, including the further potential of existing key 

centres for development and change and small or major eco-towns and new 

settlements.

Appendices 

Key terms 

145 

5.2 Key terms 

agglomeration 

the geographical concentration of economic activity. This can create 

competitive benefits from shared labour markets, specialist suppliers and 

the flow of new and innovative ideas 

basic skills 

defined by the Basic Skills Agency as ‘the ability to read, write and speak in 

English, and to use mathematics at a level necessary to function at work 

and in society in general’ 

biofuel 

biofuel defined broadly is solid, liquid, or gas fuel consisting of, or derived 

from, biomass. Biofuel is considered an important means of reducing 

greenhouse gas emissions and increasing energy security by providing a 

viable alternative to fossil fuels. 

biomass 

biomass is recently living organisms or their metabolic byproducts – such as 

cow dung. It is a renewable energy source based on the carbon cycle, unlike 

other natural resources such as petroleum, coal and nuclear fuels 

brownfield land 

land that has been previously developed 

climate change adaptation 

measures to adapt to the future impacts of changing weather associated 

with climate change, eg flood defences 

climate change mitigation 

measures to reduce the rate at which greenhouse gasses are emitted into 

the atmosphere, thereby reducing the effects of climate change 

demand management 

the management of the distribution of, and access to, goods and services 

on the basis of needs. In the Transport goal, demand management refers 

to the application of plans and policies to change or reduce the demand for 

car use by encouraging the behavioural change of household choices of 

travel. It is sometimes referred to as transportation demand management 

economically active 

those in employment or actively seeking employment and physically 

capable of taking up a job in the near future 

economically inactive 

those not in employment who are not actively seeking employment or are 

physically incapable of taking up a job in the near future

Appendices 

Key terms 

146 

ecosystems services 

the benefits people derive from ecosystems. Examples include protection 

from the sun’s ultraviolet rays, waste absorption and breakdown, water 

filtration, flood and disease control, nutrient cycling and maintenance 

and regeneration of habitat 

employment land review 

reviews undertaken by planning authorities to assess the demand for, 

and supply of, land for employment 


goods and services to manage and protect our natural resources. 

Examples include remediation and reclamation of land; renewable 

energy; waste management, recovery and recycling; and water supply 

and wastewater treatment 

foreign direct investment 

direct investments in productive assets by a company incorporated in a 

foreign country, as opposed to investments in shares of local companies 

by foreign entities. This is also termed inward investment. This could 

include new projects, expansions of existing projects, or mergers and 

acquisitions activity 

functional urban area 

an economic geography comprising an urban core and fringe areas that 

are connected through patterns of housing, work, education, supply 

chains and use of services. They are ‘real’ economic geographies in that 

they are not confined to, or defined by, administrative boundaries 

further education 

post-secondary education from basic training to higher national diploma 

or foundation degree. A small proportion of higher education is taught in 

further education colleges 

global value chain 

the globalisation of value chains – the process of producing goods, from 

raw materials to the finished product – with each stage of the ‘chain’ 

being undertaken in the most competitive locations 

globalisation 

the increasing economic integration of the world in terms of trade, 

investment and labour 

green infrastructure 

green spaces and landscapes within and around built developments 

considered as an integral part of the design and development process 

gross value added 

a measure of the economy’s output based on the value of the goods and 

services produced by the economy minus the cost of the raw materials 

and other inputs used to produce them 

higher education 

education encompassing diplomas of higher education (DipHEs), 

bachelor degrees, master degrees, MBAs and PhDs

Appendices 

Key terms 

147 

Integrated Development Programme 

an investment planning tool that will enable partners (neighbouring and 

higher tier authorities, regional agencies and local stakeholders) to plan 

and manage social, economic and environmental growth holistically and 

sustainably based on a phased single investment delivery plan 

international transport gateway 

a pivotal point for the movement of people and merchandise into, from 

and within the region and UK, often connecting different modes of 

transport 

inward investment 

investment in this country by multinational enterprises, also termed 

foreign direct investment 

key centres for development and change 

21 urban areas – named within the East of England Plan – where new 

development will be concentrated to make the most of existing 

infrastructure and the potential for improvements or extensions to that 

infrastructure 

knowledge economy 

part of the economy which is driven more by knowledge and technology 

than by the traditional factors of capital and labour 

labour force 

refers to people who are offering themselves for work, that is those who 

are currently employed or self-employed, plus the (International Labour 

Office) unemployed 

Leitch Review 

the Leitch Review of Skills, Prosperity for all in the global economy – 

world-class skills – published in December 2006 – shows that the UK must 

urgently raise achievements at all levels of skills and recommends that the 

UK commits to becoming a world leader in skills by 2020, benchmarked 

against the upper quartile of the Organisation for Economic Co-operation 

and Development. This means doubling attainment at most levels of skill. 

Responsibility for achieving ambitions must be shared between central 

government, employers and individuals 

Local Area Agreements 

Local Area Agreements (LAAs) are three-year agreements that set out the 

priorities for a local area as agreed between central government 

(represented by Government Office) and local areas (represented by local 

authorities, local strategic partnerships (LSPs) and other key partners at 

local level) 

local development framework 

a suite of documents prepared by local authorities, which includes the 

policies, proposals and other documents about land use and spatial 

planning in a local area 

lower-quartile earnings 

the level at which the bottom 25 per cent of all earnings are at, or below

Appendices 

Key terms 

148 

market failure 

market failure describes situations in which free-market outcomes lead to 

an inefficient allocation of resources, providing a rationale for government 

intervention. These include where buyers/sellers have imperfect 

information with which to make decisions; where the actions of 

individuals or firms affect others, but where these costs or benefits are 

not reflected in the price of the good or service; where public goods are 

required, which cannot be charged for; or where one or a few buyers or 

sellers have sufficient market power to influence prices 

masterplan 

a master plan is essentially a plan for a large area, such as a town centre, 

which establishes a development framework for infrastructure, buildings 

and public realm and presents how town centres might look in the future 

microgeneration 

microgeneration is the generation of zero or low-carbon heat and power 

by individuals, small businesses and communities to meet their own needs 

Multi Area Agreements 

designed to facilitate greater cross-boundary collaboration on key economic 

issues in towns, cities and other areas. Essentially cross-boundary Local 

Area Agreements, these are voluntary agreements between groups of 

local authorities on shared targets drawn from existing strategies and the 

national indicator set 

next-generation broadband 

broadband access which is at least ten times faster than the average 

download speed of broadband connections in the UK today and which 

offers more symmetric bandwidth – where the bandwidth for uploads is 

more equal to the bandwidth for downloads. Some forms of next 

generation access also offer a guaranteed bandwidth that is not shared 

with others, meaning a more stable service at peak times 

onshore and offshore wind 

wind power is the conversion of wind energy into more useful forms, 

usually electricity, using wind turbines. Onshore turbine installations in 

hilly or mountainous regions tend to be on ridgelines generally three 

kilometres or more inland from the nearest shoreline. Offshore wind 

development zones are generally considered to be ten kilometres or 

more from land 

open innovation 

sharing and use of new and existing ideas, research, processes and 

technologies 

productivity 

the measure of output per employee per period of time, either per year 

or per hour worked

Appendices 

Key terms 

149 


NVQ equivalents are used to classify qualifications. NVQ levels 4 and 

above are usually referred to as ‘higher-level’ qualifications and equate 

to first degree and higher degree/professional qualifications. NVQ level 3 

qualifications are usually referred to as ‘intermediate’ qualifications and 

equate to two A-levels. NVQ levels 2 and below are referred to as ‘lowerlevel’ 

qualifications with NVQ level 2 equating to five GCSEs at grades 

A* to C 

regional development agencies 

the nine government agencies set up in 1999 to coordinate regional 

economic development and regeneration, enable the nine English regions 

to improve their relative competitiveness and reduce imbalances existing 

between regions 

Regional Funding Advice 

public funding allocations based on advice from each English region on 

their spending priorities for transport, housing and economic development 

regional spatial strategy 

strategy of development plans, which focuses on the planning system 

at a regional and local level 

renewable energy 

renewable energy flows involve natural phenomena such as sunlight, 

wind, tides and geothermal heat, as the International Energy Agency 

explains: ‘Renewable energy is derived from natural processes that are 

replenished constantly. In its various forms, it derives directly from the 

sun, or from heat generated deep within the earth. Included in the 

definition are electricity and heat generated from solar, wind, ocean, 

hydropower, biomass, geothermal resources, and biofuels and hydrogen 

derived from renewable resources’ 

resource productivity 

a measure of the efficiency with which an economy uses energy and 

materials 

retrofitting 

improving the environmental efficiency of existing housing through the 

addition of new features and technologies 

skills gap 

where existing workers are not fully proficient at their job 

skills shortage 

where employers experience difficulties in recruiting to specific posts due 

to a lack of applicants with the necessary skills, work experience or 


social enterprise 

businesses with primarily social objectives whose surpluses are principally 

re-invested for that purpose in the business or in the community

Appendices 

Key terms 

150 

social exclusion 

the Social Exclusion Unit describes social exclusion as a ‘shorthand term 

for what can happen when people or areas suffer from a combination of 

linked problems such as unemployment, poor skills, low incomes, poor 

housing, high crime environments, bad health, and family breakdowns’ 

Sub-national Review of Economic Development and Regeneration 

the Sub-national Economic Review of Economic Development and 

Regeneration (SNR) published in July 2007outlines the government’s 

plans to refocus both powers and responsibilities below the national level 

to encourage economic growth in regions, cities and localities and tackle 

persistent pockets of deprivation 

Sustainable Communities Plan 

the plan sets out a long-term programme of action for delivering sustainable 

communities in both rural and urban areas. It aims to tackle housing 

supply issues in the South East, low demand in other parts of the country, 

to bring all social housing up to the Decent Homes standard by 2010, to 

protect the countryside and improve the quality of our public space. The 

plan was launched in 2003 by the Office of the Deputy Prime Minister 

sustainable development 

defined by the World Commission on Environment and Development as 

‘development which meets the needs of the present without 

compromising the ability of future generations to meet their own needs’ 

venture capital investment 

unsecured funding provided by specialist firms to start-up firms and small 

businesses with perceived, long-term growth potential, in return for a 

proportion of the company’s shares 

worklessness 

those who are out of work. Worklessness goes further than those who 

are unemployed and includes those who are ‘economically inactive’. 

Many are outside the labour market voluntarily because of family 

responsibilities or early retirement. But the evidence suggests that 

many others would want a job and would work if they had the right 

opportunity, incentive or path back into employment

Appendices 

Acronyms 

151 

5.3 Acronyms 

BERD Business enterprise, research and development 

BERR Department for Business, Enterprise and 

Regulatory Reform 

BSSP Business Support Simplification Programme 

CBI Confederation of British Industry 

CLG Department for Communities and Local Government 

CO2 carbon dioxide 

CRed Carbon Reduction project 

DEFRA Department for Environment, Food and Rural Affairs 

DTi Department for Trade and Industry 

(replaced by the new Department 

for Business, Enterprise and Regulatory Reform) 

EEDA East of England Development Agency 

EERA East of England Regional Assembly 

EU European Union 

FDI foreign direct investment 

GCSE general certificate of secondary education 

GDP gross domestic product 

GO-East Government Office for the East of England 

GVA gross value added 

HFCs hydrofluorocarbons 

ICT information and communications technologies 

ISA integrated sustainability assessment 

ISF Integrated Sustainability Framework 

IT information technology 

LDA London Development Agency 

LSC Learning and Skills Council 

MAA Multi Area Agreement 

MP Member of Parliament 

MIT Massachusetts Institute of Technology 

MKSM Milton Keynes South Midlands 

MW mega-watt 

NHS National Health Service 

NRP Norwich Research Park 

N20 nitrous oxide

Appendices 

Acronyms 

152 

NVQ national vocational qualification 

O2C Oxford2Cambridge Arc 

OECD Organisation for Economic Co-operation and Development 

ONS Office of National Statistics 

PSA Public Service Agreement 

R&D research and development 

RDA Regional Development Agency 

REEIO Regional Economy Environment Input Output model 

REP PSA Regional Economic Performance Public Service Agreement 

RES regional economic strategy 

RFA Regional Funding Advice 

RSS regional spatial strategy 

RTS regional transport strategy 

SA sustainability appraisal 

SEA strategic environmental assessment 

SEEDA South East England Development Agency 

SNR Sub-national Review of Economic Development and Regeneration 

TGSE Thames Gateway South Essex 

UKTI UK Trade & Investment

Appendices 

List of stakeholders 

involved in the process 

153 

5.4 List of stakeholders involved in the process 

Organisations and partnerships that participated in regional economic 

strategy review process. 

1st East 

Advice Alliance East 

Advice For Life 

Advisory Conciliation Arbitration 

Service 

Age Concern Eastern Region 

Agricultural Development in the 


Aker Kvaerner Offshore Partner 

Alphabetic ltd 

Ambrook Associates 

Amdeo 

Anglia Care Trust 

Anglia Ruskin University 

Anglian Water 

Archant Ltd 

Arts Council England, East 

Ashridge Business School 

Associated British Ports 

Associated Disabled Professionals 

Association of Colleges in the Eastern 

Region 

Association of Universities in the East 

of England 

Auriplex ltd 

Azura Group Ltd 

BAA Stansted Ltd 

Babergh District Council 

Barton Willmoore on behalf of 

Ashfield Land 

Basildon District Council 

Bedford Borough Council 

Bedford Commuters Association 

(Rail User Group) 

Bedford Credit Union 

Bedfordshire & Luton Economic 

Development Partnership Ltd 

Bedfordshire County Council 

Bedfordshire Rural Affairs Forum 

Bedfordshire Rural Communities 

Charity 

Bidwells 

Big Lottery Fund 

Birketts LLP Solicitors 

Borough Council of King’s Lynn & West 

Norfolk 

Borough of Broxbourne 

Braintree District Council 

Breckland Council 

British Marine Federation 

Broads Authority 

BT 

Business Link East 

Business Links Small Business Service 

Cambridge City Council 

Cambridge Management 

Development 

Cambridge Network Ltd 

Cambridge Regional College 

Cambridge University Hospitals 

(Addenbrooke’s) 

Cambridgeshire Chamber of 

Commerce 

Cambridgeshire Community 

Foundation 

Cambridgeshire County Council 

Cambridgeshire Horizons 

Campaign to Protect Rural England 

Camping in Tuscany 

Care Services Improvement 

Partnership 

Castle Point Borough Council 

Centre for Sustainable Engineering 

Centre for Sustainable Technologies 

Chamber of Commerce for 

Bedfordshire and Luton 

Chelmsford Borough Council 

China-Britain Business Council 

City & Guilds Eastern Region 

Climate Change Partnership 

Colchester 2020 

Colchester Borough Council 

Colchester Institute 

Commission for Architecture and the 

Built Environment 

Community Action Decorum 

Community and Voluntary Forum 


Confederation of British Industry

Appendices 



154 

Consumer Council for Water 

Core Education UK 

Cornelius Group Plc 

Council for the Protection of Rural 

England 

Country Land & Business Association 

Countryside Properties Plc 

Cranfield University 

Creative & Cultural Skills 

CRed 

Cross Keys Homes Ltd 

Dacorum Borough Council 

David Ball Group PLC 

David Lock Associates 

Department for Business, Enterprise 

and Regulatory Reform 

Department for Communities and 

Local Government 

Department for the Environment, Food 

and Rural Affairs 

Department for Transport 

Development Trusts Association 

Deyton Bell 

Digital Partnership 

Disability Essex 

East Anglia Air Ambulance 

East Cambridgeshire District Council 

East Hertfordshire District Council 

East of England Association of Civil 

Trust Societies 

East of England Association of Parish 

& Town Councils 

East of England Business Group 

East of England Development Agency 

East of England Energy Group 

East of England Environment Forum 

East of England Faiths Council 

East of England Innovation Relay 

Centre 

East of England International Ltd 

East of England Multimedia Alliance 

East of England Public Health Group 

East of England Regional Assembly 

East of England Rural Forum 

East of England Skills and 

Competitiveness Partnership 

East of England Strategic Health 

Authority 

East of England Tourism 

Easton College 

Engineering Employers’Federation 

English Heritage 

English Partnerships 


Envirowise 

Epping Forest District Council 

ERBI 

e-skills UK 

Essex & Suffolk Water 

Essex Association of Local Councils 

Essex Business Consortium 

Essex Chamber of Commerce 

Essex County Council 

Essex Development and Regeneration 

Agency 

Essex Rural Partnership 

Ethnic Minority Business Group 

Exemplas Ltd 

Federation of Small Businesses 

Felixstowe Radio CIC 

Fenland District Council 

Flourishing People Ltd 

Forest Heath District Council 

Forestry Commission 

Fraser Offshore ltd 

Freight Transport Association 

Friends of the Earth 

Future East 

Gallagher Longstanton Ltd 

GeoSuffolk 

Government Office for the East of 

England 

GradsEast 

Great Yarmouth Borough Council 

Greater Cambridge Partnership 

Greater Essex Prosperity Forum 

Greater Peterborough Partnership 

Groundwork East of England 

Halcrow Group Limited 

Harlow District Council 

Harlow Local Delivery Vehicle 

Harlow Renaissance 

Haven Gateway Partnership 

Heritage Economics & Regeneration 

Trust 

Heritage Lottery Fund 

Hertfordshire Business Incubation 

Centre 

Hertfordshire Community Foundation 

Hertfordshire Connexions 

Hertfordshire County Council 

Hertfordshire Prosperity Ltd 

Hertsmere Borough Council 

Higher Education Funding Council for 

England 

Highways Agency 

HM Treasury 

Home Office 

Houghton Regis Development 

Consortium

Appendices 



155 

Huntingdonshire District Council 

Hutchison Ports (UK) Ltd 

Imperial War Museum 

Improve Ltd Sector Skills Council 

incredit Ltd 

Indigo Foundation 

Inspire East 

Institute of Chartered Accountants in 

England and Wales 

Institute of Directors 

Institution of Civil Engineers 

Instrata 

InterBusiness Group Ltd 

Ipsenta 

Ipswich Borough Council 

ISL Planning Service Ltd 

Ixion Holdings Ltd 

Jobcentre Plus 

John Doyle Group 

Land Securities 

Landamores 

Lantra Sector Skills Council 

Lean transport 

Learning & Skills Council 

Library House 

Lifelong Learning UK 

Link Ed 

Living East 

London Development Agency 

London Luton Airport Operations Ltd 

London Southend Airport Company 

Lowestoft & Waveney Chamber of 

Commerce 

Lowestoft College 

Luton Borough Council 

Luton Minority Business Forum 

Malczyk Associates Ltd 

Market Towns East 

Maylands Partnership 

Mentfor CIC 

Mid Bedfordshire District Council 

Migrant Workers Steering Group 

Mills & Reeve 

Minority Ethnic Network Eastern Region 

Mistley Quay & Forwarding 

MOVE – Lifelong Learning Network 

Museum of Power 

Museums Libraries & Archives East 

of England 

Nathaniel Lichfield and Partners 

National Audit Office 

National Farmers’ Union 

National Housing Federation 

National Industrial Symbiosis 

Programme 

National Institute of Adult Continuing 

Education 

National Travelers Action Group 

Natural England 

Norfolk Chamber of Commerce 

Norfolk Coast Partnership 

Norfolk Country Strategic Partnership 

Norfolk County Council 

Norfolk Investing in Communities 

Partnership 

Norfolk Learning Partnership 

Norfolk, Suffolk & Cambridge Strategic 

Health Authority 

North Norfolk District Council 

Norwich & Norfolk Racial Equality 

Council 

Norwich City Council 

Norwich International Airport 

NRP Enterprise 

NSO Associates LLP 

Nuclear Industry Association 

Nuttall John Martin 

NW Brown Group Ltd 

OCE (UK) Ltd 

Office for National Statistics 

One Railway 

Opportunity Peterborough 

Oxford 2 Cambridge Arc 

Papworth Trust 

Pera Innovation Ltd 

Perenco UK 

Perkins and Associates 

Perkins Engines Co. Ltd 

Peterborough City Council 

Peterborough Environment City Trust 

Peterborough Regional Economic 

Partnership 

PI Consulting 

Pilgrims Baddow Ltd 

Prettys Solicitors 

proskills 

Prudential Assurance Company 

Regional Biodiversity Forum 

Regional Cities East 

Regional Family Carers Organisation 

Network 

Regional Transport Forum 

Renaissance Southend 

Renewables East 

Risk Frisk Ltd 

Ropemaker Properties 

Royal Society for the Protection of Birds 

Rural Action East

Appendices 



156 

Rural Community Council of Essex 

(& ERP) 

Savills 

Screen East 

Shaping Norfolk’s Future 

Shelter 

Shoebury Residents Association 

Skillfast UK 

Skills for Care 

Skills for Care and Development 

Skills for Health 

Skills for Justice 

skills for logistics 

SkillsActive 

SLP Energy 

Social Enterprise East of England 

SolXO Ltd. Excellence in Solar 

Architecture 

South Bedfordshire District Council 

South Cambridgeshire District Council 

South Essex Chamber of Commerce 

South Norfolk Council 

Southend-on-Sea Borough Council 

Southern and Eastern Region TUC 

Sport England 

SQW 

St Edmundsbury Borough Council 

St John’s Innovation Centre 

Stevenage Borough Council 

Stevenage Business Initiative 

Stop Harlow North 

Sub-regional Group for Great 

Yarmouth & Lowestoft 

Suffolk ACRE 

Suffolk Chamber of Commerce. 

Suffolk Coastal District Council 

Suffolk County Council 

Suffolk Development Agency Ltd 

Suffolk New College 

SummitSkills 

SurgiCall Ltd 

Sustainable Development Round Table 

Sustrans 

Taylor Vinters Solicitors 

Tendring District Council 


Partnership 

The Chamber 

The Crown Estates 

The Fen Line Users Association 

The Guild 

The Housing Corporation 

The MTL Instruments Group plc 

The National Trust 

The Pension Service 

The Prince’s Trust 

The Social Enterprise People 

The Technology Partnership plc 

The Wildlife Trust 

The Woodland Trust 

Three Rivers District Council 

Thurrock Borough Council 

Thurrock Local Strategic Partnership 

Thurrock Thames Gateway Urban 

Development Corporation 

Trades Union Congress Eastern Region 

Network 

UK Centre for Economic & 

Environment Development 

UK Trade & Investment 

Unionlearn 

UNITE 

University for industry 

University of Bedfordshire 

University of Cambridge 

University of East Anglia 

University of Essex 

University of Hertfordshire 

Uttlesford District Council 

Warren Services Ltd 

Waveney District Council 

Waveney Economic Partnership 

Waveney TUC 

Welwyn Hatfield Borough Council 

Wilson, Lee and Partners 

Writtle College 

XL Independent Financial Advisers Ltd 

Young Enterprise East of England

If you know anyone who needs this 

document in another format or language, 

please contact the East of 

England Development Agency and 

we will do our best to help. 

East of England Development 

Agency 

The Business Centre 

Station Road 

Histon 

Cambridge 

CB24 9LQ 

Telephone: 

0845 456 9200 

Fax: 

01223 713940 

Email: 

res@eeda.org.uk 

Web: 

www.eastofengland.uk.com/res 

The regional economic strategy 

was produced by EEDA in consultation 

with stakeholders 

in the region.

OUR ENVIRONMENT, 

OUR FUTURE 

THE REGIONAL ENVIRONMENT STRATEGY 

FOR THE EAST OF ENGLAND 

Produced by a joint working group representing 

The East of England Regional Assembly 

and 

The East of England Environment Forum 

JULY 2003

‘OUR ENVIRONMENT, OUR FUTURE’ 

THE REGIONAL ENVIRONMENT 

STRATEGY FOR THE 

EAST OF ENGLAND 

PRODUCED BY A 

JOINT WORKING GROUP 

REPRESENTING 

THE EAST OF ENGLAND REGIONAL ASSEMBLY 

AND 

THE EAST OF ENGLAND ENVIRONMENT FORUM 

JULY 2003

Further Information 

If you have questions about the Regional Environment Strategy, or would like to find out 

more about how the region is moving towards a more sustainable future, please contact: 

Clare Hardy 

Policy & Communications Officer 


Flempton House 

Flempton 

Bury St. Edmonds 

Suffolk 

IP28 6EG 

e-mail: clare.hardy@eelgc.gov.uk 

This document was edited and designed for the Joint Working Group by 

Land Use Consultants, 43 Chalton Street, London, NW1 1JD 

Printed in the East of England on Recycled Paper by Gildenburgh Ltd 

July 2003 

FOREWORD 

This first Environment Strategy for the East of England region catalogues and celebrates 

the many diverse environmental assets which will have a crucial bearing on the continued 

economic and social development of the Region. 

This Strategy will complement the other regional strategies within the Regional Assembly’s 

family of ‘Integrated Regional Strategies’. It deliberately makes key linkages between the 

environmental assets of the region, and economic development and social inclusion. 

The delivery of the Strategy will be the responsibility of Government, local authorities and 

other public and private sector bodies, and the voluntary sector. Crucially, everyone who 

lives and works in the East of England and values the region as a diverse natural and built 

landscape, is an important stakeholder. 

The very act of producing the Strategy has raised many issues, challenges and missing 

linkages. We hope above all that the Strategy will assist our regional partners in focussing 

environmental consciousness at the forefront of other strands of public policy making. 

It is intended that future annual monitoring of the Strategy will measure progress in 

delivery against the many action points it sets out, and will provide an all important 

contextual background against which individual local and regional decisions will be made. 

Above all, the many organisations which have contributed to the production of this 

Strategy, (whose assistance we gratefully acknowledge), hope that its publication will 

encourage widespread public debate. ‘Our Environment’ and the quality of life we value 

so much in our region is truly ‘Our Future.’ 

John Kent 

Chair 


Simon Garnier 

Chair 

East of England Environment Forum 

2 The Regional Environment Strategy for The East of England The Regional Environment Strategy for The East of England 3

CONTENTS 

1 Introduction 11 

1.1 Why Is The Environment Important? 11 

1.2 Purpose Of The Environment Strategy 12 

2 The Landscape And Natural Environment 13 

2.1 Natural And Man-made Landscapes 13 

2.2 Biodiversity 15 

3 The Historic And Built Environment 19 

3.1 The Historic Environment 19 

3.2 Local Distinctiveness And Quality In The Built Environment 22 

4 Natural Resources 27 

4.1 Water 27 

4.2 Air And Climate 29 

4.3 Land 31 

5 Meeting The Environmental Challenge 35 

5.1 Delivering Sustainable Patterns And Forms Of Development 35 

5.2 Meeting The Challenges And Opportunities Of Climate Change 42 

5.3 Ensuring Environmental Sustainability In The Economy 47 

5.4 Enhancing Environmental Capital 52 

5.5 Achieving Sustainable Lifestyles 59 

6 The Way Forward 63 

6.1 Delivering Sustainable Patterns And Forms Of Development 63 

6.2 Meeting The Challenges And Opportunities Of Climate Change 65 

6.3 Ensuring Environmental Sustainability In The Economy 66 

6.4 Enhancing Environmental Capital 67 

6.5 Achieving Sustainable Lifestyles 69 

Appendix 1 - Bibliography 71 

Appendix 2 – Acknowledgements 73 

Appendix 3 – Other Regional Strategies 75 

4 The Regional Environment Strategy for The East of England The Regional Environment Strategy for The East of England 5

6 The Regional Environment Strategy for The East of England 

1 INTRODUCTION 

This Regional Environment Strategy has at 

its heart a vision of a prosperous and socially 

inclusive East of England that recognises the 

value of our environment as an integral part 

of the region’s current and future sustainable 

development. The Strategy sets out an 

ambitious agenda for celebrating, protecting 

and enhancing our natural, historic and built 

environment. It highlights the importance of 

the environment to the broader improvement 

of quality of life for everyone in the region. In 

short, we want the East of England to be known 

for the quality of its environment, and the 

quality of our environmental management and 

stewardship, as part of the region’s progress 

towards improvements in prosperity and quality 

of life for all. 

This document sets out the first ever Environment 

Strategy that covers the whole of the East of 

England. It is one of a series of strategies that form 

part of an overall Integrated Strategy for the region. 

As such it will have an influential role in deciding 

how the East of England will move towards a more 

sustainable future. 

1.1 WHY IS THE ENVIRONMENT 

IMPORTANT? 

All life is ultimately dependent upon the quality 

of the environment. Without clean air, water and 

soils we would not survive. But the environment is 

valuable for much more than just supporting life. 

It comprises all our surroundings – our landscapes, 

towns and villages, individual buildings, and historic 

features, as well as wildlife, and natural resources. 

How they relate to one another determines the very 

character of the places where we live. 

The environment is a fundamental influence on 

our quality of life. It provides inspiration and, used 

wisely, it is a source of wealth. The environment 

is worth protecting for its own sake, as well as for 

the benefits it brings to individuals, communities, 

institutions and business. It: 

• Helps to define regional identity 

and distinctiveness. 

Introduction 

• Offers access to green space, and contact with 

nature and history, providing people with a 

variety of recreational and health benefits. 

• Provides environmental resources including 

minerals, water, energy, and soils, directly 

contributing to the region’s economy. 

• Creates the conditions needed to attract inward 

investment, and retain those businesses that 

already exist in the region. 

• Acts as a focus for regeneration through the 

repair and conservation of the built environment. 

For these reasons, a high quality environment is 

crucial for our well-being. This also means that we 

have a shared responsibility for maintaining and 

enhancing the environment of the East of England, 

both now and for future generations. 

But the importance of protecting and enhancing 

the environment is only beginning to be understood. 

The Government recognised this when it published 

its strategy for sustainable development, 

‘A better quality of life’: 

“in the past success has been measured by 

economic growth alone….we have failed to 

see how our economy, our environment and 

our society are all one.” 

This Environment Strategy for the East of England 

sets an agenda for ensuring that the environmental 

part of this equation is given due weight in decision 

making, in line with the fundamental principle of 

sustainability, which is to: 

“meet the needs of the present without 

compromising the ability of future 

generations to meet their own needs” (Our 

Common Future’ – The Brundtland Report). 

The Regional Environment Strategy for The East of England 

7

Introduction 

1.2 PURPOSE OF THE 

ENVIRONMENT STRATEGY 

The East of England Regional Assembly believes 

that the key to sustainable development of the 

region is to integrate the delivery of economic 

development, social progress and environmental 

quality. It seeks to achieve this through a series 

of regional strategies, which together form an 

Integrated Regional Strategy, whose common 

reference point is provided by the East of England’s 

Regional Sustainable Development Framework (more 

information on the other regional strategies is given 

in Appendix 3). 

Within this context, the Environment Strategy 

clearly articulates the importance of conserving and 

enhancing the environment of the East of England, 

in order to improve quality of life for all. 

The main purpose of the Environment Strategy is: 


To raise awareness of the environment among key 

regional stakeholders, and to inform and advise 

other regional strategies to ensure that environmental 

objectives are integrated with social and 

economic issues. 

It comprises: 

• A summary of the current state of the 

environment of the East of England - its 

landscapes and its nature, its historic and built 

assets, and its natural resources 

(Chapters 2, 3 and 4). 

• A description of the main environmental 

challenges facing the region, and a series of aims 

for responding to these challenges (Chapter 5). 

• A number of key actions that will need to be 

undertaken in order to meet the aims of the 

Strategy, and indicators for measuring success 

(Chapter 6). 

The timescale covered by the Strategy is until 2021, 

in accordance with the timescale of other regional 

strategies, such as regional planning guidance. 

2 THE LANDSCAPE AND 

NATURAL ENVIRONMENT 

The East of England has a rich and diverse natural 

environment containing some of the UK’s rarest 

habitats and species. A wide variety of landscapes 

characterise the region, ranging from low-lying 

coastlines to large-scale arable farmland, and 

from extensive lowland heath to intimate rolling 

landscapes of mixed woodland and hedgerows. 

Landscapes such as the Broads, Breckland, the 

Chilterns and the coast are outstanding in terms of 

their natural beauty and biodiversity. The coastal 

and wetland habitats are of particular importance, 

with many covered by European and international 

designations. The Broads are one of Europe’s most 

important wetlands and as such have earned the 

status of National Park. 

2.1 NATURAL AND MAN-MADE 

LANDSCAPES 

Introduction 

The landscape of the East of England reflects its 

underlying geology and soils, and the way they 

have been influenced by ice, water, vegetation and 

human activity. It is in a constant state of flux and 

is highly dynamic. The landscape has been shaped 

by man over centuries, meaning that very little of 

what is seen today is truly natural. 

Key Assets 

The geology of the East of England is characterised 

by a predominance of superficial deposits rather 

than exposures of hard rock. The geology and earth 

heritage of the region continues to be altered by both 

natural processes and human activity. Sand, gravel, 

chalk and clay extraction is an important industry. 

The Fens and Wash – Scouring during glaciation 

produced a basin comprised of Jurassic clays, thick 

The Landscape and Natural Environment 

deposits of Quaternary sands, gravels and clays, and 

accumulations of peat. 

North Norfolk – Formed of mudstones, sandstones 

and chalk, the geology of this area is one of the 

most complete sequences of late Jurassic to late 

Cretaceous rocks, overlain in parts by fossil rich 

Pleistocene deposits. 

Coastal Crag – The Suffolk Coast and the coastline 

between Sheringham and Lowestoft are formed of 

Crag, being muddy and sandy sediments derived from 

the North Sea and deposited during the last glaciation. 

West of the Region – Dominated by a combination 

of Jurassic clays and limestone, Cretaceous chalk, 

and vast quantities of sand, gravels and clays, 

bisected by the Bedfordshire Greensand Ridge and 

the Yardely-Whittlewood Ridge. 

London Basin - The south east of England is 

dominated by the London Basin, which extends 

into much of the southern part of the East of 

England. It contains extensive sediments of clay 

and river deposits. 

Chalklands – The London Basin is fringed with resistant 

chalk in the form of ridges such as the Chilterns. 

The East of England comprises the following broad 

landscape types: 

Lowland Wetlands – Generally large, flat, open 

landscapes predominantly drained for agriculture, 

interspersed by drains and ditches with sparse 

settlements and intensive agricultural land uses, 

also embracing important tidal salt marshes, 

mudflats, reedbeds, wet woodland, and grazing 

marshes of the coast. 


9


The Nene Washes are some of the most dramatic 

of the lowland wetlands that characterise much 

of the coastal region of the East of England. 

Low population densities, and the flat, large scale, 

open landscapes provide sweeping views and skies. 

© English Nature 

• Claylands – A clay plateau of generally open, 

undulating, landscape that is mainly arable, 

interrupted by numerous dispersed settlements 

and river valleys. Hedgerows and hedgerow 

trees are significant giving a wooded appearance, 

although woodland itself has become fragmented 

by historic agricultural practices. It has a high 

density of historic buildings, churches and greens. 

The North Essex Claylands include some of 

the region’s most ancient countryside. Many 

historic settlements can be found in the rolling 

patchwork of fields, which are bounded by often 

significantly wooded hedgerows. 

© Countryside Agency/John Tyler 


• Rolling/Free-Draining – Predominantly arable 

farming based on mainly sand and gravel soils, 

with a patchwork of fields, lanes and villages, 

characterised by the frequency and prominence 

of churches and strong local building styles. 

• Rolling Heath/Moor – A largely rolling arable 

and grassland landscape with widely spaced but 

compact settlements, with remnants of heath 

and belts of mixed woodland and extensive 

conifer plantations. 

• Chalklands – An open landscape of variable 

topography, which although mostly arable, also 

contains remnant chalk grassland. Distinctive 

belts and large areas of beech woodland, 

variable field sizes, ancient lanes, tracks and 

linear earthworks, and scattered nucleated 

settlements, are characteristic. 

These landscape types give rise to the variety and 

distinctiveness of the region’s landscape character 

and to defining its sense of place. The region 

comprises 22 broad character areas. 

© Countryside Agency 

Some landscapes in the region are designated as 

being nationally important. These include the 

Norfolk and Suffolk Broads (National Park), and the 

Norfolk Coast, Suffolk Coasts & Heaths, Dedham 

Vale, and the Chilterns (Areas of Outstanding 

Natural Beauty). Many other landscapes are 

designated as being locally important. 

Important archaeological, fossil, and biological 

remains are found in the East of England’s rocks 

and soils that give indications of past climates and 

human activity. The most recent geological deposits, 

spanning the last 2 million years, include a record of 

alternate glaciations and warm phases. The UK names 

for these are all taken from the East of England where 

the phases were first identified. Evidence of the 

earliest inhabitants goes back some 500,000 years. 

The most significant recent find combined remains of 

woolly mammoths together with hand axes of a type 

produced by Neanderthal man. 

Assessment of the Current State 

Whilst the landscape character of the region is 

still apparent there has been a steady decline 

in distinctiveness both within and between 

character areas. This has resulted from changes 

to agricultural practices, impact of built 

development, roads and service infrastructure, 

and other human activity, such as recreation. 

Overall this has led to: 

• An erosion of local distinctiveness between 

areas of different landscape character. 

• Reduction in the quality of many landscapes, 

particularly through decline and loss of features. 

• Diminishing of ‘scenic beauty’ of highly 

valued landscapes, particularly through 

the introduction of incongruous 

20 th century elements. 

• Loss of tranquillity and landscapes that are 

genuinely ‘wild and remote’. 


• Breakdown in historical continuity of 

landscape evolution. 

2.2 BIODIVERSITY 

Introduction 

Biodiversity encompasses all living organisms and 

the collections of species that form different natural 

habitats. The UK Biodiversity Action Plan proposes 

ambitious targets to create new wildlife habitats 

and restore species populations, and there is huge 

potential for the East of England to achieve this. 

Key Assets 

The East of England contains 567 Sites of Special 

Scientific Interest (SSSI), covering 6.6% of the land 

area. Many of these are also covered by European 

and international designations in recognition 

of their global importance. Biodiversity is not 

confined to special places and protected sites, 

but can be found in the gardens and parks of the 

region’s urban areas, in the woodlands and fields 

of the countryside, and marshes and dunes of 

the coast. The more significant elements of the 

biodiversity of the East of England can be grouped 

into the following broad categories: 

• Arable Farmland, Grassland and Heathland 

- Approximately 72% of agricultural land in the 

region is under cultivation, compared to 29% 

nationally. Intensification of agriculture in 

recent years has resulted in farmland habitats 

having a lower capacity to sustain wildlife. 

Many species still occur but at greatly reduced 

levels e.g. cornflower, shepherds needle and 

birds including the corn bunting. The region 

supports 23% of England’s resource of lowland 

dry acidic grassland. The Chilterns support 

important chalk grasslands. Wet grassland is a 

very prominent feature, with extensive coastal 

grazing marshes. The washlands of the Nene, 


11


Ouse and Cam rivers in the Fens represent some 

of the largest surviving remnants of fenland 

habitats. Breckland has an outstanding mix of 

grassland and dry heathland vegetation and is 

the only significant area in England of inland 

dunes, which support rare lichen-rich grassland 

and 65% of the UK’s stone curlew population. 

The East of England supports 15% of England’s 

lowland heathland. 

The field edges of Cherry Hill and The Gallops 

SSSI in Sufflok are cultivated every September 

to allow the seed of rare arable wild flowers to 

germinate, grow throughout autumn and winter, 

and flower in March and April. Some of Britain’s 

rarest plants grow here, including Breckland 

Speedwell and Spring Speedwell. 

© English Nature/Peter Wakely 

• Freshwater - Despite the East of England 

being the driest part of the country, it is the 

richest region in the UK for wetland wildlife. 

The Broads is one of Britain’s most extensive 

wetlands and provides a habitat for rare plants 

and dragonflies. Freshwater habitats within the 

region are very important for wintering wildfowl, 

and the reservoirs and watercourses support 

some important fisheries. 

• Bog, Fen and Swamp - Many invertebrate 

populations and populations of rare birds, such 

as bittern, depend upon the region’s wetlands. 

80% of England’s resource of lowland fen 

occurs in the East of England. Here a mosaic of 


vegetation types includes the largest expanse 

of lime-rich fens. Other internationally 

important fens occur in the heads of valleys, fed 

by groundwater springs. A rich mix of other 

habitats are found in the region, including 

swamp, reedbeds, and carr woodland. The 

region supports more than half of England’s 

reedbed resource, with the largest occurring 

within the Broads and along the Suffolk coast. 

The Fens provide an important habitat for a wide 

range of species. Although dominated by sedges 

and rushes, most fens have a rich flora that 

includes numerous rare and scarce plants, such as 

the Fen Violet. 


• Woodlands – Woodlands comprise the second 

largest land-use in the East of England, covering 

7.3% of the land area. The region contains 

around 13% of the broad-leaved woodland in 

England, with the south being one of the most 

ancient wooded areas in the country, dominated 

by beech, oak and hornbeam. There are many 

areas where trees are managed by pollarding, 

such as Epping Forest and Hatfield Forest, which 

can support rare lichens and moss as well as 

dead wood beetles and roosts for bats and birds. 

Ancient woodlands in the region are rich in 

uncommon plants such as oxlip and rare orchids. 

There are 13.6 million trees in the countryside 

not in woodland. The large pine plantations 

around Thetford and on the Suffolk Coast are 

internationally important for woodlark and 

nightjar populations. 

• Maritime – Much of the extensive and varied 

coast of the region is internationally designated. 

This includes important dune systems, most 

notably in Norfolk, shingle occurring at 

numerous locations along the Norfolk and 

Suffolk coast (representing 20% of England’s 

resource), and many saline lagoons. The region 

supports extensive areas of saltmarsh, which 

reflects the presence of large estuaries and wide 

intertidal areas across the coast. These habitats 

are particularly important for birds, acting 

as crucial staging posts for migrating birds 

during spring and autumn, and feeding sites 

for large numbers of internationally important 

waders and wildfowl throughout the winter. 

The intertidal flats of the Wash and North 

Norfolk coast support the largest population 

of common seals in England. The region has 

nationally important shell-fisheries, such as the 

Native Oyster layings in South Essex. Offshore, 

the seabed is largely composed of mixed sand 

and gravel sediments. In some areas this is of 

national and international importance, and 

supports key groups of species including marine 

fish, dolphins and whales. 

• Urban Environments – Society often underestimates 

the value of biodiversity in urban 

areas. Diverse habitats can be found throughout 

the cities, towns and villages of the region, 

and they are crucial in giving large numbers 

of people an everyday experience of nature. 

Natural green spaces and features, such as 

commons, parks and gardens, and street trees, 

create citywide mosaics that are important 

to people’s quality of life. They also act as 

vital refuges to the plants and animals that 

live in towns and cities such as hedgehogs 

and amphibians. The built environment can 

provide crucial habitats for species such as 

house martins, swifts and bats. Brownfield 

sites in urban areas, such as disused quarries, 

railway lines, and old industrial sites, can often 

develop high biodiversity value. These can be of 


particular importance for scarce invertebrates 

and support significant resources of scrub and 

rough grassland, otherwise now quite rare. 

Private gardens are important habitats for 

wildlife. A small pond, left relatively undisturbed, 

can quickly attract a wide range of wildlife, 

including amphibians such as the common frog. 


© English Nature/Chris Gibson 

The East of England has seen a dramatic reduction 

in habitats in recent years, which has led to a 

decline in the number and variety of species 

in the region. Many wildlife rich sites, such as 

heathlands, are now fragmented and isolated, 

leaving them vulnerable to damage e.g. by fire or 

pollution. All of the region’s rare habitats are rarer 

than they were 50 years ago, some dramatically 

so. Nonetheless, several habitats in the East of 

England are internationally important, particularly 

fens, saltmarsh, coastal lagoons and heathland. 

Depletion of habitats and species has been well 

documented, for example: 

• Suffolk sandlings heaths have declined by 

90% since 1783. 


13


• Essex coastal grazing marshes have declined 

by 64% since the 1930s. 

• 97% of wetlands in the Fens have disappeared 

since the 1650s, with 40% lost since 1930. 

• 46% of saltmarshes on the Stour and Orwell 

estuaries has been lost since 1975. 

• Over a hundred species, such as the Norfolk 

damselfly, have disappeared from the region 

in the last century. 

• Whilst woodland cover has increased by 25% 

since 1980, this varies across the region, with 

Cambridgeshire still being the least wooded 

county in Britain. 

• The quality of habitats is declining due to 

pollution, disturbance and neglect. 

• Farmland wildlife has suffered as agricultural 

production has increased dramatically. 

• In urban areas remnants of countryside still 

exist, but they too are fragmented and altered. 

• Brownfield sites in urban areas that have 

developed nature conservation interest 

continue to be developed for other uses. 


3 THE HISTORIC AND BUILT 

ENVIRONMENT 

3.1 THE HISTORIC ENVIRONMENT 

Introduction 

The historic environment embraces all those aspects 

of the environment that reflect the shaping hand 

of past human activity. History can be traced 

throughout our modern, everyday surroundings 

through the location and form of our settlements, 

historic buildings, industrial sites, field patterns, 

woodlands, historic parks and gardens, and archaeological 

sites. Together they play a critical role in 

defining local identity and sense of place. 

Key Assets 

The finest historic assets are recognised as needing 

special protection. These include 57,643 listed 

buildings, 211 registered parks and gardens, a 

registered battlefield at Maldon, approximately 

1,600 scheduled monuments and 1,100 areas of 

special architectural or historic interest, designated 

as Conservation Areas. It is difficult to quantify the 

archaeological resource, but there are approximately 

150,000 archaeological sites currently recorded on 

County Sites and Monuments Records. 

Archaeological and Below Ground Assets 

• Prehistoric Sites - The diversity of regional 

landscapes and natural resources underlie the 

development of human communities. Evidence 

exists from the earliest hunter-gatherers, whose 

tools were found at Clacton and Hoxne, to the 

later prehistoric farming communities, who 

may be glimpsed through their flint mines at 

Grimes Graves, and ritual sites at Holme and Flag 

Fen. Traces of their settlements, cemeteries and 

defences survive below the ground, revealed as 

cropmarks by aerial photography. 

The Historic and Built Environment 

The Bronze Age timber circle at Holme next the 

Sea, Norfolk, comprised a sub-circular ring of 

55 oak timbers surrounding a large inverted oak 

tree. Originally located on salt marsh, it was 

vulnerable to a dynamic and changing coastline, 

which prompted its excavation. The site has 

provided important evidence of the earliest use 

of metal tools. 

© English Heritage 

• The Earliest Towns - More tangible sites and 

monuments survive from the Roman, early 

and later medieval and modern periods, 

encompassing a wide range of buildings and 

structures in addition to their buried artefacts. 

This is still evident in the great Roman towns 

at Colchester and St Albans, with their network 

of small towns and local markets, as well as the 

internationally significant Saxon and medieval 

ports and towns of the eastern seaboard, such as 

Ipswich, Norwich and King’s Lynn. 

• Defence and Fortifications - The length of 

coastline and the importance of its estuaries, 

together with the agricultural wealth of estates 

and towns inland, give the region a legacy of 

impressive historic fortifications ranging from 

private castles, such as Hedingham, forts such as 

Tilbury, Landguard and the Martello chain, up to 

Second World War and Cold War defence sites 

encircling London and protecting the east coast. 


15


Originally a Norman keep-and-bailey castle, the 

surviving keep at Orford was built by Henry II 

in the 12 th century as a coastal defence. The 

comprehensive building records are the earliest in 

the country. The top of the keep affords splendid 

views of Orford Ness and the surrounding 

countryside. 


• Historic Landscapes – The grain of history is 

still evident in many of the building blocks 

of the landscape. Late prehistoric territorial 

boundaries are represented by earthworks at 

Wheathampstead and Colchester, and later in the 

Devil’s Dyke, in Cambridgeshire. The formation 

of the royal forests and great medieval parks, 

are traceable by their park banks and ancient 

woodland, such as at Hatfield Forest and Ongar 

Great Park. Also important are the 18 th century 

landscaped parks, exemplified by Luton Hoo. In 

contrast, at a local level, deep green lanes, which 

follow ancient routes through the agricultural 

landscape, and the patterns of the fields, 

represent the ever-changing agricultural regime 

upon which regional prosperity was based. 

Buildings and Settlements 

• Historic Cities - Cambridge and Norwich are 

historic cities of international significance. 

Cambridge is famous for its university, with some 


of its buildings, such as King’s College chapel, 

being of world renown. Norwich has the largest 

surviving medieval core of any city in Britain. 

• Religious Buildings - In the East of England 

parish churches are a major architectural feature, 

with 25% of the nation’s Grade I churches lying 

within the region. They include small Saxon 

churches, such as Bradwell-on-Sea, as well as 

the great medieval churches of Suffolk. The 

region’s eight cathedrals are key to regional 

identity and sense of place, as are the haunting 

remains of the great monastic foundations such 

as Walsingham and Bury St Edmunds. . 

The views of Ely Cathedral from across the 

Fens evoke one of the strongest images of the 

East of England. 

©Countryside Agency/ David Burton 

• Market Towns, Villages and Coastal 

Settlements – Historically, the region was 

dominated by an agricultural economy centred 

on market towns, the visual legacy being the 

wealth of timber-framed houses, shire halls, and 

corn exchanges. The booming trade with the 

continent, via the east coast ports, is reflected in 

the magnificent Customs House at King’s Lynn, 

and in the architectural legacy of Flemish gables. 

Victorian seaside architecture characterises such 

resorts as Cromer and Southend-on-Sea. 

• Rural Estates and Buildings – Many fine 

country houses and parklands can be found 

in the region. They range from those created 

on former monastic remains, as at Audley 

End, to the Georgian masterpiece of Holkham 

and Heveningham, and the Victorian gothic of 

Knebworth in Hertfordshire. The importance 

of agriculture is further exemplified in historic 

barns, such as the medieval granary barns of 

Cressing Temple, and the 18 th century model 

farms of Norfolk, whilst Willington Dovecote 

and Stables in Bedfordshire demonstrate the 

sophistication of some manorial complexes. 

Wrest Park in Bedfordshire includes one of the 

most important formal gardens in the region. 

Laid out originally by Henry, Duke of Kent, in the 

early 18 th century, the gardens were modified by 

Capability Brown later in the same century, and 

again by Earl de Grey in the mid 19 th century. 

They epitomise two centuries of garden history. 


• Industry – There are many industrial buildings 

that are characteristic of the region. Historic 

industries are represented by the wind and 

watermills, maltings and breweries, weaving 


lofts and textile mills. The hat factories of Luton 

and fish curing works in Great Yarmouth and 

Lowestoft are part of the towns’ identities. Predating 

the supremacy of the railways are the 

regional canals and their associated buildings. 


While much has been achieved through grant 

aid and other initiatives there are, nevertheless, 

significant problems. The historic environment 

has undergone constant change over many 

centuries, but the rate of change in the 20 th 

century was unprecedented: 

• The Council for British Archaeology identified 

more towns in the East of England than 

any other region whose historic importance 

requires special care in their planning. The 

character of these towns is under assault 

from roads, town centre redevelopment, 

out-of-town stores and warehousing, and 

peripheral housing expansion. 

• Ancient monuments in the region have 

been degraded by a combination of modern 

farming practices, mineral extraction, and 

development. In the East of England, 15% of 

known monuments were destroyed between 

1945 and 1995. 

• An estimated 1,000, or 2%, of the region’s 

listed buildings have been identified by 

English Heritage as being ‘at risk of decay’. 

One third of entries on county and English 

Heritage Buildings at Risk registers are the 

result of changing agricultural practices. 

17% are country houses, typically left empty 

and degrading for many generations. The 

general decline in religious observance has 

resulted in redundant churches, which make 

up 12% of entries. Historic buildings in 

market towns also contribute 12% of entries 

e.g. town houses, commercial buildings, 

schools and pubs. 


17


• Changes in technology have made a range of 

buildings redundant, such as mills, pumping 

stations, maltings and other industrial 

buildings. Rapid transport developments have 

also led to redundant structures including 

railway stations, bridges and a lighthouse. 

St Neots is a market town whose economic base 

declined over the years and has been replaced 

by new employers based on the town’s periphery. 

English Heritage and Huntingdonshire District 

Council have been working since 1996 on 

schemes to regenerate the town centre and lever 

in private funding. The grade II listed Paines 

Brewery was in poor repair and on the Buildings 

at Risk register. It has now been sensitively 

restored and converted for residential and retail 

use, creating 25 dwelling units and 13 new jobs. 



3.2 LOCAL DISTINCTIVENESS AND 

QUALITY IN THE BUILT 

ENVIRONMENT 

Introduction 

Historically, locally available building materials defined 

the scale, size and form of most of the traditional 

buildings that characterise the towns and villages 

of the East of England. Traditional building skills 

were passed down through generations. Craftsmen 

educated in the local building tradition had an innate 

understanding of the possibilities of local materials, 

and an awareness of local details that distinguish 

buildings in one part of the region from another. 

These skills have largely been lost with the advent of 

mass produced building materials and the loss of the 

craft skills base. This has resulted in contemporary 

construction bearing little or no relationship to the 

environment in which it is located, and an overall 

watering down and potentially complete loss of 

regional distinctiveness. 

Key Assets 

Materials and Craftsmanship 

Before railways, buildings used to be made from 

locally available stone and other materials, which 

in turn helped to define the building method used. 

Distinctive regional architectural characteristics 

developed based on differing local geology and 

natural materials. This is particularly visible in the 

East of England, where a wide variety of different 

bedrock exists. 

• Chalk – Found in the Chilterns and the west of 

the region, and used as building stone and for 

lime in plasters and mortars. 

• Ironbound Sandstone - Carstone in Norfolk 

gives a distinct and rich colour to buildings 

in a defined area. Pebbles of carstone were 

sometimes pressed into mortar joints, producing 

distinctive ‘galleting’. A limestone belt adjoining 

the region produces Barnack stone, characteristic 

of parts of Cambridgeshire and churches 

throughout the region. 

• Flint - Very characteristic of Norfolk and Suffolk 

and used in many decorative ways, as well as for 

general walling. 

• Clays - Produced unique brick types, due to 

the variety of clays and firing methods. In 

Bedfordshire, bricks have been produced since 

Roman times until the present day. Clay 

pantiles are especially characteristic of Norfolk 

and Suffolk and were given a blue/black glaze 

for prestige buildings. Plain tiles are characteristic 

elsewhere. 

• Oak - Abundant in Hertfordshire, Essex and 

Suffolk where high standards of carpentry are 

evident. In Essex the majority of pre-industrial 

buildings in rural areas are timber framed. 

• Thatch – Long straw thatch, from old varieties of 

wheat, is the tradition in the south of the region. In 

the north, water reed taken from the Fens, Broads 

and marshes is used for thatching, using different 

techniques to give very distinct appearances. 

Reedbeds, such as these at Woodwalton Fen, 

continue to be a source of reed for thatching 

historic buildings. They also provide an important 

habitat for wildlife. 



The building industry underwent a fundamental 

change when easy transportation, using railways, 

was made possible in the 19 th century. From this 

time, building styles and methods of construction 

were no longer as closely related to the local area. 

The brick industry in Bedfordshire expanded greatly 

and sent bricks to the whole country. 

Townscape and High Quality Design 

The built environment is part of our everyday 

surroundings and well-designed urban environments 

can make a real difference to the quality of our lives. 

The Spirella building in Letchworth is an excellent 

example of how a key historic building, which 

became redundant from its original use, can 

be turned into an economic asset. From semiderelict 

corset factory to fully let, leading edge 

office space, the grade II* listed building was 

transformed through an £11m regeneration 

project by Letchworth Garden City Heritage 

Foundation. Voted ‘property innovation of the 

year’ by Property Week magazine, Spirella is today 

home to some 25 thriving businesses, which, 

between them, employ some 400 staff within two 

minutes walk of town centre shops and services. 

© BJP Photograghy Ltd 


19


Fundamental elements of the townscapes and the 

built environment in the East of England are: 

• Urban Design - The region boasts some very 

attractive urban environments, achieved 

through successful urban structure together 

with individual building design. The East of 

England has been at the forefront of new town 

development including the early 20 th century 

garden city at Letchworth and the post war 

modernist development of Harlow New Town. 

• Open Spaces – Attractive urban areas need 

green landscapes and open spaces where people 

can gather. These range from market places, 

churchyards and village greens, to larger urban 

parks. In many instances, such as The Backs in 

Cambridge, these spaces are crucial in defining 

the identity of a settlement. 

• New Landmark Buildings - Examples such as 

Foster’s Stansted Airport Terminal, the Willis 

Faber & Dumas Building in Ipswich, and the 

Millennium Library in Norwich have the power 

to put the region on the map. 

• Everyday Building Design – Housing is particularly 

influential in affecting the character of 

settlements. Much post-war development has 

been unexceptional but examples of good design 

can be found across the region, for example at 

Loddon in Norfolk, and Rushmere in Suffolk. 

• Public Buildings - The library in Halesworth 

and the new council offices in King’s Lynn 

have been recognised for their quality. The 

Lowestoft Waste Water Treatment Centre and 

the Learning Resource Centre at the University 

of Hertfordshire, Hatfield, provide examples of 

recent good modern architecture. 

• Enhancement Schemes - Quality in the public 

realm is critical to the attractiveness of towns 

and cities. Enhancement schemes, such as 

the removal of excessive street furniture and 

re-paving at South Quay in Great Yarmouth, 

have begun to offer real improvement. Traffic 


management has helped make the historic 

centre of Cambridge more tranquil and friendly 

to the pedestrian. 

Whilst much new built development in recent 

times has been of undistinguished quality, 

contributing little to local character and distinctiveness, 

there are some good examples in the 

region of thoughtful and high quality design, 

such as the new library at Halesworth. Designed 

by Suffolk County Council Architects Dept, it won 

a Civic Trust Award Commendation in 1999. 



The building industry was transformed in the 

20 th century, introducing new technologies and 

becoming more mechanised. The result has been: 

• Loss of traditional craft skills. 

• Limited sources of locally distinctive materials. 

• Inappropriate and sometimes damaging 

repair methods. 

There are many examples of good modern design 

in the region to celebrate, but these tend to be 

isolated. New buildings are often unsympathetic 

to the local urban environment. Creating a ‘sense 

of place’ in the new settlements of the region has 

proved difficult. 

Widespread dissatisfaction with the quality 

of urban developments in recent years led to 

the establishment of the Urban Task Force and 

subsequent Urban White Paper. The East of 

England suffers from urban problems despite there 

being no large cities: 

• Development that takes little account 

of its context. 

• Standardised, characterless new housing, 

built to low densities. 

• Poor quality design in many commercial 

and public buildings. 

• Bland large-scale developments, 

lacking urban design quality. 

• Degraded, unmanaged urban parks. 

• Questionable pedestrianisation and 

highway works. 



21



4 NATURAL RESOURCES 

The natural resources of the East of England 

comprise its water, air, and land. These are essential 

not only for the functioning of society, but also for 

maintaining the health of the wider environment, 

such as its biodiversity. 

4.1 WATER 

Introduction 

Water is essential for the natural environment and 

fundamental to the social and economic viability 

of the region. It is therefore vital to ensure the 

sustainable use of this finite and precious resource. 

Water in the sea, rivers, and wetlands supports plant 

and animal life and plays a major role in defining 

the character of the region’s landscape. Wetlands 

hold significant importance as they contain unique 

archaeological deposits. The water environment 

provides for many forms of recreation that contribute 

to quality of life, such as angling, watersports, 

boating and sailing, and tourism on the coast. 

It is important to identify how much water is 

required to protect environmental assets whilst 

ensuring that the region meets public supply needs 

and continues to thrive as a competitive economy. 

As the driest region in the country, supporting one 

of the fastest growing populations, with large areas 

of flat, low-lying land at risk of flooding, the region 

is presented with a number of key sustainability 

issues relating to water. 

Key Resources 

• Groundwater – An important resource for 

direct abstraction for local use by farmers and 

industry, as well as for public supply, and for 

supporting springs, wetlands and providing 

baseflow to rivers. 

Natural Resources 

The Environment Agency works to establish the 

correct balance between abstraction and the 

water environment. The 1990s droughts were 

the worst experienced and put this ‘balance’ to 

the test that resulted in pressure on Fowlmere 

Watercress Beds SSSI in Cambridgeshire. The 

Environment Agency pumped water to maintain 

levels and this was successful in safeguarding the 

habitat. Cambridge Water Company is investigating 

the impact of their borehole abstractions 

and the options to protect the site. 

The Environment Agency is also planning to 

review the water balance calculations. 


• Reservoirs – The region contains several large 

public supply reservoirs and there are also many 

smaller farm storage reservoirs throughout the 

region that can be refilled during the winter 

months to provide secure summer irrigation 

water supplies. 


23


• Surface Water – The principal rivers in the 

region are the Rivers Ouse, Wensum, Gipping, 

Stour, Blackwater, Roding and sub-catchments 

of the Upper Lee and Colne. 

The River Wensum in Norfolk is characteristic 

of the low-lying rivers to be found in the East 

of England. The whole river has now been 

designated as an SSSI for its biodiversity interest. 


• Waste Disposal – The water environment is 

a resource for waste disposal within strict 

regulatory limits. This disposal comes from both 

point source and diffuse source discharges. 

• Renewable Energy – The sea along our coastline 

is a potential renewable energy source in the 

form of wave and tidal power. 



• Abstraction – Over 2,000 million litres of 

water per day are abstracted, either for 

public supplies or directly for industry. Water 

demand is increasing for the region as a 

whole, and average household consumption is 

also increasing. 

• Groundwater – Around two-thirds of the 

region is underlain by useable aquifers, 

notably chalk. The majority of the region’s 

groundwater resources are broadly in 

balance. No further resources are available 

but existing abstractions are not known to 

cause widespread environmental problems. 

There are some limited areas where further 

resources are available and areas where the 

combination of surface and groundwater 

abstraction exceeds sustainable limits. 

• Surface Water – Summer surface water is 

fully committed to meeting existing demand 

with no significant further resources reliably 

available. In most rivers existing abstraction 

does not cause widespread environmental 

problems. There are, however, areas where 

the combination of licensed surface and 

groundwater abstractions does exceed the 

assessed limit. For most of the region there 

is winter water available, at least in principle, 

subject to local appraisal. 

• Large Reservoirs – The main strategic reservoirs 

serving the region are at Grafham Water, 

Ardleigh, Abberton, Hanningfield and Alton. 

• Transfer Scheme – There is an extensive 

network of transfers of varying size and type 

in the region, which are used to transport 

water resources to where they are most 

needed. These include Essex & Suffolk 

Water’s pumped storage scheme based 

on Hanningfield and Abberton reservoirs, 

groundwater to river support schemes, which 

are operated to maintain river flows during 

dry periods (e.g. for the Great Ouse and the 

Stour), and bulk transfers between companies 

(e.g. Anglian Water’s Ruthamford system, 

based on Rutland, Grafham, and Pitsford 

reservoirs, which provides bulk supplies to 

Three Valleys Water and Severn Trent). 

• Water Quality – A major clean-up of 

industrial and sewage discharges combined 

with tighter regulation and enforcement 

has led to an improvement in the quality 

of rivers over recent years. The latest data 

for ‘classified’ rivers in the region show that 

93.9% are of good to fair chemical quality 

and 99.0% are of good to fair biological 

quality. The discharge of effluent into 

the region’s coastal waters has also been 

reduced to an all time low, resulting in 100% 

compliance with the mandatory water quality 

standards of the Bathing Water Directive. 

There are a number of Eutrophic Sensitive 

Areas designated in the region. 

• Nitrate Vulnerable Zones (NVZ) – Nitrates 

and phosphates from agricultural land can 

cause pollution and affect important wildlife 

sites. Where surface waters or groundwaters 

exceed, or are at risk of exceeding, the 50mg/l 

limit then an NVZ is designated. In an NVZ, 

farmers are required to follow measures 

designed to provide a general level of 

protection against nitrate pollution of surface 

waters and groundwater, including drinking 

water sources. 70% of the region is now 

designated an NVZ. 

• Renewable Energy – There are no wave power 

centres in the East of England but due to the 

region’s long coastline it provides a potential 

renewable energy source which could lead to 

new technology and industry being developed. 

4.2 AIR AND CLIMATE 

Introduction 


The air around us is a common resource that 

can be affected profoundly by human activity. 

Protecting this resource from pollution is essential 

to maintaining human health, biodiversity and our 

quality of life. The major societal driving forces 

determining human emissions to the atmosphere 

are energy production and use, industrial activity, 

transport and urban development. 

Air forms part of the atmosphere of the planet, 

which is essential in regulating the Earth’s climate, 

and in protecting life from the harmful effects of 

radiation from the Sun’s rays. 


• Life on Earth - Clean air is fundamental to the 

existence of all plant and animal life on Earth. 

Air helps in the recycling of essential elements 

including water, carbon and nitrogen. 

• Waste Disposal – We use the air for the disposal 

of our waste from two main sources, transport 

and industry, but we also use the air for dispersal 

of a range of other pollutants across the region 

and further afield. The main forms of regional 

air pollution are ground-level ozone, fine 

particles, acidification by sulphur and nitrogen 

and eutrophication by nitrogen. 


25


One of the major sources of air pollution in the 

region is emissions from traffic. The number of 

vehicles on roads such as the M1 continue to 

grow year-on-year. Although improvements to 

technology have led to cleaner fuels and more 

efficient engines, pollution remains a problem. 

© Countryside Agency/David Woodfall 

• Waste Disposal to the Wider Atmosphere – The 

major human effects on the global atmosphere 

are depletion of the stratospheric ozone layer, 

and the build-up of greenhouse gases which 

include carbon dioxide, methane, nitrous 

oxide, hydrofluorocarbons, perfluorocarbons 

and sulphur hexafluoride. Together these are 

believed to be contributing to climate change. 

• Renewable Energy – The air offers renewable 

sources of energy in the form of wind power. 



Air quality is generally good across the whole 

region. Levels of most pollutants are low: 

• Air Quality - Four local authorities have 

declared Air Quality Management Areas across 

the region: St Edmundsbury for nitrogen 

dioxide from traffic; King’s Lynn and West 

Norfolk for particles from around the quayside; 

Colchester for nitrogen dioxide from traffic; 

and Fenland for sulphur dioxide and particles. 

• Ground Level Ozone – This can be an 

occasional problem in the summer, which will 

continue for some years. Ozone pollution 

is created when nitrogen oxides and 

hydrocarbons (commonly associated with the 

burning of fossil fuels) react with sunlight. 

This may lead to lung and respiratory disorders 

for people susceptible to such conditions. 

• Particles - Levels of particulates can be a 

problem when polluted air is blown across 

the region, which can affect health through 

respiratory diseases such as asthma, and the 

fabric of historic buildings through soiling 

and acid deposition. 

• Nitrogen Dioxide – This is the biggest 

contributor to air pollution and is produced 

from the burning of fossil fuel such as car 

emissions. The highest levels are recorded in 

built-up areas along roads. 

• Sulphur Dioxide - Emissions are dominated 

by a few large sites and although none of 

these are located within the region, a number 

of smaller sources are present. 

• Ammonia – The primary sources of ammonia 

are agricultural. The large number of pig and 

poultry farms and arable farming in the region 

are the main contributors resulting in high 

concentrations in some parts of the region. 

• Greenhouse Gas – No consistent set of 

greenhouse gas emission estimates currently 

exists for the English regions due to the 

considerable problems with allocating some 

sources of emissions (particularly from energy 

generation), and the lack of availability of 

actual energy consumption data on a regional 

basis. Nonetheless, the East of England 

is likely to be a significant contributor of 

greenhouse gas emissions in common with 

most developed countries and regions. 

• Renewable Energy – There is great potential 

for the production of energy from wind 

power along the region’s coastal areas. Five 

of the eighteen offshore wind development 

consortia that have been given permission to 

proceed to the next stages of development 

are on the coastal area between the Humber 

and the Thames Estuary. The wind turbine at 

Swaffham can produce up to 1.5 megawatts 

of electricity, which on average is enough to 

provide electricity for around 3,000 people 

- one third of Swaffham’s population - and 

will save the emission of over 3,000 tonnes of 

carbon dioxide, 37 tonnes of sulphur dioxide 

and 11 tonnes of nitrogen oxides. 

Although free range pig farms have many 

advantages over intensively reared pigs, particularly 

for animal welfare, they are a significant source of 

ammonia pollution, and landscape impacts. 


4.3 LAND 

Introduction 


The land in the East of England has a diverse mix 

of geology and soils. Our economy, our homes, our 

food, and our essential services are all dependent on 

the use of land and the resources it contains. Most 

of our recreation is land based. The use of the land 

is essential in supporting biodiversity and shaping 

our landscapes. The conservation of the richness 

and variety of the geology and soils of the region 

is affected by how we use the land. Particular 

pressures arise from intensive agriculture and 

industrial processes, and from development as the 

region’s towns and cities grow. 


• Development – Land provides the basic 

resource upon which housing, infrastructure 

and industry is built. 

• Soils – The combination of inorganic particles 

derived by weathering of rocks, and organic 

(largely vegetable) matter provides the essential 

ingredients of soil that together help to retain 

water, resist erosion and recycle important 

nutrients for growing crops and trees. 

• Minerals – The land provides resources such 

as sand and gravel for use as aggregates in 

construction, and other materials such as chalk, 

and brick. 


27


Mineral extraction can have a significant impact 

upon the landscape and on habitats. However, 

former quarries such as Warren Pit in Essex 

can develop considerable wildlife and amenity 

interest, particularly if sensitively restored. 

© English Nature/Chris Gibson 

• Floodplains – These are a natural defence 

against flooding. 

• Waste Disposal – Mineral removal leaves the 

opportunity for waste to be disposed as landfill 

into the holes that remain after their removal, 

although this is no longer considered sustainable. 

• Renewable Energy – The land surface has 

the potential for supplying renewable energy 

through the growth of energy crops and 

capturing solar energy, although the majority 

of energy produced by the region comes from 

offshore oil and gas. 


• Development - There are no major urban 

conurbations in the region, which, historically, 

was not a centre for large-scale 

industrial development. Many of the towns 

and cities have attractive historic centres and 

are desirable places in which to live. There is 

great pressure for new development where 

towns are connected to national and regional 


transport networks. Whilst some of the 

major settlements have previously developed 

land and buildings (brownfield land) available 

for re-use, there is limited space to expand 

many of the other towns within their 

existing boundaries. This has led to pressure 

to build on greenfield sites and Green Belt. 

The average density of new housing in the 

region between 1997-2001 was 22 dwellings 

per hectare, the lowest nationally together 

with the Yorkshire and Humber region. In 

2002, the region did not quite achieve the 

national target of 60% development on 

brownfield land. 

• Soil Quality –The East of England has 58% of 

the country’s Grade 1 and 2 land. However, 

some soils in the region have either too 

little or too much organic matter, which has 

resulted in a drop in soil quality. 

• Soil Erosion – Parts of the region have light 

soils, for example the sands of the Brecks 

and the peats of the Fens, which make them 

susceptible to wind erosion. Some land 

use activities such as the region’s large pig 

farming industry and cropping can also be 

a significant contributor to soil erosion. In 

addition, archaeological deposits below 

exposed soils in the Fens are at risk of damage 

from ploughing. 

• Contaminated Land – There is no reliable 

figure of the extent of land affected by 

contamination, although estimates suggest 

there is more than 300,000 hectares. A new 

contaminated land regime has created an 

improved legislative mechanism to restore 

such land. All local authorities must now 

produce a strategy to identify and assess the 

contaminated land sites in their area, with a 

view to securing their remediation. 

• Minerals – The most important mineral that 

occurs within the region, in terms of volume, 

is sand and gravel, much of which is used 

locally. Other minerals include limestone, 

clay for brick making, chalk for cement and 

agricultural uses, as well as other specialised 

minerals such as fullers earth and silica 

sand. Offshore dredging is a major source 

of aggregates, although these are often 

transported abroad. 

• Flooding - Over 125,000 properties in the 

region are currently estimated to be at risk 

from sea and river flooding, affecting around 

5% of the population. A projected growth 

of over 20,000 households per annum until 

2016, coupled with the effects of climate 

change, could exert even greater pressure on 

flood risk areas. 

• Waste Disposal - Data available from the 

Strategic Waste Management Assessment 

carried out by the Environment Agency 

shows that in the East of England in 1998/99, 

commercial and industrial waste ‘arisings’ 

totalled 6.1 million tonnes. In addition a 

further 7 million tonnes of construction 

and demolition waste were produced in 

the region. Municipal Solid Waste (MSW) 

collected by local authorities, or taken to 

their ‘civic amenity sites’ was 2.9 million 

tonnes, of which approximately 1.4 million 

tonnes was Biodegradable Municipal Waste 

(BMW). Large quantities of agricultural waste 

and significant amounts of hazardous and 

restricted wastes also required treatment or 

disposal. In 1998/99 the majority of waste 

produced in the region was deposited in 

landfill sites. In addition to the 5.4 million 

tonnes of municipal, commercial and 

industrial waste produced in the region 

and deposited in landfill sites, a further 3 

million tonnes was brought into the region 

for disposal, mainly from the London area. 

Most of this also went to landfill, which is of 

limited capacity. Fly tipping, particularly of 

building waste from London, is increasingly 

affecting farmland and communities in the 

south of the region. 


• Renewable Energy – Several contracts have 

been secured, or are being negotiated, by 

companies in the region to use locally grown 

energy crops to establish or supply fuel plants 

in the region and elsewhere. 

During December 2002 and early January 2003 

serious flooding affected the East of England 

following heavy rainfall. The main focus was 

the River Great Ouse where high levels and flows 

affected the entire extent of the river. December 

2002 was a very wet month with double the long 

term average of rainfall being recorded across 

much of the region. Some areas had a fortnight’s 

worth of rain in one day. It was estimated that 

just under 200 properties were flooded in the 

region, out of 180,000 at risk. 

© Environment Agency 


29



5 MEETING THE 

ENVIRONMENTAL 

CHALLENGE 

The previous chapters show that the environment 

of the East of England is rich and diverse, but that 

its overall quality has been reducing over time. The 

environment is naturally dynamic, responding slowly 

to changes in the climate and natural processes such 

as erosion. However, over the last few thousand 

years, human activity has resulted in a much faster 

rate of change than has ever happened before. 

This has been particularly rapid over the last two 

hundred years. The nature of modern lifestyles has 

created a situation where natural processes struggle 

to keep up. 

The principles of sustainable development 

require that we live within the capacity of 

natural systems to cope, and that we hand 

on our environmental heritage, whether 

natural or man-made, to future generations 

in at least as healthy a state as we found it. 

This puts enormous responsibility on us all to be very 

careful in the way that we treat and manage the 

environment. It also means that we all have to face 

up to some serious environmental challenges. This 

chapter sets out what these challenges are likely to 

be as we move towards the year 2021, drawing upon 

the assessment in the previous chapters. 

Meeting the Environmental Challenge 

Environmental Challenges Facing 

the East of England 

• Delivering sustainable patterns and forms of 

development. 

• Meeting the challenges and opportunities of 


• Ensuring environmental sustainability in the 

economy. 

• Enhancing environmental capital. 

• Achieving sustainable lifestyles. 

5.1 DELIVERING SUSTAINABLE PATTERNS 

AND FORMS OF DEVELOPMENT 

Strategic Aims 

SA1: Accommodate population and economic 

growth whilst protecting and enhancing 

the environment. 

SA2: Reduce the need to travel and achieve a switch 

to more sustainable modes of transport. 

SA3: Deliver sustainable design. 

SA1: Accommodate Population and 

Economic Growth whilst Protecting 

and Enhancing the Environment 

Key Issues 

The East of England has one of the fastest growing 

populations and economies in the UK. Whilst 

there are no major urban conurbations, the region 

borders the vast metropolis of London, and rapidly 

expanding Milton Keynes. Many of the towns and 


31


cities have attractive historic centres and a range 

of services and facilities that make them desirable 

places in which to live. Key issues include: 

• Some brownfield sites exist, particularly in the 

larger settlements such as Ipswich and Norwich, 

and in regeneration areas such as the Thames 

Gateway. There is limited space to develop in many 

towns within their existing boundaries, although 

potential urban capacity has not been realised 

in all instances. But there is inevitable pressure 

to build on greenfield sites, especially close to 

economically dynamic towns and cities, such as 

Cambridge and settlements close to London. 

There are significant opportunities to secure 

sustainable development in regeneration 

initiatives in the region. It is important to 

work in partnership to safeguard areas of high 

biodiversity value, including areas of brownfield 

land. In the Thames Gateway, birds such as the 

Black Redstart occur, plus a diverse assemblage 

of insects, including UK Biodiversity Action Plan 

species, such as the Shrill Carder Bee. 

© English Nature/Mike Hammett 


• Weakening links with agriculture and 

competition from large towns and cities and 

out-of-town shopping centres is eroding the 

traditional purpose of market towns. Some 

are becoming tourist centres whilst others 

have attracted new industries, especially where 

they are close to the major centres. Others 

have not been as successful in adapting to 

change. Similarly, traditional coastal resorts are 

struggling to cope with changes in tourism. 

• London’s influence is strong, particularly in 

the southern part of the region. The draft 

London Plan (2002) seeks to achieve a more 

sustainable city that will have less impact on 

its neighbours. But until substantial progress 

is made towards achieving this objective, the 

East of England will have to accommodate 

development that meets some of London’s 

needs as well as its own. In Thames Gateway, 

one of three major growth areas proposed by 

Government that affect the region, the East of 

England is working closely with both London 

and the South East region in planning future 

major development. The other two growth 

areas, Milton Keynes–South Midlands, and the 

London–Stansted-Cambridge corridor, require 

similar co-ordination. 

• The Regional Economic Strategy for the East of 

England sets a course for the economy of the 

region that is driven by growth. This presents 

a considerable challenge to ensure that it takes 

place in a form that is compatible with environmental 

objectives. 

The assessment of the current state of the region’s 

environment clearly shows that the pace and scale 

of growth has led to considerable erosion of the 

quality of the region’s environment that is proving 

hard to halt: 

• Housing development and infrastructure has 

affected the form and character of settlements and 

their landscape setting, and the wider countryside. 

• Development of greenfield and some brownfield 

sites has led to fragmentation and loss of 

habitats and biodiversity. 

• There has been a gradual erosion of the historic 

environment of the region, either through loss 

of features and assets, or through development 

damaging their setting and context. 

• The environmental quality of town centres, in terms 

both of built fabric and vitality, has been eroded by 

some forms of development geared to the car. 

• Considerable pressure is being placed on the 

natural resources of the region to support 

housing and economic growth, most notably on 

water resources. 

• Development has interfered with natural 

processes, such as river catchments and drainage 

systems, resulting in an increased risk of 

flooding to people and property. 

But one of the main reasons for the economic 

success of the region is its environment. People 

find the East of England an attractive place in 

which to live and work. Its natural and historic 

environment attracts investment, and can act as a 

catalyst for regeneration. It is important, therefore, 

that the environment is protected and enhanced for 

economic and social reasons, as well as for its own 

sake and its crucial role in supporting life. So we 

need to plan for more environmentally sustainable 

forms and patterns of development in the future. 

Achieving the Aim 

• Sustainable development is based on need, 

not unconstrained demand, so decisions 

should be made on the basis of a true 

and fair assessment of the contribution of 

development to all aspects of quality of life. 

• Environmental objectives should be integrated 

in decision-making with, and given at least as 

much weight as, economic and social objectives. 


• Development and economic activity should 

be within the capacity of the environment to 

accommodate it, and should make a positive 

contribution to strengthen the character and 

robustness of the environment. 

• Development and economic activity should 

be within the capacity of the environment to 

accommodate it, and should make a positive 

contribution to strengthen the character and 

robustness of the environment. 

• The scale, type and location of development 

and economic activity should support more 

sustainable living and urban renaissance, and 

not put an unsustainable strain on supporting 

natural resources (e.g. water resources, flood 

storage, air quality, land). 

• Local people should be involved in 

understanding and valuing what it is that is 

important about their environment, so that 

this can be reflected in development decisions. 

SA2: Reduce the Need to Travel and Achieve 

a Switch to More Sustainable Modes 

of Transport 

Key Issues 

Our quality of life depends upon effective transport 

for accessing goods, services, facilities, family and 

friends. This applies equally to people living in 

rural as well as urban areas. The East of England 

possesses many advantages in developing a 

sustainable transport system. Most travel is local, 

and the flat, dry nature of the region, together with 

the network of compact historic cities and market 

towns, provide the opportunity for using environmentally 

friendly modes of transport, in particular 

walking and cycling. 


33


Wildlife is having to adapt to an increasingly 

urbanised region. Those that fail to do so risk 

extinction or reduced populations. Others have 

fared better. Kestrels can often be seen hovering 

above road verges in search of prey, as they used 

to do along field margins. 


Despite these advantages continuing growth in 

ownership and use of the car has created demand 

for new roads and improvements to those that 

already exist, which has led to a series of problems: 

• Major roads in the region (e.g. the M1, M11, M25 

and A1(M), A11, A12, and A14) are increasingly 

under strain, and urban congestion is increasing. 

• Population growth in the rural parts of the 

region has been particularly rapid, putting 

pressure on the rural road network, but loss of 

facilities in rural areas has been directly linked 

to the trend of greater car dependency. 

• Local trips, such as the ‘school run’ or the 

‘weekly shop’ are now carried out by car, rather 

than walking or cycling, or having goods 

delivered to the home. 

• Almost without exception the towns and villages 

of the East of England have become associated 

with commuting - some, like Bury St Edmunds, 

are now the focus of in-commuting, but 


most experience out-commuting, particularly 

to London and other major centres such as 

Cambridge, Ipswich and Norwich. 

The East of England is strategically located on 

international shipping and aircraft routes. Gateways 

include ports at Felixstowe (the fourth largest 

container port in Europe), Harwich, Ipswich and 

Tilbury. The region has several international airports, 

which are all experiencing rapid growth, most 

notably at Stansted and Luton, which may increase 

further under Government proposals currently 

undergoing public consultation. 

Without further investment, the rail networks that 

link major towns and cities to London will soon be 

running at full capacity, where this is not already 

happening. East-west rail links are poor. In the 

less accessible areas, transport needs can often 

only be met by infrequent buses. For many a car 

is a necessity. 

The biodiversity of the East of England continues 

to suffer from fragmentation of habitats, and 

urbanisation. At Brampton, a flyover was 

constructed on the A1 that had a major impact 

on Brampton Meadow SSSI. The picture shows 

the flyover under construction in 1990. 


The way in which we currently travel has a wide 

variety of environmental effects. Although road 

and rail corridors can contain important refuges 

for wildlife, too often transport schemes result 

in direct loss, severance and fragmentation of 

habitats. Indirect effects include emissions of a 

wide range of air pollutants, water pollution from 

accidental spillages, de-icing chemicals and run-off, 

disturbance from noise and lighting, and wildlife 

fatalities. Air travel in particular is a considerable 

source of greenhouse gases. Our unsustainable 

travel behaviour has implications for human health. 

Sedentary lifestyles are contributing to increases in 

obesity, coronary heart disease, strokes, and diabetes. 

People in low income groups and the elderly can 

have difficulty in accessing facilities that rely on use 

of the car. 

The trend towards greater mobility, particularly by 

car, is an enormous challenge, especially in rural 

areas. But it is a challenge that the region has 

to address. The first priority must be to reduce 

the need to travel in the first place, and then to 

encourage a switch towards more sustainable modes. 

This will free up space on the strategic road network 

for essential journeys, and will enable people 

travelling by foot, cycle, and bus to move around 

more easily and safely on local road networks. 


• Settlements should be planned to maximise their 

self-sufficiency in terms of services and facilities, 

and act as hubs for their hinterlands, insofar as 

is commensurate with their size and location. 

• Mixed-use developments that make efficient use 

of urban capacity, support vibrant town centres, 

and can be served by public transport systems 

should be pursued, and low density, peripheral 

housing avoided. 

• Support for local economies, including 

local products and local trading, should be 

encouraged to reduce the distance travelled 

from home to work, and from producer to 

customer. 


• Developments that generate a lot of people 

movements (e.g. schools, hospitals, shops, offices), 

and local green space, should where possible be 

located in places where it is easy to access them 

by walking, cycling or public transport. 

• Unsustainable modes of transport, in particular 

travel by car and by plane, should be catered for 

on the basis of need not demand, and appropriate 

demand management measures considered to 

encourage a switch to other modes. 

• Major improvements should be made to the rail 

network, especially to east-west links. 

Sustrans National Cycling Network comprises 

10,000 miles of routes, and passes through the 

East of England. Linked projects are adding 

value to the Network, such as ‘Right Tracks’, in 

Southminster, Essex, which aims to integrate 

cycling with healthy living and the economy, 

by encouraging people to explore their local 

countryside and support local businesses. 

© Countryside Agency/Tony Jedrej 


35


• At the local level, investment should be targeted 

at creating and improving integrated networks 

of walking, cycling and public transport that are 

sensitive to the environment, but which provide a 

real alternative for those who currently use a car. 

• Full and proper use should be made of appraisal 

techniques in assessing transport options, 

such as environmental impact assessment and 

strategic environmental appraisal, with the early 

involvement of statutory and non-statutory 

environmental bodies. 

• Sequential tests for road building should be 

applied so that roads are only built once all other 

alternatives have been examined and ruled out. 

SA3: Deliver Sustainable Design 

Key Issues 

Current building techniques tend to pay more 

attention to constructing development at 

minimal financial, rather than environmental, cost. 

Awareness is increasing of the need to reduce the 

adverse impact of individual developments on the 

environment. There are two main types of environmental 

impact: 

• Impact on, and from the use of, natural 

resources (e.g. energy consumption, use of 

materials in construction and operation, and 

pollution to air, land and water). 

• Impact on environmental character (e.g. through 

the quality of design). 


The Abode development, at New Hall, Harlow is 

part of a new residential neighbourhood close 

to the old town, which aims to provide popular 

housing, at higher densities. Proctor & Matthews, 

architects, have combined contemporary design 

with sensitivity to local materials, colour and 

texture, using thatch, weatherboarding and 

handmade bricks and modern materials. The 

development follows principles set out in the 

New Hall masterplan design code. 

© Proctor & Matthews, Architects 

In order to be sustainable, the region must 

deliver development that is environmentally 

benign. Some of the impacts of development can 

be minimised by guiding the right development 

to the right location, for example by helping to 

reduce traffic movements. However, the design 

of the development itself can reduce environmental 

impacts, and contribute to environmental 

character. Raising standards of design in new 

development of all kinds is a challenge. Nationally, 

this has been taken up by the Commission for 

Architecture and the Built Environment (CABE). 

Masterplanning of major urban sites can assist in 

the achievement of improved urban design. Public 

awareness and commitment to design issues is vital 

- the establishment of an Architecture Centre in 

Cambridge in May 2003 will help to raise awareness 

and involvement among members of the public, as 

well as helping engagement with the professional 

and business community. EEDA is also proposing 

that a Regional Centre of Excellence be set up to 

promote urban renaissance in the region. 

90% of our existing urban fabric will still be with 

us in 30 years’ time. Restoring the environmental 

and historic character of urban environments is 

important to make them attractive places in which 

people wish to live. 


• The region should be a leader in the field of 

sustainable built environments, using the latest 

design and construction techniques to deliver 

buildings and infrastructure that minimise 

impacts on the local and global environment. 

• The region should be committed to 

the achievement of quality in the built 

environment as a whole, ensuring the 

knowledge in local authorities of design 

matters is improved, and that appropriate 

weight is given to design issues by the 

planning system. 

• Development in the form of repair and reuse 

of buildings, as opposed to demolition 

and re-build, should be given greater 

priority, taking into account the embodied 

energy in existing buildings that could be 

wasted through demolition, and the energy 

expended in new construction. 


The early 16 th century grade II* listed maltings 

located within the conservation area of Great 

Dunmow, Essex, were disused and neglected, until 

taken over by a building preservation trust, repaired, 

and converted into a community arts centre. In 

2001 the centre won the Civic Trust Access Award, 

sponsored by English Heritage. The Award is for 

a project that best reconciles the access needs 

of people with disabilities with the conservation 

requirements of a historic site or building. 


• Development should be energy efficient, 

through the use of low embodied energy 

materials, good insulation, passive solar 

energy techniques, and renewable sources. 


37


• Development should conserve water resources, 

through the use of water efficient appliances, 

and reduce the risk of flooding through the 

use of Sustainable Drainage Systems (SUDS). 

• Where possible recycled, low polluting, 

materials should be used in construction, 

preferably those that are local and distinctive 

to the area. 

• New developments should contribute to 

the character of the area within which they 

are located, and in historic contexts, draw 

intelligent inspiration from their surroundings. 

• Development should be adaptable and built 

for long-life, in order to stand the test of time. 

The National Otter Survey for England has 

found that otters have increased in the East of 

England. Good practice guidelines have been 

agreed with Essex and Suffolk County Councils 

in their approach to road bridge maintenance 

and rebuilding where otters are known to exist. 

Maintenance work on an existing bridge included 

the addition of a bolt-on otter ledge, which 

allows safe access for otters underneath the 

bridge at most times. 



• Development should seek to avoid damage 

to the natural and historic environment, and 

where possible deliver improvements overall, 

for example through habitat creation and 

improving access to the countryside, green 

space, and the historic environment. 

• Provision should be made for long-term 

management and maintenance of 

development and associated environmental 

improvements to ensure their sustainability 

over the lifetime of the project. 

5.2 MEETING THE CHALLENGES AND 

OPPORTUNITIES OF CLIMATE 

CHANGE 


SA4: Reduce vulnerability of the region to 


SA5: Promote energy conservation and a switch 

to renewable energy sources. 

SA6: Harness environmental benefits arising from 


SA4: Reduce Vulnerability of the Region to 

Climate Change 

Key Issues 

Climate change is the single most pressing environmental 

challenge facing society. There is a clear 

need for concerted global action to reduce significantly 

emissions of greenhouse gases, to help reduce 

the pace of climate change. There is also a need 

to take account of, and adapt to, the impacts of 


The predictions for climate change generated 

in 2002 by the UK Climate Impact Programme 

(UKCIP02) set out different scenarios for how 

climate is predicted to change up to the 2080s. 

These use the latest models, depending upon the 

extent to which the emissions contributing to 

climate change are managed and controlled. The 

main climate changes predicted for the East of 

England are: 

• Hotter drier summers (between 2 o C and 5 o C 

warmer, and between 30% and 60% drier) and 

milder wetter winters (between 1.5 o C and 3.5 o C 

warmer, and between 10% and 35% wetter). 

• More frequent extreme high temperatures, and 

more frequent extreme winter rainfall. 

• Significant difference in soil moisture content 

(decrease of between 10-50% in summer and 

autumn, and by up to 10% in winter). 

• Increase in the thermal growing season (the 

period by which plants grow as determined by 

temperature) of between 45 and 100 days. 

• A rise in net sea levels of between 22cm 

and 82cm (taking into account that the East 

of England is slowly sinking as a result of 

adjustments to land levels that have been 

occurring since the last Ice Age), and a possible 

increase in sea storm surges. 

The main impacts upon the East of England are 

expected to be: 

• An increase in the risk of both coastal and 

fluvial flooding. 

• More frequent storm events, with potential 

damage to the natural, historic and 

built environment. 


Hatfield Forest, along with other trees and 

woodland in the region, suffered considerable 

damage during the gales of the late 1980s and 

early 1990s. Such storm events are likely to 

increase in frequency and severity as a result of 



• An increase in the demand for water, but 

potentially a decrease in the availability of 

water supply, particularly in the south-eastern 

part of the region. 

• Possible saline intrusion into some of the coastal 

aquifers and freshwater habitats, leading to 

increased pressures on water resources and 

changes in biodiversity. 

• An increase in the growing season for crops and 

trees, but reduced soil moisture and availability 

of water for irrigation. 

• Stress on, and potentially erosion or loss of, 

existing habitats and dependent species, for 

example wetlands along the coast and inland 

watercourses, through both higher temperatures 

and a rise in algal blooms. 

• Damage and loss of archaeological sites from 

erosion of the inter-tidal zone. 


39


• Damage to historic buildings through flooding, 

and possibly loss of some tree species in historic 

parks and gardens as a result of changes in 

temperature and water availability. 

A report ‘Living with Climate Change in the East of 

England’ prepared for the Regional Assembly and the 

Regional Sustainable Development Roundtable (Stage 

1 Interim Report, February 2003) concluded that the 

East of England should aim to work with climate 

change, rather than against it, and reduce risk from 

the potentially adverse impacts of climate change. 

Overall, a precautionary approach must be adopted 

whereby decisions taken now should not constrain or 

reduce the region’s ability to adapt effectively to the 

impacts of climate change in the future. 


• Where possible, sea level rises should be 

allowed to take their natural course (e.g. 

some flood defences in the region have been 

constructed to protect agricultural land as 

well as built development). 

• The need for ‘technical fixes’ to solve climate 

change impacts should be minimised (e.g. 

major investment in water supply schemes 

and flood defences), and natural techniques 

such as managed retreat and tree planting 

investigated and used as appropriate instead. 

• New development should be guided to those 

areas that are not at risk from coastal and 

fluvial flooding, or from storm surges, and to 

locations that are least likely to experience 

subsidence or water supply shortages. 

• Where possible, the loss of habitats should 

be compensated for by creation of similar 

habitats elsewhere in the region, and 

existing habitats and species given the 

conditions where they are able to migrate 

naturally in line with changes brought about 

by climate change. 


The re-alignment scheme at Abbotts Hall, Essex, 

is an innovative approach to solve the problems 

caused by rising sea levels, which result in coastal 

marshes being squeezed out of existence against 

hard sea walls. The three kilometre sea wall will 

be breached in several places allowing the tide 

in and out and encouraging coastal marshes to 

grow behind the sea wall. As well as providing a 

wildlife habitat, the project includes an archaeological 

mitigation strategy to protect some sites 

and record those that would be damaged. 


• The loss of archaeology and other 

irreplaceable historic assets should be 

anticipated and structures or remains recorded 

in advance where damage is unavoidable. 

SA5: Promote Energy Conservation and a 

Switch to Renewable Energy Sources 

Key Issues 

As well as adapting to climate change, the region 

must reduce its contribution to greenhouse gas 

emissions. The main greenhouse gas is carbon 

dioxide (CO 2 ), which is produced principally from 

the burning of fossil fuels. The Energy White Paper 

(February 2003) sets a target for the UK to cut its 

CO 2 emissions by 60% by 2050. The UK has legal 

commitments to reduce greenhouse gas emissions 

by 12.5% of 1990 levels by 2008-2012. Such 

reductions are unlikely to be met without radical 

changes in the way we use and produce energy. 

There are two main solutions: 

• Consuming less energy in total. 

• Switching from carbon-based fuels, mainly oil 

and gas, to renewable sources, such as wind, 

wave, solar and bio-energy. 

The East of England has set itself a target of 

producing 14% of its electricity needs from 

renewable sources by 2010. At present only 2% of 

the nation’s energy comes from renewable sources, 

and in the East of England, only 0.45% of regional 

demand is met this way. The 14% target implies 

that by 2010, the region will: 

• Have reduced its CO 2 emissions by 9% or 5 

million tonnes. 

• Be generating 350MW from around 150 offshore 

wind turbines. 

• Have developed 460MW of onshore wind farms, 

equating to between 400 and 500 wind turbines. 

• Have set aside 139,000 extra hectares to energy 

crops mostly from wood sources, but also from 

ethanol and biodiesel. 

Other potential sources of renewable energy include 

photo-voltaics and solar panels, wave and tidal power. 

It is estimated that 4,400 new jobs could be created 

by the renewables industry in the region by 2010. 


The East of England has good opportunities to 

generate renewable energy. There is already a 

land-based windfarm near the coast at Martham, 

Norfolk, but some of the greatest potential can 

be found offshore. 

© English Nature/Rob Cooke 

The development of renewable energy schemes 

is not without difficulty. In particular, there are 

concerns about the impact that wind turbines 

might have on the valued landscapes and seascapes 

of the region, as well as on historic features (e.g. 

the setting of church spires) and settlements. The 

siting of wind turbines, and other major sources of 

renewable energy generation, will therefore need to 

take into account visual impact, and the effects on 

habitats, species (e.g. birds) and tranquillity. Often 

smaller-scale initiatives, which have an element 

of community ownership, can help to engender 

acceptance of renewable energy schemes. 


• Energy should be conserved by reducing the 

need to travel, and by people switching from 

the car to walking, cycling, and public transport. 

• Building techniques and materials that reduce 

energy consumption should be promoted (see 

‘SA3: Deliver Sustainable Design’). 


41


• The use of low energy appliances, for example 

washing machines, dishwashers, etc., should 

be encouraged. 

• Awareness should be increased of simple, 

practical ways of reducing energy 

consumption, such as turning down 

thermostats, using low energy light bulbs, 

turning off televisions rather than leaving 

them on stand-by, etc. 

• The full potential of renewable energy in 

the region should be pursued, in a way that 

minimises any adverse environmental impacts, 

and delivers social and economic benefits to 

local communities. 

SA6: Harness Environmental Benefits 

Arising from Climate Change 

Key Issues 

Climate change offers not only a major challenge for 

the East of England, but also potential opportunities, 

across the spectrum of environmental, economic 

and social concerns. The region needs to be aware 

of this potential in order to plan to take advantage 

where it can. 

There are huge opportunities for coastal habitat 

creation. Joint long-term planning should be 

promoted to secure integrated approaches to 

coastal management (Integrated Coastal Zone 

Management). This should ensure that there are no 

net losses of important habitats on the coast, whilst 

acknowledging that their locations may change 

(e.g. through Coastal Habitat Management Plans – 

CHaMPS). Where freshwater habitats are threatened, 

it may be impossible or undesirable to protect them. 

In such situations, these habitats should be replaced 

in areas inland that are safe from rising sea levels. 

There is a need to allow natural, dynamic coastal 

processes to operate by avoiding hard sea defences, 

minimising dredging and retaining dredged 

sediment within the system. A holistic approach to 

management of coastal processes must ensure that 


addressing problems in one area does not create 

problems elsewhere. 

Other opportunities include: 

• An increase in the relative attractiveness of the 

East of England for tourism, particularly the 

coast, as the climate gets warmer. 

• A shift to an outdoor lifestyle, with associated 

health benefits through exercise and alleviation 

of stress. 

• The need for more energy efficient industry, 

which could open up possibilities for Research & 

Development, in which the region is particularly 

strong, and also for environmental technologies. 

• The advantages that the East of England has in 

the push for renewable energy due to its existing 

energy infrastructure associated with oil and gas 

and nuclear power, and because of the physical 

attributes that the coast offers for windpower, 

and that high quality agricultural soils offer for 

bio-energy crops. 

• The potential to increase woodland cover in the 

region, which can act as a carbon sink, provide 

a source of renewable fuel, give a cooling effect 

in urban areas, protect soils from erosion, and 

be a sponge in absorbing rainwater and slowly 

releasing it over time thereby reducing flood risk. 


• The East of England should continue to research 

the likely impacts of climate change on the 

region, and the opportunities this will bring in 

environmental, economic and social terms. 

• The region should develop a strategy for 

harnessing the opportunities afforded by 

climate change, including guidance to those 

who have a role in ensuring that these 

benefits are realised. 

• Integrated Coastal Zone Management should 

take into account the effects of climate 

change, including the protection of historic 

assets, and in particular opportunities for 

habitat creation. 

Broadland is under threat of flooding from a 

variety of sources, such as the encroaching sea 

and high river flows, putting homes, agriculture, 

commerce and wildlife at risk. Last year heralded 

the start of a £100 million contract for a Public/ 

Private Partnership Programme to improve 

tidal flood defences and manage flooding. The 

partnership will work to repair, maintain, design 

and improve flood defences in one of the finest 

wetland areas in Britain. 


5.3 ENSURING ENVIRONMENTAL 

SUSTAINABILITY IN THE ECONOMY 


SA7: Improve the environmental awareness, 

skills, and housekeeping of business and 

the workforce. 

SA8: Promote the environmental economy. 


SA9: Deliver more sustainable agriculture. 

SA7: Improve the Environmental 

Awareness, Skills, and Housekeeping 

of Business and the Workforce 

Key Issues 

The economy can have a significant impact on the 

environment, through consumption of natural 

resources, generation of waste and pollution, and 

damage to biodiversity, landscape and the historic 

environment. Commuting, freight transport and 

business trips generate significant amounts of 

traffic. But economic development need not be in 

conflict with the environment. Not only is a high 

quality environment good for business, environmentally 

responsible behaviour is linked with longterm 

regional and individual business competitiveness. 

Good environmental housekeeping can 

help to improve profitability and produce better 

returns on investment. 

Improvements are happening. There is increasing 

recognition in the corporate world that environmental 

and other ethical considerations are as 

relevant to business as they are to other walks of life. 

An increasing number of companies are producing 

annual environmental reports alongside their annual 

accounts, as statements of how they are performing 

environmentally as well as financially. Such 

awareness brings a number of benefits to business: 

• Consumers and other customers are demanding 

higher standards of corporate responsibility, and 

many take into account environmental impact in 

their choice of suppliers and products. 

• Minimising environmental impacts, such as 

waste and pollution, reduce operational running 

costs, and for potentially polluting companies 

the risk of fines. 


43


• Employees tend to respond positively to 

companies that take a responsible attitude to 

the environment (and their health and welfare), 

which can bring increases in productivity and 

competitiveness. 

Some businesses are already taking steps to meet 

this challenge. For example, many have introduced 

Environmental Management Systems, under either 

the international standard ISO14001, the EC Eco 

Management and Auditing scheme or British 

Standard BS7750. Although there are some 

differences between them, particularly in the level 

of detail of assessment required, they all have a role 

to play in improving environmental performance. 

Critical to all of them is communication with staff, 

and the commitment of management. 


• The East of England should encourage 

and support continual improvements in 

environmental performance of the economy, 

and demonstrate the links with economic 

performance. 

• Awareness and understanding of the 

importance of environmental improvements 

in small, medium and large businesses 

should be increased, and training provided 

to improve the skills of management and the 

workforce to deal with environmental aspects 

of their operations. 

• Businesses should be encouraged to introduce 

Green Travel Plans to reduce commuting and 

unnecessary road-based journeys. 

• Best practice, including the use of accreditation 

schemes, such as Environmental 

Management Systems, should be encouraged 

throughout the region. 


SA8: Promote the Environmental Economy 

Key Issues 

The environmental economy is a major player in 

the East of England, supporting in the range of 

108,000-180,000 jobs, and between 6% and 9% of 

regional employment. It embraces a wide-ranging 

group of activities that depend upon the region’s 

environmental resources. Some are inherently 

sustainable, because they are focused on the 

management and improvement of the environment. 

Others are associated more with the exploitation 

of environmental resources than their sustainable 

management. The report ‘Environmental 

Prosperity: Business and the Environment in the 

East of England’ (SQW and Land Use Consultants, 

2001), analysed the constituent parts of the 

environmental economy and the contribution it 

makes to the region: 

The Lodge, near Sandy in Bedfordshire, has been 

the RSPB’s UK Headquarters since 1961. It is 

surrounded by woodland and heathland and has 

formal gardens, which are peat-free and run by 

organic methods. The Lodge was built in 1870 

for Arthur Wellesley Peel, son of Robert Peel, and 

designed by Henry Clutton. 

© RSPB 

• Conserving the built and natural environment 

– the East of England accounts for more jobs 

concerned with conserving the built and 

natural environment than any other English 

region, with a number of organisations, such 

as the Forestry Commission, RSPB and English 

Nature, having their national headquarters 

here. The environmental protection sector 

can help underpin vulnerable rural economies 

where economic development options are 

limited. Skills shortages were identified in the 

region in particular areas, such as craft skills for 

traditional repair. 

Pollarding is a traditional form of woodland 

management where the upper limbs of trees are 

removed every 20 years or so, while the trunk is 

retained. Pollarded trees, such as these found 

at Monks Wood National Nature Reserve, can 

live for hundreds of years and provide a vital 

habitat for many rare invertebrates. Epping 

Forest and Hatfield Forest are also fine examples 

of ancient pollarded woodlands. The skills 

needed for traditional woodland management are 

increasingly difficult to find. 

© English Nature/Chris Gardiner 


• Waste management – the move towards the 

reduction, re-use and recycling of waste is 

beginning to create new opportunities for jobs 

in the region. 

• Water management – the Environment Agency 

estimates that the rural economy benefits 

from more than £500 million of expenditure 

each year on boating, angling and other waterbased 

recreation. 

A number of conservation and recreation 

activities have been introduced to maximise the 

enjoyment and appreciation of the wildlife and 

cultural heritage of the River Lark between Barton 

Mills and Mildenhall. Enhancements include the 

creation of wetland habitat, improvements to 

riverside access, and the installation of a viewing 

platform. Six angling platforms suitable for 

use by disabled anglers were also built. Future 

projects include interpretation panels, a ‘riverside 

walk’ leaflet and an education pack. 


• The primary sector – the area of woodland in 

the region is increasing through initiatives such 

as Thames Chase, Watling Chase, and Marston 

Vale Community Forests, and sound woodland 

management is being promoted by organisations 

such as the Forestry Commission and Woodland 

Trust. The environmental performance of 

the minerals industry is improving and some 

important new habitats and amenity sites have 

been created from restored extraction sites. 


45


• Environmental consultancies – around two-thirds 

of regional environmental consultancy firms have 

their head office in the East of England. 

Other contributors to the environmental economy, 

dealt with elsewhere in this Strategy, include 

renewable energy, and agriculture. 

The Forest of Marston Vale is transforming an area 

of former brick pits to the south of Bedford into 

an attractive countryside supporting wildlife and 

offering a variety of recreational opportunities. 

Since 1991 this multi-agency partnership has 

created over 300 hectares of new woodland planting, 

brought another 300 hectares of existing woodland 

into sustainable management, and developed new 

pedestrian, cycle & horse trails. The Forest Centre 

and Millennium Country Park incorporate environmentally 

sound building technologies. The project is 

making a major contribution to the quality of life of 

people who live and work in and around the area. 



• The region should continue to recognise 

and enhance the potential of the environmental 

economy, particularly in its economic 

development strategies. 


• The East of England should seek to become a 

region of excellence in environmental industries, 

both within the UK and internationally. 

• Those parts of the environmental economy that 

are not as sustainable as they might be, must 

receive the advice and encouragement they 

need to make a full and positive contribution to 

the environmental economy in the future. 

SA9: Deliver more Sustainable Agriculture 

Key Issues 

Agriculture is a significant industry in the East of 

England, and a key component of the environmental 

economy. The predominantly low-lying topography 

of the region, combined with its climate and fertile 

soils, such as the peats and silts of the Fens, means 

that the East of England is well suited to agriculture. 

For millennia, agriculture has been the main force 

in moulding the region’s countryside, and was vital 

in underpinning its prosperity. Until relatively 

recently, the resulting landscapes have been capable 

of sustaining a diversity of wildlife, natural features, 

historic landscapes and buildings, and distinctive 

local character. Whilst agriculture (with forestry and 

fishing) accounted for only 1.7% of regional GDP 

in 2001, it remains central to the economies and 

character of rural communities. 

Key issues include: 

• Encouraged by agricultural policies, economic 

pressures (e.g. the influence of supermarkets) 

and technological advances, the intensification 

and specialisation of farming methods 

has led to a serious reduction in the range 

and abundance of habitats and species, and 

widespread damage to archaeological sites and 

historic landscape features. 

The RSPB/English Nature Stone Curlew protection 

project has worked successfully with landowners 

to ensure that the population is not affected by 

agricultural operations and continues to expand. 

© RSPB 

• The demand for water for spray irrigation, 

combined with excess use of nutrients and 

the damaging effects of sediment in run-off, 

has impacted particularly upon wetland sites, 

including fens and reedbeds. Farmland birds, 

mammals and arable plants have also seen a 

decline. Drainage and water abstraction can 

result in the loss of wetland organic archaeological 

remains. 

• Whilst traditional agricultural practices 

continue to support important habitats and 

landscapes, there are significant opportunities 

for agriculture as a whole to contribute much 

more positively to the region’s environment. 

There is mounting evidence that consumers are 

wishing to buy high quality wholesome food, 

with organic products in particular increasing 

in market share. Farmers markets selling local 

produce are becoming increasingly popular. 

Awareness is increasing amongst farmers, 

commercial customers and individual consumers 

of the role that sound management has to play 

in safeguarding the environment. 



• The contribution that sustainable agricultural 

land management can play in creating 

distinctive landscapes and wildlife habitats, in 

supporting the wider economy, and promoting 

quality of life should be properly recognised. 

• The main influences on agricultural practice, 

particularly the major supermarkets and 

institutional landowners, should be made 

aware of, and take responsibility for, the 

effects that unsustainable agricultural 

practices have on the environment. 

• Farming practices should be adopted that 

embrace nature conservation priorities set 

out in Biodiversity Action Plans, across the 

wider countryside. 

The Norfolk Arable Land Management Initiative 

is bringing farmers and local people together 

to find solutions to some of the issues currently 

facing intensive arable farming. The aim is to 

promote more environmentally sustainable use 

of farmland whilst boosting farm incomes and 

meeting the social and economic needs of local 

people. NALMI is working with farmers to carry 

out up to 70 whole farm plans that will help to 

identify those with potential to trial these ideas. 



47


In 2003 there were 50 farmers markets in the East 

of England region, with Wymondham Farmers 

Market winning one of the 2003 Eastern Daily 

Press Food Awards. Stallholders are generally 

fairly local, reducing the pollution involved in 

transportation. A wide variety of foods are on 

offer such as meat, fruit, bread, cheese, and 

fudge, produced both organically and by conventional 

production methods. The markets provide 

an opportunity for customers and the food 

producers to interact, where topics such as animal 

welfare and land management are discussed. This 

proves a powerful way of promoting sustainability 

principles and healthy eating. 

© Countryside Agency/David Burton 


• Awareness of the existence and value of the 

historic environment in farmed areas should be 

improved, as must management measures, for 

example through agri-environment schemes, 

to prevent unnecessary damage or loss. 

• Environmental management standards should 

be raised on farms, including the use of 

pesticides and fertilisers, conservation of soils 

and organic matter, and water supplies. 

• Encouragement should be given to local 

products, by supporting local markets, 

and by exploring new crops of local value, 

such as bio-energy crops, supported by 

Government fiscal incentives. 

• The role of trees and woodland in a 

sustainable and diverse agricultural sector 

should be recognised. 

5.4 ENHANCING ENVIRONMENTAL 

CAPITAL 


SA10: Maintain and strengthen landscape and 

townscape character. 

SA11: Enhance biodiversity. 

SA12: Conserve and enhance the historic 

environment. 

SA10: Maintain and Strengthen Landscape 

and Townscape Character 

Key Issues 

The environmental character of the East of England 

is reflected in its landscapes and townscapes. 

Local distinctiveness in landscape and townscape 

character is an important element in the quality 

of life of residents and a vibrant economy. 

Locations that are scenically beautiful, towns with 

attractive historic centres, and places with a clean 

environment, are more appealing to companies and 

their employees, and have a beneficial impact on 

business image. Many town centre enhancement 

schemes are predicated on the principle that the 

repair of physical fabric, including historic and key 

landmark buildings, acts as a catalyst to business 

confidence and regeneration. A high quality 

environment, which helps to define the character 

of the region, is therefore crucial both to nurturing 

existing business and attracting inward investment. 

Environmental character also underpins the 

tourism sector, which is a major component of 

the regional economy. In 1997, a total of 16.5 

million visitor trips contributed £3.4 billion to the 

regional economy. Visitors to the countryside are 

clearly attracted by high environmental quality, for 

instance, bird watching, walking and visits to nature 

reserves. Historic cities, market towns and country 

houses are popular attractions in the region. 

Key issues include: 


• The environmental character of the East 

of England is under pressure from a range 

of sources. Development and associated 

infrastructure is impacting on the form 

and distinctiveness of settlements and their 

landscape setting. Standard building designs 

are eroding local distinctiveness. Rising traffic 

volumes are leading to a loss of tranquillity. 

• In the countryside, demand for outdoor leisure 

is leading to changes in land uses and increases 

in associated facilities. Telecommunications 

infrastructure and potentially wind turbines are 

further changing the character of the region’s 

landscapes. Agricultural intensification has led 

to a loss of field features, such as hedgerows and 

trees and historic interest. 

• Local services, shops and pubs in many villages 

have closed due to commercial demands and 

increased competition, although many need to 

accommodate some housing and employment 

development to ensure their continuing vitality. 

• The interface between town and country is often 

marred by insensitive development, and by poorly 

managed landholdings that are run-down in the 

hope of securing permission for development. 

• The continuing pressure for development on 

greenfield land, including Green Belt, and also on 

those towns and villages beyond the Green Belt, 

can fundamentally affect the character of the 

landscapes and settlements of the region, and 

may also lead to unsustainable travel patterns. 

The overall effect has been an increasing urban 

influence, particularly in the south of the region, 

and a loss of distinctive rural character and 

landscapes. Whilst the environmental character 

of the region will always be in an evolving state, 

greater recognition is needed of the importance 

of positive change, so that development and land 

management strengthens the character of the East 

of England, rather than dilutes it. 


49



• Landscape and townscape change should 

be evaluated and managed within the wider 

context of sustainable development. 

• Designated landscapes and townscapes 

should be protected and managed according 

to their national or local importance, with 

stakeholders fully engaged in their protection 

and management, and adequate investment 

made in securing the social, economic and 

environmental benefits of these areas. 

• A strategic approach should be applied 

to planning and managing change in the 

countryside, underpinned by landscape 

character assessment, and historic landscape 

characterisation, backed up by area based 

strategies that set long term goals and target 

resources effectively, and identify indicators 

to monitor change and inform future actions. 

• People’s awareness and understanding of the 

value of landscape and townscape character 

should be improved, and encouragement 

given to foster pride in their settlements and 

countryside. 

• More opportunities for people to access, enjoy 

and celebrate their local environments should be 

pursued, particularly close to where people live. 

• The fundamental objectives of Green Belt 

policy should continue to be supported and 

pursued in the region. 

• Development beyond the Green Belt should 

be consistent with sustainability objectives, 

including the protection and enhancement 

of the wider countryside and settlement 

character, and reducing the need to travel. 


The Fakenham Townscape Enhancement 

Partnership was formed in the 1990s to tackle the 

effects of economic decline in the market town. 

A major project was to restore the 1855 Corn 

Exchange for use as a three-screen cinema. An 

Arts Lottery Fund grant was used for public realm 

enhancement, to commission artist-designed 

street furniture and paving surfaces. The results 

have won a number of awards, including one 

from the British Council of Shopping Centres. 


SA11: Enhance biodiversity 

Key Issues 

Different habitats are influenced by different factors 

and to varying degrees: 

• Chalk and lowland grassland, heath and arable 

habitats by agricultural practices. 

• Freshwater habitats by water quality and water 

resources management. 

• Bog, fen and swamp habitats by the need for 

active management, agricultural activity, water 

quality and water resources management. 

• Woodland habitats by impacts of grazing 

animals, particularly deer, and the need for 

active management. 

• Maritime habitats by coastal management 

and sea-level rise, and offshore by pollution, 

maritime dredging, and over-fishing. 

There is a need to protect and actively manage 

wildlife sites to sustain their wildlife interest. There 

is also a need to reverse earlier habitat fragmentation 

by restoring and re-creating habitats to 

ensure long-term survival of communities and 

species. The Fens offer the single largest area of 

potential for wetland creation in the UK. Similarly, 

the coast presents a greater opportunity for the 

creation of mudflat and saltmarsh than anywhere 

else in the UK - 40% (13,000 hectares) of the 

potential sites are within the East of England. 


The RSPB, working closely with the Environment 

Agency, is delivering one of the UK’s most 

ambitious large scale habitat re-creation projects 

at Lakenheath. In turning carrot fields to 170 

hectares of wetland, including meres, reed-fringed 

channels and wet grassland, the RSPB has already 

planted more than a quarter of a million reeds 

and created 20 km of channels and pools, Wildlife 

has responded quickly. The number of reed 

warblers increased from just four pairs in 1996 to 

250 pairs in 2001. The RSPB expects that bearded 

tits, marsh harriers and bitterns will soon follow. 

The new reedbed represents more than 10% of the 

UK Government’s biodiversity action plan target 

for new reedbed creation by 2010. 

© RSPB/M.Page 

Reversal of fragmentation requires action over 

the long-term, but mechanisms like the Rural 

Development Plan, associated agri-environment 

schemes, English Nature’s Wildlife Enhancement 

Scheme, lottery funds and landfill tax money 

provide significant current opportunities to restore 

landscapes to ensure sustainable habitats and 

species populations. 

There is a need to increase the positive, and reduce 

the negative, impacts of agricultural systems and 

practices on wildlife, not only in terms of direct 

habitat management but also indirect effects such 

as nutrient run-off and agro-chemical dispersion. 

Habitats need to be recreated on former agricultural 

land, and buffers created for sensitive sites. 


51


There is a need to ensure that water quality and 

quantity is sufficient to sustain the wildlife interest 

of the many water dependent sites. Maintaining 

freshwater systems without salt-water incursions 

will be a challenge given sea-level rise. There is also 

a need to improve the fisheries environment, with 

habitat enhancement a priority. There are particular 

concerns associated with transferring water of 

different qualities from one catchment to another. 

This can lead to the movement of alien species and 

diseases between different river habitats, changing 

their natural ecology and character. The reduction 

in the quantity of water in the donor catchment 

could also lead to adverse effects on biodiversity. 

Urban habitats are strongly influenced by planning 

and economic development, and management 

for recreation. Many are vulnerable to new 

development, particularly given the Government’s 

‘brownfield first’ approach to new development. 

Those especially under threat are wastelands, 

backland gardens, allotments, and decommissioned 

institutional and utility land, such as hospital 

grounds and railway sidings. Some of these sites 

have nature conservation interest or important 

ecological functions, and development may not 

always be the most sustainable approach. The 

fringes of our urban areas are often under intense 

pressure, yet these are the very areas that offer the 

greatest number of people contact with nature. 


The Hanson-RSPB wetland project is a visionary 

partnership between industry and nature conservation 

to create the 700-hectare Ouse Fen Nature 

Reserve at Hanson’s Needingworth quarry, near 

Cambridge, over the next 30 years. By restoring 

the lost wetland heritage of the Fens it will also 

provide a valuable place for people to enjoy 

wildlife and the countryside. Hanson will donate 

the entire site to the RSPB, progressively handing 

over small parcels of land as sand and gravel 

quarrying is completed and reed beds planted. This 

exciting and far-sighted project will create Britain’s 

biggest reedbed and will become one of the 

most important wetlands for wildlife in southern 

Britain, with the potential to double the current UK 

population of bittern from 30 to 60 pairs. 

© Hanson 

The declaration of Local Nature Reserves (LNRs) 

by urban local authorities is a means of providing 

quality natural spaces for people. English Nature’s 

Wildspace! scheme aims to enhance existing LNRs 

and encourage the declaration of new ones, particularly 

in areas of high deprivation. A number of 

other organisations also administer schemes, aimed 

at directing resources to enable communities to 

create and enhance their local environment. 

Rides are an important habitat within woodland, 

where the extra light reaching the woodland floor 

allows a variety of different plants and butterflies 

to flourish. These shrub zones provide a good 

habitat for nesting birds and invertebrates. Today, 

modern machinery is used to replicate traditional 

management techniques. 


© English Nature/Chris Gardener 

• Strong protection of nationally and internationally 

important wildlife sites should 

be provided by the land use planning 

system, and safeguards improved for locally 

important habitats such as County Wildlife 

Sites, ancient woodland, and other nondesignated 

sites, which help to support the 

overall wildlife interest of the region. 

• Access to, and understanding of, local 

greenspace should be improved, and the role 

of the voluntary sector in managing both our 

best and local sites promoted. 

• Both small and large-scale initiatives should 

be encouraged that enhance biodiversity 

whilst providing employment, recreational 

opportunities, and economic returns. 


• Areas for major habitat creation initiatives 

should be selected, involving a wide range of 

partners with access to funding sources, creating 

economic, environmental and social benefits. 

• More extensive farming methods should 

be supported, agri-environment schemes 

targeted to maximise the value of the rare 

and special farmland habitats and species, 

and good agricultural practice and examples 

of shared economic and wildlife successes 

promoted and disseminated. 

• Water resources and water quality should 

be sufficient to sustain wildlife interest, and 

any transfer of raw or treated water to meet 

particular needs and demands should take 

into account the environmental effects. 

• Brownfield sites that support important 

biodiversity, including nationally important 

invertebrate fauna, should be considered for 

stronger protection from development, if 

satisfactory mitigation measures are not possible. 

SA12: Conserve and Enhance the Historic 

Environment 

Key Issues 

The historic environment of the region is under 

continuing pressure from development, from 

economic and societal change, and also from a lack 

of understanding and awareness: 

• Growth on the edge of urban areas has 

diminished the functions of traditional town 

centres, and there is a need to re-establish or find 

new roles for market towns and coastal resorts. 

• Agricultural buildings are threatened from 

changing farming methods, sometimes leading 

to dereliction but also unsuitable conversion. 


53


Traditional barns can easily fall into disrepair when 

they are no longer used as a part of traditional 

farming practices. At Waxham Great Barn, Norfolk, 

some repairs have been completed and a project 

to provide visitor facilities is about to begin so the 

full potential of the building as a tourist attraction 

and exhibition centre can be realised. Carters 

building firm will use this project to train craftspeople 

in traditional construction skills. 

© Norfolk County Council 

• Many of the region’s historic churches are 

facing redundancy as church-going continues 

to decline. 

• Tourism has a major role to play in supporting 

the historic environment, but insensitive tourism 

can lead to erosion of assets. 

• Coastal and marine archaeology, and other 

historic structures, are being damaged by the 

natural forces of erosion, coastal defence works 

and infrastructure development. 

• Modern farming practices are eroding historic 

landscapes and archaeological sites. 

The urban renaissance agenda presents both a 

challenge and an opportunity. Accommodating 

development within urban areas can help enhance 

the historic environment through re-use of historic 

buildings, support for traditional town centres, 

and a move away from car dependency. Historic 

settlements provide a template for high density, 


high quality, urban form. But to achieve successful 

higher density in new housing, design standards 

must be raised. Account must also be taken of 

the historic grain of settlements and underlying 

archaeology, including any special interest of 

brownfield sites. 

Small scale changes represent a significant and 

insidious threat to the quality of the historic 

environment. ‘Modernisation’ of buildings through 

the replacement of windows and other features 

is a major cause of erosion of historic character. 

The loss of traditional building skills has led to 

some examples of poor workmanship in repair of 

historic buildings and use of inappropriate building 

materials. During the last 25 years or so many 

smaller building firms have been absorbed by larger 

ones. Lack of in-house training in larger firms has 

meant that as older craftsmen have retired, their 

trade knowledge has tened to retire with them. 

Sources of locally distinctive building materials 

have become increasingly limited, constraining 

the use of traditional materials either for repair of 

traditional buildings, or in new development. The 

main challenge is to heighten public awareness of the 

range and significance of different materials to raise 

expectations and hence demand for their production 

and use. Abandoned sites of small scale building 

materials production are often rich havens for wildlife 

and the greatest sensitivity is needed to balance the 

conflict between wildlife protection and the needs of 

local distinctiveness in the built environment. 

Potentially positive trends include a move towards 

less intensive agriculture, which may allow land 

management regimes more appropriate to conservation 

of archaeological remains. Increased use of 

IT may allow scope for remote working and thus 

greater choice in location of homes/businesses 

- in the past remoteness has been an obstacle 

to ensuring continued use of historic buildings, 

whether in market towns, or in the countryside. 


• Our understanding and analysis of the historic 

environment should be improved through 

conservation area appraisals, conservation 

plans for major historic buildings, urban 

capacity studies that take account of the 

historic environment, historic landscape 

characterisation, and a systematic survey of 

below ground archaeological resources in both 

rural and urban areas, to allow more effective 

management and protection of our history. 

• Settlement character should be looked at in a 

holistic way, which means ensuring that new 

development fits the grain and characteristics 

of historic towns and landscapes. 

• Historic buildings should be repaired and where 

appropriate re-used, and their potential to act 

as a catalyst for regeneration fully exploited. 

Halesworth, a market town in Suffolk, has benefited 

from a programme of regeneration funding since 

1999, through an English Heritage grant scheme. 

This focussed on shop fronts and the refurbishment 

and expansion of premises including an organic 

food shop and an Internet café. Part of the 

redundant Old Maltings building was renovated for 

commercial use, whilst the larger part received a 

package of funds for conversion into an arts centre. 



• Use should be made of local traditional 

skills and knowledge of local traditional 

repair techniques, and training in these skills 

introduced into the NVQ curriculum, supported 

by a Centre of Vocational Excellence. 

• Grant schemes should actively encourage the 

use of craft and building skills, and locally 

derived materials within the context of new 

development, while fiscal incentives should 

be used to encourage building firms to train 

craftsmen, and provide apprenticeships, in the 

use of traditional materials and skills. 

• Better maintenance of historic buildings 

should be promoted to prevent buildings 

becoming ‘at risk’, supported by guidance 

to owners and those involved in the 

marketing of historic properties (e.g. estate 

agents), and a tax system which encourages 

maintenance and repair. 

• Protection of below ground archaeology 

should be improved beyond scheduled sites 

and voluntary agreements to control damage 

from ploughing. 

• The integrity of water dependent archaeological 

sites within the region should be 

maintained and restored where feasible, and 

Integrated Coastal Zone Management and 

Shoreline Management Plans should ensure 

protection of historic assets. 

• The economic benefits of tourism should 

be used to secure repair and protection 

of historic environment assets, and the 

appropriate management of tourist pressure. 


55


5.5 ACHIEVING SUSTAINABLE LIFESTYLES 


SA13: Reduce the region’s global environmental 

impact. 

SA14: Increase understanding and ownership of 

environmental issues. 

SA13: Reduce the Region’s Global 

Environmental Impact 

Key Issues 

The wealthiest countries in the World tend to have a 

disproportionate impact on the global environment. 

They consume more resources and generate more 

pollution and waste than the poorest countries. This 

was recognised by the World Summit on Sustainable 

Development, held in Johannesburg in 2002, which 

highlighted the linkages between the environment, 

economic progress and the eradication of poverty. 

Addressing these issues means following the slogan 

of sustainable development - ‘think global, act local’. 

The mission of this Regional Environment Strategy 

is to place the environment firmly within the family 

of regional strategies now being developed in our 

region. However, the East of England exists within 

an international context, and it should acknowledge 

its part in the global linkages that were confirmed, 

and celebrated, at the Johannesburg Summit. 

This Strategy has already highlighted why it is 

important for the East of England to play its part in 

facing up to perhaps the biggest challenge facing 

the planet – the threat of climate change. But there 

are other issues that also have a global environmental 

dimension, which the region must address. 

One of the most important of these is waste. 

Waste results from inefficient production processes, 

low durability of goods and unsustainable 

consumption patterns. Managing waste properly 

is a key requirement of sustainable development. 


There are strong arguments to suggest that the 

region’s current level of resource consumption and 

waste production is not sustainable. 

In many cases the true costs to the environment 

of certain waste management practices are not 

borne by those who produce or dispose of the 

waste. Damage to the environment is often a 

hidden cost that is not usually included when the 

economics of various waste management options 

are taken into account. The inefficient use of raw 

materials not only produces waste and pollution, it 

also represents a loss of productivity and potential 

profit. Without proper controls waste can lead 

to disease spread by vermin, health effects from 

hazardous waste, fire, explosions, an increase of 

global warming resulting from methane produced 

by decomposing organic wastes, and pollution of 

surface and ground waters. 

The construction industry accounts for 70 million 

tonnes of waste per year, of which 13 million 

tonnes are unused materials. The East of England 

construction company, French Kier, has set up an 

Environmental Performance Improvement Club 

to raise awareness of its staff and supply chain 

partners and to improve their environmental 

performance. Such companies have reported 

cost savings through improved efficiencies, better 

compliance with legislation, and raised staff 

interest in environmental issues. 


The increasing amount of waste production and 

the predominance of landfill represent a significant 

waste of non-renewable resources. The East of 

England must become more self-sufficient, and 

reduce the amount of waste produced, re-use waste 

wherever it can, and promote the development 

of recycling and recovery activities. The East of 

England Regional Waste Management Strategy sets 

out a series of objectives for the region to achieve 

this, backed up by some tough recovery targets, 

which present a major challenge for local authorities 

and for regional bodies. The targets set by the 

Regional Waste Management Strategy are: 

• Municipal Waste – recovery of 40% at 2005, 

50% at 2010 and 70% at 2015. 

• Commercial & Industrial Waste – recovery of 

66% at 2005, and 75% at 2015. 

If the East of England achieves these targets, 

then it will have taken a big step towards a more 

sustainable use of the planet’s resources. 

There are many other global responsibilities that 

the East of England must address. The aim should 

be to reduce the impact (sometimes known as 

the ‘ecological’ or ‘environmental footprint’) of 

the region on the world’s environment. Examples 

include: 

• Reducing the use of tropical hardwoods in 

construction and furnishings. 

• Reducing the import of food products and other 

goods produced using unsustainable practices in 

their place of source. 

• Halting the illegal trade in endangered species 

from around the world, which often find their 

entry point into the UK through the East of 

England’s ports and airports. 

• Reducing pollution to the water environment, 

which can affect not only the region’s rivers and 

coasts, but also the wider marine environment. 


• Reducing pollution to air, which can have 

a damaging effect not only on the health, 

biodiversity, agriculture, woodland and historic 

environment of the East of England, but also of 

other countries and regions downwind. 

The region must address these and other global 

issues if it is to become truly sustainable. 


• The region should reduce the amount of 

waste it produces, and increase the amount of 

waste recovered under the waste hierarchy. 

• The import of unsustainable products from 

overseas should be reduced, and encouragement 

given instead to sustainable sourcing. 

• The region’s contribution to the illegal trade 

in endangered species should be stopped. 

• Pollution to air and water should be reduced to 

agreed international and national standards. 

SA14: Increase Understanding and 

Ownership of Environmental Issues 

Key Issues 

The region’s environmental performance would 

be greatly improved if individuals, businesses, and 

institutions were prepared to take greater responsibility 

for their actions. There are very good reasons 

for doing so. In addition to the significant economic 

benefits highlighted elsewhere in this Strategy, a 

high quality environment provides: 

• Healthier and more inspiring living and working 

surroundings (e.g. well-being from high quality 

neighbourhoods, green spaces and aesthetically 

pleasing buildings). 

• A resource for recreation (e.g. everyday play in 

gardens, visits to historic sites). 


57


• Cultural, spiritual and historic meanings (e.g. 

folklore, sense of place, local distinctiveness, 

historic settings). 

• Artistic inspiration (e.g. nature in poems, novels 

and articles, music and visual arts, Constable 

country, sculpture, historic buildings as 

marketing images). 

• Opportunities for personal development (e.g. 

conservation volunteers, ecological surveys/ 

archaeological investigations, skills for work). 

• A sense of community (e.g. a focus for building 

community spirit). 

Too often, however, environmental issues are 

thought of as ‘somebody else’s problem’. People 

look to their local councils to deal with litter and 

pollution, businesses often feel they have a right 

to generate waste, and public bodies do not always 

practice what they preach! 

We all have a responsibility for ensuring that we 

put the region on a more sustainable footing. A 

good starting point is our schools, colleges and 

universities. Study of the environment is part of the 

national curriculum and citizenship studies offer 

opportunities for pupils to discuss and get involved 

in environmental issues. An increasing number 

of higher education institutions offer environmental 

courses, and volunteering in environmental 

conservation organisations is now a recognised 

path to developing a career in the field. But the 

region should aim higher and wider than this – it 

should make environmental consciousness part of 

mainstream thinking. 



• Regional bodies and local authorities should 

lead by example, to show how environmental 

considerations can successfully permeate 

through all decision-making. 

• Agencies, local authorities, and other 

institutions with responsibilities for 

environmental issues should work together 

more closely, and with business and local 

communities, to increase awareness, and 

encourage joint ownership of environmental 

issues, with the aim of achieving improvements 

to all aspects of the environment. 

• Environmental performance should be 

monitored, and challenging targets set for 

enhancing the environment, to celebrate 

success where it happens, and take action 

where it does not. 

6 THE WAY FORWARD 

In May 2002 the Government issued a White Paper on Regional Governance: 

‘Your Region, Your Choice’ which set out Government proposals to: 

• Promote the gradual development of Regional Governance arrangements in all 

regions, including the role of voluntary regional chambers. 

• For those regions where there is a particular demand, proposals to introduce directly 

elected assemblies. 

The East of England Regional Assembly (EERA) has a policy position of wanting to 

concentrate on the gradual development of the Regional Assembly, in its current 

voluntary regional chamber state. This work has become known, in shorthand, as the 

‘Chapter 2 agenda’ as it relates to Chapter 2 of the Regional Governance White Paper. 

For the foreseeable future, therefore, EERA will be concentrating on aligning a number 

of regional strategies for the East of England, and building a consistent vision for the 

sustainable social, economic and environmental development of the region. 

Within this context, EERA has a key role to play in promoting this Environment Strategy. But 

its implementation will only happen if all those with an interest are prepared to act. EERA 

will therefore work with regional stakeholders to take it forward, and to monitor its success. 

To help in this process, this section sets out the Key Actions that need to be taken with 

respect to each of the Strategic Aims (SAs) identified in Chapter 5. In many instances 

there will be a number of additional actions that can, and should, be taken. The focus 

of the Key Actions presented here is to make sure that those that are fundamental to the 

region as a whole are understood and carried out. Key Indicators are also given. 

These are included in order to measure success in implementing the Key Actions. 

The Way Forward 


59


6.1 DELIVERING SUSTAINABLE PATTERNS AND FORMS 

OF DEVELOPMENT 

SA1: Accommodate population and economic growth whilst protecting and 

enhancing the environment 

Key Action Key Indicator 

Identify environmental objectives on the basis of this 

Environment Strategy to guide the strategic scale and 

pattern of development in RPG14 

Ensure that development plans and local development 

documents, properly integrate environmental objectives 

into spatial strategies and planning policies 

Establish environmental thresholds to development at the 

regional and local scales 

Ensure environmental capacity is integral to PPG3 urban 

capacity studies 

Include evaluation and aspirations for local environments 

as a specific requirement of Community Strategies 


Inclusion of environmental 

objectives 

Inclusion of environmental 

objectives 

Environmental thresholds 

established 

Number of urban capacity studies 

incorporating environmental 

criteria 

Inclusion of local environmental 

objectives 

SA2: Reduce the need to travel and achieve a switch to more sustainable 

modes of transport 


Plan to provide a full range of essential services and 

facilities within communities commensurate with their size 

and location 

Introduce demand management measures to encourage 

people to use more sustainable modes of transport 

Target investment on the rail network, and on creating and 

improving integrated local networks of walking, cycling and 

public transport 

Essential services 

and facilities available 

Proportion of journeys using 

different modes 

Proportion of journeys using 

different modes 

Plan opportunities for people to live close to where they work Average length of journeys 

between home and work 

SA3: Deliver sustainable design 


Ensure that all local planning authorities are aware of, 

and use, guidance and checklists on sustainable design in 

determining planning permissions 

Use of guidance and checklists by 

local planning authorities 

Ensure that the design of all new development minimises 

impact on natural resources (e.g. consumption of energy, 

water and materials) during both construction and operation 

Ensure that new development contributes to the environmental 

attributes of its locality 

Include long-term environmental maintenance and 

management agreements relating to new developments 

6.2 MEETING THE CHALLENGES AND OPPORTUNITIES 

OF CLIMATE CHANGE 

SA4: Reduce vulnerability of the region to climate change 


Avoid development from being located in areas at risk from 

coastal flooding, fluvial flooding or storm surges 

Guide development to locations where water resources 

are available 

Plan for environmental mitigation measures in response to 

climate change 

Use of conservation features and 

recycled materials in new build 

People’s perceptions of the quality 

of new development 

Proportion of new developments 

with agreements 

Number and frequency of damage 

to property due to flooding 

Average distance between source 

of water and consumers 

Number and extent of mitigation 

measures, including archaeological 

recording and habitat 

schemes, introduced to adapt to 


SA5: Promote energy conservation and a switch to renewable energy 

sources 


Encourage the use of low energy household appliances Sales of low energy appliances as a 

proportion of all appliance sales 

Increase awareness of households and businesses of Average energy consumption 

practical energy conservation measures 

per person 

Meet targets at the regional and local level for renewable 

energy production 

Proportion of energy generated 

that is renewable compared 

to targets 



61


SA6: Harness environmental benefits arising from climate change 


Prepare a strategy for realising the economic, environmental 

and social benefits arising from climate change 

Prepare and implement Integrated Coastal Zone 

Management for the whole coast, incorporating Coastal 

Habitat Management Plans (CHaMPS), and protection of 

historic assets found in the coastal zone 


Preparation of strategy, and 

monitoring of its implementation 

Implementation of a comprehensive 

Integrated Coastal Zone 

Management plan 

6.3 ENSURING ENVIRONMENTAL SUSTAINABILITY IN THE ECONOMY 

SA7: Improve the environmental awareness, skills, and housekeeping of 

business and the workforce 


Ensure that the whole of the East of England is covered 

by environmental advice and support systems as part of 

mainstream business advice 

Encourage businesses to include environmental awareness in 

training programmes 

Coverage of environmental 

advice and support 

Proportion of businesses whose 

employees have attended 

environmental training 

Encourage businesses to operate Green Travel Plans Number and proportion of 

businesses with 

Green Travel Plans 

Encourage adoption by businesses of Environmental 

Management Systems 

SA8: Promote the environmental economy 

Number and proportion of 

businesses with accreditation 


Include the environmental economy as a core sector in 

regional and local economic development strategies 

Ensure that all components of the environmental economy 

adopt sustainable practices 

Inclusion of the environmental 

economy in strategies 

Number and severity of pollution 

incidents arising within the 

environmental economy sector 

SA9: Deliver more sustainable agriculture 


Promote and support markets and schemes that provide for 

sustainable food production 

Promote take up of whole farm plans to include incorporation 

of Biodiversity Action Plan and historic environment objectives 

Percentage of food products 

purchased from environmentally 

accredited sources 

Coverage by number and 

hectarage of whole farm plans 

that refer to BAP targets and 

historic environment objectives 

Encourage farmers to adopt practices that encourage wildlife Number and populations of 

farmland birds 

Introduce guidance to farmers on the identification and Number of historic features on 

protection of historic features on farmland 

farmland lost or damaged 

Reduce the use and mis-use of agricultural inputs such as Number and severity of pollution 

pesticides, and fertilisers 

incidents involving agriculture 

Encourage more sustainable use of water supplies Amount of water abstracted for 

agricultural use 

Encourage more sustainable types of crops, such as woodland, Percentage of agricultural land 

bio-energy fuels, and organic produce 

under different crop types 

6.4 ENHANCING ENVIRONMENTAL CAPITAL 

SA10: Maintain and strengthen landscape and townscape character 


Ensure that the social and economic benefits of designated 

and locally valued landscapes are properly recognised in 

regional strategies 

Fully engage with regional and local stakeholders to increase 

awareness of, and involvement in, strengthening and 

management of landscape character 

Increase funding available for the management of landscapes 

commensurate with the environmental, economic and social 

benefits they deliver 

Develop area wide strategies, based on character assessments, 

to set long term goals for landscape change and to target 

tools and resources to influence change 

Number and percentage of 

regional strategies including 

landscape benefits 

Number and percentage of local 

authorities with mechanisms set 

up for involving stakeholders 

Amount of funding spent on 

landscape management as 

percentage of total funding 

Percentage of the region covered 

by area wide strategies 



63


SA11: Enhance biodiversity 


Ensure that the social and economic benefits of biodiversity 

are properly recognised in regional strategies 

Ensure strong protection and active management of wildlife 

sites to sustain or restore their interest 




biodiversity benefits 

% area of SSSIs destroyed, part 

destroyed, or in favourable 

condition 

Area or number of locally 

important wildlife sites 

Achievement of regional and 

local BAP targets 

Increase the coverage of locally important habitats, such as 

County Wildlife Sites, Local Nature Reserves, etc. 

Implement Biodiversity Action Plans (BAPs) to enhance the 

region’s biodiversity 

Increase the uptake of agri-environment schemes % area of farms with 

Countryside or Arable 

Stewardship or ESA Agreements 

Create or restore large-scale habitats, including woodland Hectares in the region covered 

and wetland, particularly where opportunities arise as a result by large scale habitat creation 

of climate change 

Ensure that sufficient water resources are available to support Flow in rivers and/or ground 

wetlands, rivers and other water dependent habitats 

water levels 

Provide guidance to planners and developers on maximising Number and percentage of local 

biodiversity benefits in developments 

authorities with guidance for 

developers on biodiversity 

SA12: Conserve and enhance the historic environment 


Ensure that the social and economic benefits of the historic 

environment are properly recognised in regional strategies 

Ensure strong protection of nationally and regionally 

important historic sites and features through the land use 

planning system 

Increase awareness of the role of the historic environment as 

providing a catalyst for regeneration 



benefits of historic environment 

Loss or damage to nationally 

and regionally important historic 

sites and features 

Number of local authorities 

specifically promoting historic 

environment in regeneration 

Ensure protection of historic landscapes Proportion of region covered by 

historic landscape characterisation, 

backed by appropriate 

development plan policies 

Improve coverage of management plans and appraisals of 

historic settlements, areas, sites, landscapes and features 

Improve understanding, awareness and knowledge of the 

region’s historic resource 

Improve standard of repair and maintenance 

of historic buildings 

Increase the range of regionally distinctive traditional 

building materials in the region 

6.5 ACHIEVING SUSTAINABLE LIFESTYLES 

SA13: Reduce the region’s global environmental impact 


registered/designated historic 

assets covered by 

management plans 

Number of educational visits 

to historic sites, including the 

socially excluded 

Estimated number of 

builders and craftsmen with 

conservation skills such as 

qualifications/training 

Number of traditional building 

products available 


Reduce the amount of waste the region produces Total waste produced by type 

Of waste produced, increase the amount recovered under the 

waste hierarchy in line with national and regional targets 

Amount of waste recovered 

Reduce the import of unsustainable products from overseas Proportion of imports covered 

by environmentally 

accredited schemes 

Stop the ports and airports of the East of England being used Number of instances of illegal 

as an entry point for the illegal trade in endangered species trade being recorded 

Reduce pollution to the water environment 

Water quality of rivers, streams, 

to within agreed standards 

aquifers, and coastal waters 

Reduce pollution to air to within agreed standards Number of days that air pollution 

exceeds quality standards 

SA14: Increase understanding and ownership of environmental issues 


Increase the number of education opportunities in the region 

offering environment related courses 

Number of courses offering 

environment related courses 



65


Integrate environmental considerations into decisionmaking 

of all public bodies and agencies in the region, by 

requiring the environmental impacts of all policies, plans and 

programmes to be included in a public statement 

Improve information and awareness for the public and 

businesses on how to reduce the impact of their lifestyles on 

the environment 

Set targets and measure environmental performance 

of the region 



public bodies policies, plans and 

programmes accompanied by 

environmental statements 

Number and proportion of 

households and businesses in 

receipt of information 

Achievement of 

environmental targets 

The East of England Regional Assembly and the East of England Environment Forum 

commend this Strategy to the region. It sets out quite a challenge, but one that we 

believe the region can grasp. We look forward to working with all stakeholders in the 

region to make sure this happens. 

We are confident that substantial progress can be made, and that we will be able to take 

pride in the environment of the East of England and its contribution to our quality of life 

and our economy. Our environment is truly our future. 

‘Our Environment, Our Future’ 

© Countryside Agency/David Burton 

APPENDIX 1 - BIBLIOGRAPHY 

A Sustainable Development Framework for the East of England (October 2001) 

East of England Regional Assembly and East of England Sustainable Development Roundtable 

An Environmental Vision (No date) Environment Agency 

Best farming practices- profiting from a good environment (No date) 

- Environment Agency 

Building in Context: New development in historic areas (2002) CABE/English Heritage 

Buildings at Risk Register for the East of England 2003, English Heritage 

By Design: Urban Design in the Planning System – Towards Better Practice (2000) 

DETR and CABE 2000 

Coastal Defence and the Historic Environment, English Heritage Guidance (2003) 


Corporate Plan - Making it happen (No date) Environment Agency 

Countryside Character Volume 6: East of England (1999) Countryside Agency 

East of England Regional Biodiversity Targets (2002) East of England Biodiversity Forum 

East of England Regional Waste Management Strategy (2002) East of England Region 

Waste Technical Advisory Body 

East of England Snapshot (No date) Environment Agency 

Environmental Prosperity. Business and the environment in the East of England (2001) 

SQW Limited and Land Use Consultants on behalf of the Environmental 

Prosperity Partnership 

Frameworks for Change (No date) Environment Agency 

Lessons Learned (Autumn 2000 floods) Environment Agency 

Living with Climate Change in the East of England Stage 1 Interim Report (unpublished, 

2003) Land Use Consultants in association with CAG Consultants and SQW Limited, on 

behalf of the EERA and the East of England Sustainable Development Roundtable 

Natural Areas in the East of England Region (1999) English Nature 

Our Common Future (The Brundtland Report) – Report of the 1987 World Commission on 

Environment and Development (1987) Oxford University Press 

Appendix 1 - Bibliography 


67

Appendix 1 - Bibliography 

Power of Place: The future of the historic environment (December 2000) English Heritage 

A better quality of life: A strategy for sustainable development in the UK (1999) DETR 

Regional Economic Strategy (2001) East of England Development Agency 

Regional Observatory www.eastofenglandobservatory.org.uk. 

Regional Planning Guidance for East Anglia RPG6 (2000) DETR 

Regional Planning Guidance for the South East RPG9 (2001) DETR 

Revealing the Value of Nature (2000) English Nature 

Strategic waste management assessment 2000 – 

East of England (2000) Environment Agency 

The Suffolk Conservation Manual: Design Guidelines for Highways Works in Conservation 

Areas (2000) Suffolk Local Authorities 

Streets for All, A Guide to the Management of London’s Streets (1993) English Heritage 

The Heritage Dividend 1999 and 2002, East of England Region (2003) English Heritage 

The Historic Environment: A Force for Our Future (December 2001) 

Department of Culture, Media and Sport 

The Monuments at Risk Survey of England 1995 (1998) Darvill and Fulton 

The state of the environment of England and Wales – the atmosphere (No date) 


The state of the environment of England and Wales – the land (No date) 


The state of the environment of England and Wales –coasts (No date) 


The state of the environment of England and Wales –fresh waters (No date) 


State of the Historic Environment 2002, and East of England supplement (No date) 


Water resources for the future – a strategy for Anglian Region (No date) 



APPENDIX 2 – ACKNOWLEDGEMENTS 

Members of the Working Group who assisted with the production of the 

East of England Environment Strategy: 

Michael J Allen EERA/EEEF (Environment Strategy Working Group Chair) 

Alan Crystall EERA (Southend on Sea Borough Council) 

Katharine Fletcher English Heritage 

Simon Garnier National Trust 

Nicola George English Nature (Facilitator) 

Nick Guyatt EERA (Huntingdonshire District Council)) 

Clare Hardy EERA 

Pauline Jones Environment Agency 

Tim De-Keyzer Countryside Agency 

Paul Kirkman EERA (Basildon District Council) 

John Sharpe RSPB 

Claire Smith RSPB (Secretarial Support) 

Brian Stewart EERA 

Other contributors to the East of England Environment Strategy: 

Cameron Adams South Cambridgeshire District Council 

Julia Barrett Environment Agency 

Peter Battrick National Trust 

David Bell North Hertfordshire District Council 

David Bevan Bedfordshire County Council 

John Bloomfield Civic Trust Societies East of England Group 

Michael Brooks Community & Regional Planning Services 

Wendy Brooks Environment Agency/Regional Biodiversity Forum 

Dr Simone Bullion Suffolk Wildlife Trust 

Jo Burris Woodland Trust 

Denise Carlo Transport 2000/EEEF 

Catherine Cairns Countryside Agency 

Ruth Chambers Council for National Parks 

James Clifton British Waterways 

John Comont Bedfordshire County Council 

Laurna Compton EERA 

Rob Cooke English Nature 

Gill Cowie Bedford Borough Council 

Miranda Davis Essex & Suffolk Water 

Jennie Digby GO-East 

Adam Dodgshon Stevenage Borough Council 

Anthony Eastwood CPRE/National Trust 

Alec Edgar Bedfordshire County Council 

Michelle Edwards Wildlife Trust for Bedfordshire 

Sally Gibbon Hertsmere Borough Council 

Linnea Godfrey Groundwork 

Appendix 2 - Acknowledgements 


69

Appendix 2 - Acknowledgements 

Peter Grimble DEFRA Rural Development Service 

Peter Hakes Essex County Council 

Mike Halls Norfolk County Council 

Richard Halsey English Heritage 

Paul Hammett NFU East Anglia Region 

Nicholas Hammond The Wildlife Trusts 

David Harrison Housing Corporation 

Frances Hassett Hertfordshire Biological Records Centre 

Paul Hinds East of England Development Agency 

Jonathan Hurst Cambridge City Council 

Peter Holborn Suffolk County Council 

Noel James Heritage Lottery Fund 

Simon Larbey English Heritage 

Peter Leverton DEFRA Rural Development Service 

Simon Lewis WWF-UK 

Angela Loughran Environment Agency 

Michael Moll Suffolk County Council 

Val Moore Health Development Agency 

John Preston Cambridge City Council 

Steve Ratcliffe Suffolk Coastal District Council 

Michael Render Buckinghamshire Chilterns University College 

Marilyn Roper Suffolk Preservation Society 

Steve Rose Groundwork 

James Russell Forest of Marston Vale 

Rachel Russell English Heritage 

Steve Scott Forestry Commission 

Malcolm Sharp Huntingdonshire District Council 

Ian Smith English Nature 

Mark Smith Great Yarmouth Borough Council 

David Spencer St Edmundsbury Borough Council 

Andy Stewart Environment Agency 

Tom Tew English Nature 

Shaun Thomas English Nature 

Vanessa Tilling GO-East 

David Vose Countryside Agency 

Keith Wade Association of Local Government Archaeological Officers 

Martin Wakelin Essex County Council 

Neil Warren East of England Tourist Board 

Susan West English Heritage 

Alan Wheeler EERA 

Barbara Wilcox Cambridgeshire County Council 

Elizabeth Wilson Huntingdonshire District Council 

Paul Woodcock Environment Agency 

EERA – East of England Regional Assembly 

EEEF – East of England Environment Forum 


APPENDIX 3 – OTHER REGIONAL STRATEGIES 

Work towards an Integrated Regional Strategy continues to evolve. In addition to the 

Regional Environment Strategy, the following strategies have also been produced or 

are being prepared. Additional strategies may also be required in the future in order to 

complete the set. For example, a Regional Woodland Strategy is currently being produced. 

Sustainable Development Framework (SDF) 

The Sustainable Development Framework for the East of England provides overarching 

guidance to encourage the adoption of sustainable development principles in all 

regional strategies and action plans. Published in October 2001, it identifies a set 

of high-level sustainable development objectives for the region in addition to more 

detailed challenges and objectives. 

Regional Planning Guidance (RPG) 

In light of the new arrangements for regional planning introduced in April 2001, the East 

of England Regional Assembly is preparing revised East of England Regional Planning 

Guidance (RPG14). This will set out a spatial strategy for new development. Regional 

planning policies will identify locations for planned development and in some cases 

prescribe how much development there should be. Although detailed site selection will 

be left to local development plans, some major development projects will be identified. 

RPG will also contain policies that protect designated environmental assets and set 

criteria for providing environmental infrastructure such as flood defence and water supply. 

In selected locations, sub-regional planning studies have been identified to examine in 

more detail strategic growth locations and to address specific issues of concern. RPG14 

will be published in the spring of 2004. 

The revised RPG will incorporate a Regional Transport Strategy. In addition to providing 

a long-term regional framework for transport planners and operators, this will support 

the spatial, economic and social strategy for the region. The transport component of RPG 

will in turn be informed by a series of other strategic studies being undertaken within the 

region, including multi-modal, ports and airport studies. 

RPG will also include the Regional Waste Management Strategy published by the East 

of England Regional Waste Technical Advisory Body (RWTAB) in January 2003. The 

objective of the Strategy is to reduce the amount of waste produced and to change to 

more sustainable waste management. The principal purpose of the Strategy is to provide 

guidance on the land use planning aspects of waste management by considering regional 

needs and the provision of sufficient facilities. It also provides the context for Local 

Waste Plans prepared by the strategic planning authorities, guides the waste collection 

and disposal plans of all authorities in the East of England, and informs and influences the 

private sector in their activities. In line with the timescale for RPG, the period that this 

Strategy covers extends to 2021. 

Appendix 3 - Other Regional Strategies 


71


Regional Economic Strategy (RES) 

The East of England Development Agency published ‘East of England 2010, the Regional 

Economic Strategy’ in June 2001. This includes an environment chapter that recognises 

that ‘no organisation, public or private can afford to make business decisions on shortterm 

economic grounds alone. Clients, customers and employees expect organisations 

to have concern for the environmental and social impact of their decisions’. The Strategy 

discusses how the high quality of the East of England’s natural and built environment 

makes an important contribution to economic objectives. It highlights that businesses 

and organisations of the East of England need to act urgently to secure environmental 

assets, adapt to environmental changes and to exploit the global environmental business 

opportunities, which are emerging. Its three strategic environmental priorities are to: 

• Encourage the take-up of sustainable policies and practices by all businesses. 

• Promote the environmental business sector. 

• Protect and support the natural and built environment. 

The RES recognises that the region faces a major challenge in achieving economic growth 

and regeneration, while safeguarding and enhancing the natural and built environment. 

A revised RES will be completed and published in 2004. 

Regional Social Strategy 

In Autumn 2002, the Health and Social Inclusion Panel of the Regional Assembly 

commenced work on developing a Regional Social Strategy for the East of England. The 

Strategy will describe the role the environment has in enhancing well-being and quality 

of life in tackling inequalities in health, social exclusion and neighbourhood renewal. 

The Strategy will be completed in 2004. 

Regional Cultural Strategy 

The environment contributes significantly to the region’s cultural life, providing the 

context for much tourism and leisure activity. The Regional Cultural Strategy, produced 

by the Regional Cultural Forum in July 2001, acknowledges the importance of the natural 

and built environment to the cultural makeup of the region. References are made to 

the region’s environmental strengths, including historic cities, ports and seaside resorts, 

churches, fine landscapes, farmland and scenery. Case studies of environmental projects 

are highlighted, indicating the importance to the region of areas such as the Norfolk 

Broads and Wicken Fen for tourism. The valuable cultural associations of the region’s 

landscapes, both natural and man-made are recognised. The Strategy also includes 

targets for regeneration projects for the built and natural environments. The action 

plan includes a commitment to establish high profile landmarks through public art or 


architecture at regional gateways, and supports the development of a regional design 

statement on architecture and the built environment. 

Regional Housing Strategy 

The Regional Housing Forum produced a first Regional Housing Strategy for the region in 

June 2003, which will help to shape and influence the direction housing will take in the 




73





75

HealthyFutures 

A Regional Health Strategy for the East of England 2005-2010

If you would like copies of this document in large print, other formats or in a language 

other than English, we will do our best to help you. Please telephone: 01284 728151, 

e-mail: info@eera.gov.uk or write to EERA at: Flempton House, Flempton, 

Bury St Edmunds, Suffolk, IP28 6EG 


Flempton House, Flempton, Bury St Edmunds, Suffolk, IP28 6EG 

Tel: 01284 728151 or 01284 729429 

Email: info@eera.gov.uk

HealthyFutures 

A Regional Health Strategy for the East of England 2005-2010 



Flempton 

Bury St Edmunds IP28 6EG 

Telephone: 01284 728151 

Fax: 01284 729429 

Email: info@eera.gov.uk 

Website: www.eera.gov.uk 

December 2005 

A Regional Health Strategy for the East of England 03

Contents 

Preface 07 

Executive summary 09 


02 Policy context for Healthy Futures 19 

Section A: The health of people in the East of England 23 

03 Describing the health of people in the East of England 25 

04 Understanding the health of people in the East of England 41 

Section B: Healthy Futures: Regional Health 57 

Strategy for the East of England 

05 Healthy Futures: the Strategy 59 

06 Theme A: Health in Sustainable Communities 65 

07 Theme B: Health at Key Life Stages 83 

08 Theme C: Health in a Connected Region 103 

Section C: Moving forward 113 

09 Delivering Healthy Futures 115 

Annex A: Consultation process 121 

Annex B: Links between Healthy Futures and key PSA targets 125 

Annex C: Glossary 131 

Annex D: Bibliography 135 


Preface 

I am delighted to introduce Healthy Futures – the first Regional Health Strategy 

for the East of England. Healthy Futures has been developed over the past 

twelve months by the East of England Public Health Group (EEPHG) on behalf 

of the East of England Regional Assembly (EERA) and its partners, all of whom 

are committed to reducing health inequalities and improving the health of the 

Region’s population. 

Currently, our Region is not as healthy as it should be – and comparisons with 

other regions indicates considerable room for improvement. Even within the East of England the extent 

of health inequalities is large and growing. Evidence shows that people on lower incomes tend to have 

poorer health throughout their lives and die younger than their more affluent neighbours, and there is 

also substantial evidence that these inequalities are transmitted from one generation to the next. 

Healthy Futures is not about health service delivery. Its analysis and proposed actions are based 

on the recognition that through their policies and actions, a great many agencies and organisations 

can individually and collectively have a major impact on people’s health. It is by ensuring that these 

impacts have a positive rather than a detrimental effect that Healthy Futures will succeed. 

The main priorities of the Strategy will provide a clear Vision to deliver improvements to health by raising 

awareness of health inequalities amongst key partners. The Strategy will be a vital tool in influencing 

regional policy making, demonstrating that the responsibility for the health of people in the East of 

England is, genuinely, a shared one. Having set out this Vision, we now look forward to our partners 

helping us to deliver real measurable improvements. 

Alongside Healthy Futures, the Eastern Region Public Health Observatory and the Public Health 

Group have developed a Technical Supplement. The Technical Supplement provides background 

data and analysis to support the Strategy. It will also be a valuable resource in evaluating and 

reporting our progress. 

I would like to take this opportunity to thank those who have participated in developing Healthy 

Futures. In particular I would like to extend my thanks to Dr Gina Radford, Regional Director of Public 

Health (Public Health Advisor to the Assembly), for leading on this Strategy on behalf of the Assembly. 

Ermal Kirby 


Executive summary 

Introduction and context 

1 Healthy Futures is the East of England’s first Regional Health Strategy. It is intended to improve the 

overall health of people in the East of England, and to reduce inequalities in health within the Region. 

Its focus is strongly on the underlying issues which determine people’s health. Hence this Strategy is 

not concerned directly with the National Health Service (NHS), with health service delivery, or with 

the health and social care sector; these important issues need to be addressed within the Region 

but through other strategic processes. 

2 Against this backdrop, Healthy Futures itself has three main purposes: 

• To raise awareness of the issues surrounding the health of people in the East of England, 

and the extent of health inequalities 

• To demonstrate that responsibility for the health of people in the East of England is, 

genuinely, a shared one 

• To provide a basis for a meaningful dialogue – in both directions – between health care 

policy makers and professionals, and other public agencies and organisations operating 

in the East of England, in order to improve health within the East of England and to 

reduce health inequalities. 

3 The policy context for Healthy Futures is defined along two principal dimensions. Choosing Health 

– the White Paper published by the Government in November 2004 – provides the national policy 

backdrop; this emphasises the need to make it easier for individuals to make healthier choices. A 

second key dimension is concerned with the regional context and, specifically, the priorities and 

aspirations set out in key regional strategies. During 2004/05, these were distilled into Sustainable 

Futures, the East of England’s first Integrated Regional Strategy. This included a Vision of a better quality 

of life for everyone who lives or works in the East of England, and to this end it identified high level 

outcomes and a set of priorities for the Region. Healthy Futures has been developed in this context. 

The health of people in the East of England 

4 On most measures, people in the East of England are somewhat healthier than the national average: 

overall life expectancy is higher and the incidence of both cancer and Coronary Heart Disease (CHD) 

is lower. But within the Region, health inequalities are large and growing. The health of people in 

the East of England is also less good than in other European regions. 

5 There is substantial evidence to suggest a strong – although complicated – relationship between 

people’s health and levels of deprivation. For example, in 2002-03, 7% of people in social class I 

in the East of England were smokers compared to 33% in social class V, and cigarette smoking 

has been identified as one important reason for the observed gap in life expectancy between rich 

and poor. Within the East of England, these differences have a clear geography: areas such as Great 

Yarmouth, Luton, Tendring and Peterborough are characterised by a high incidence of deprivation, 

poor self-reported health and relatively low levels of life expectancy. However – as the Regional Social 

Strategy makes clear – there are people living in poverty throughout the Region: groups which are 

especially vulnerable include black and minority ethnic groups, disabled people, lone parents, older 

people, carers, asylum seekers, refugees and ex-offenders. 


10 

6 What actually determines the health of the population is a complicated question. Within the 

East of England, key factors include: 

• Access to services, particularly for vulnerable groups within the population, recognising that 

this can be especially difficult in some rural areas 

• Weak social and community networks, particularly among vulnerable groups and in those parts 

of the Region which are changing quickly 

• Physical inactivity and increasing obesity 

• Lifestyle factors such as smoking, drug abuse, alcohol consumption and sexual health 

• Housing pressures (linked both to affordability and to the condition of housing) and wider issues 

around ‘liveability’ 

• Relatively low levels of educational attainment, particularly in terms of progression to further 

and higher education, and continuing learning in adulthood 

• A high incidence of employment in low paid jobs in sectors such as health and social care, tourism, 

and agriculture and food processing 

• Stress at work, particularly amongst those aged 50 or more (which is a growing proportion 

of the workforce) 

• A relatively large number of people of working age who are economically inactive: a proportion 

are long-term sick and deteriorating mental health can often be the issue. 

Healthy Futures: a Regional Health Strategy for the 


7 The core of Healthy Futures is defined by a Vision that may be simply stated: to improve the health 

of the population and to reduce health inequalities within the East of England. In order to 

achieve this Vision, three broad Themes are identified, each of which embraces a number of distinct 

Strategic Priorities. There are important links across the nine Strategic Priorities. 

Theme A: Health in Sustainable Communities 

8 There are particular challenges in striving towards healthy sustainable communities across the East 

of England. In part, these simply reflect the pace of growth across much of the Region: the population 

of the East of England has grown more quickly than in any other region in the UK over the last two 

decades and further population growth is anticipated. In part, these reflect the challenges linked 

to resources; there are, for example, particular issues linked to water supply and issues relating to 

waste management. In part, they reflect an accumulated shortfall in investment in the surrounding 

infrastructures – both hard and soft. Within this context, three Strategic Priorities are identified: 

• Strategic Priority 1: To ensure that the social, economic and environmental foundations of 

healthy lifestyles are designed creatively into new and existing communities in the East of 

England, recognising the range of factors that contribute to health outcomes 

• Strategic Priority 2: To provide infrastructure and sustained support to build social capital, 

particularly among those communities (geographical communities, communities of interest 

and potentially vulnerable groups) which are experiencing poor health outcomes, recognising 

the key role of family and community relationships and the need to support them

• Strategic Priority 3: To make it possible for communities to ‘choose health’ positively and more 

easily, recognising the general importance of access, appropriate information and health literacy, 

but also harnessing the particular opportunities linked to the 2012 Olympics/Paralympics in 

encouraging healthy lifestyles. 

Theme B: Health at Key Life Stages 

9 People of different ages within the East of England are facing quite different issues with regard 

to their health and well-being. These need to be understood and addressed if the health of the 

population is to be improved and the extent of health inequalities reduced. Given the changing 

demography of the Region, three life stages are critical. Each of these provides the focus 

for a Strategic Priority within Healthy Futures: 

• Strategic Priority 4: To ensure that children and young people in the East of England can get off 

to a healthy start in life, linking in with the National Service Framework for children, young people 

and maternity services, and recognising the five key outcomes set out in Every Child Matters (ECM) 

• Strategic Priority 5: To encourage better health for people in the East of England throughout their 

working lives, recognising the links between people’s health and the range of experiences relating 

to work and workplaces, and worklessness 

• Strategic Priority 6: To support people in the East of England in ‘active ageing’ and adding life 

to years, linking in with the National Service Framework for older people, highlighting the needs 

and opportunities linked to an ageing population, and recognising and supporting the contribution 

made by older people to all aspects of life in the East of England. 

Theme C: Health in a Connected Region 

10 The third major Theme that defines Healthy Futures is concerned with the position of the East of 

England globally. The East of England is intrinsically – and increasingly – inter-connected. In this context, 

three major issues – all of which were identified in the Integrated Regional Strategy – are likely to have a 

significant bearing on the future health of the population and on health inequalities. These have been 

identified as three Strategic Priorities in moving forward: 

• Strategic Priority 7: To recognise and respond to the practical implications of international 

gateways for health and health inequalities within the East of England, acknowledging the 

needs and opportunities linked to increasing international mobility 

• Strategic Priority 8: To harness the East of England’s international position to encourage 

learning, knowledge development and research and development (R&D) for health, 

recognising the opportunities to learn from elsewhere 

• Strategic Priority 9: To understand and plan for the impacts of climate change and the more 

sustainable use of resources within the Region, in terms of health and health inequalities issues, 

embracing the imperative to formulate a clear regional response in terms of adaptation and 

mitigation, and linking, particularly, to Strategic Priority 1. 


12 

Delivering Healthy Futures 

11 Given the focus on broad determinants of population health as they relate to the East of England, 

three groups of delivery processes should contribute substantively to advancing Healthy Futures. 

These relate to: 

• Regional priorities set out in the Integrated Regional Strategy and in other ‘premier league’ 


• National priorities for population health set out in Choosing Health 

• Local and sub-regional priorities, particularly those defined by Local Strategic Partnerships (LSPs) 

and being advanced – across much of the Region – through Local Area Agreements, and those 

services being influenced through Investing in Communities (IiC) partnership programmes. 

12 In order to facilitate and inform these processes, a number of Actions have been defined in response 

to each Strategic Priority; these Actions – which will be subject to on-going development and review 

– are set out in Chapters 6-8. 

13 For the most part, the Actions are modest in scale and scope: in keeping with the purposes of Healthy 

Futures, they are intended to support and influence other delivery processes, not replicate or replace 

them. Hence the Actions include, for example, the preparation of guidance and training materials, and 

the gathering and dissemination of data and intelligence. On their own, these will not deliver the Vision 

set out in Healthy Futures. But by influencing and supporting the three groups of processes set out 

above, significant progress ought to be possible. 

14 Progress on delivering these Actions – and on achieving the overall Vision – will be reviewed regularly 

by EERA’s Health and Social Inclusion Panel.

Figure 1: Healthy Futures – The Regional Health Strategy 

for the East of England 

Vision: To improve the health of the population and reduce 

health inequalities in the East of England 

Theme A: Health 

in Sustainable 

Communities 

SP1: To ensure that the social, 

economic and environmental 

foundations of healthy lifestyles 

are deigned creatively into new 

and existing communities within 


SP2: To provide infrastructure and 

sustainable support to build social 

capital, particularly among those 

communities (geographical 

communities, communities of 

interest and potentially vulnerable 

groups) which are experiencing 

poor health outcomes 

SP3: To make it possible for 

communities to ‘choose health’ 

positively and more easily 

National Priorities 

set out in the 

Choosing Health 

White Paper 

Theme B: Health 

at Key Life Stages 

SP4: To ensure that children 

and young people in the East 

of England can get off to a 

healthy start in life 

SP5: To encourage better health 

for people in the East of England 

throughout their working lives 

SP6: To support people in the 

East of England in ‘active ageing’ 

and adding life to years 

Evidence and Analysis 

relating to the nature 

and extent of health and 

health inequalities issues 

Theme C: Health in 

a Connected Region 

SP7: To recognise and respond to 

the practical implications of 

international gateways for health 

and health inequalities within the 


SP8: To harness the East of 

England’s international position to 

encourage learning, knowledge 

development and R&D for health 

SP9: To understand and plan for 

the impacts of climate change 

and the more sustainable use of 

resources within the Region in 

terms of health and health 

inequalities issues 

Priorities from Regional 

Strategies in the 



01 Introduction 

Chapter summary 

Healthy Futures is the East of England’s first Regional Health Strategy. It is intended to improve the 

overall health of people in the East of England, and to reduce inequalities in health within the Region. 

Its focus is strongly on the underlying issues which determine people’s health. Hence this Strategy is not 

concerned directly with the NHS, with health service delivery, or with the health and social care sector; 

these important issues need to be addressed within the Region but through other strategic processes. 

Healthy Futures has three main purposes: 

• To raise awareness of the issues surrounding the health of people in the East of England, 

and the extent of health inequalities 

• To demonstrate that responsibility for the health of people in the East of England is, 

genuinely, a shared one 

• To provide a basis for a meaningful dialogue – in both directions – between health care 

policy makers and professionals, and other public agencies and organisations operating 

in the East of England. 

The World Health Organisation defines health as ‘a state of complete physical, mental and social 

well-being and not merely the absence of disease or infirmity’. It continues, ‘the enjoyment of the 

highest attainable standard of health is one of the fundamental rights of every human being without 

distinction of race, religion, political belief, economic or social condition’. 1 

1.1 As the Region’s Integrated Regional Strategy makes clear, on most key indicators, the health of 

people in the East of England is marginally better than the national average: for example, 21% 

of the Region’s population report limiting long-standing illness compared to 23% across the UK, 

and the infant mortality rate is 4.4 deaths per 1,000 live births compared to a national average 

of 5.5. 2 Death rates from heart disease and cancer are slightly below the national average and 

life expectancy is slightly greater. 

1.2 However, there is no room for complacency: 

• Within the East of England, there is substantial intra-regional variation: most starkly, boys born 

today in Great Yarmouth can expect to live for over four years less than boys born in South 


• Whilst the health of people in the East of England has improved over recent years, the extent 

of intra-regional health inequalities has increased 

• On key indicators, the health of people in the East of England is less good than in comparable 

European regions. 

1.3 Health inequalities and poor health outcomes matter for a number of reasons. Premature death and poor 

health are obviously tragic for the people concerned and for their immediate families; as one politician 

put it, ‘What greater inequity can there be than to die younger and to suffer more illness throughout 

your life as a result of where you live, what job you do and how much your parents earned?’ 3 

1 Constitution of the World Health Organisation, available at http://policy.who.int 

2 Region in Figures: East of England 8 (Summer 2004), National Statistics – data from Tables 7.14 and 7.15. Note that here – and throughout this 

document – Crown copyright material is reproduced with the permission of the Controller of HMSO and the Queen’s Printer for Scotland. 

3 Yvette Cooper – then Parliamentary Undersecretary of State for Public Health. 


16 

1.4 These same issues also have a substantial impact on the economy of the East of England. People in the 

East of England are, for example, less physically active than the national average. The National Audit 

Office (NAO) has estimated that the total cost of physical inactivity is £8.2bn per year (including 72,000 

lost working days and 86,000 premature deaths) 4 . This excludes the contribution of inactivity to obesity 

which costs the wider economy (due largely to days of sickness relating to obesity) a further £3.5bn 

per annum. 5 It is estimated that alcohol misuse costs around £20bn a year in England, including 

alcohol-related health disorders and disease, crime and anti-social behaviour, loss of productivity in 

the workplace, and problems for those who misuse alcohol and their families, including domestic 

violence. 6 The economic significance of people being unable to work due to mental illness is even 

greater; across England, output to the value of £23.1bn is lost as a result. 7 

The purposes of Healthy Futures: the Regional Health Strategy for the 


1.5 This document sets out a strategy to improve the overall health of people in the East of England, 

and to reduce inequalities in health outcomes within the Region. Within this overall context, 

Healthy Futures – the Regional Health Strategy for the East of England – has a number of purposes. 

1.6 Raising awareness of the health of people in the East of England – and inequalities in their health – 

is a first key purpose. To fulfil this purpose, a comparative baseline providing key data and statistics 

is presented in Chapter 3, both to inform and underpin the Strategy, and to provide a benchmark 

against which progress might be monitored subsequently. 8 

1.7 From this foundation, the Strategy seeks to examine – and then to respond to – the factors which 

together determine the health of people in the East of England. These determinants are broad in 

character. They include the houses in which people live, the jobs in which they work, the leisure 

activities in which they engage, and the social and familial networks in which their everyday lives 

are structured. In the main, these ‘determinants’ exist outside the policy/organisational domain 

that is conventionally labelled ‘health’ or ‘health care’. Policy decisions and prioritisation processes 

– led by organisations as diverse as Local Authorities, LSPs, Learning and Skills Councils, Jobcentre 

Plus, East of England Development Agency (EEDA), Government Office for the East of England 

(GO-East) and EERA – all combine together to impact on health outcomes. Hence a second 

purpose of the Strategy is to demonstrate that responsibility for the health of people in the 

East of England is – genuinely – a shared one; health is everyone’s business. 

1.8 A third key purpose is closely related to the second. It concerns the need for a fruitful and meaningful 

dialogue – in both directions – between health care policy makers and professionals, and other public 

agencies and organisations operating in the East of England. The intention is that this Strategy should 

be as relevant to economic development agencies and partnerships, LSPs and Local Authorities as it is 

to Primary Care Trusts (PCTs), Strategic Health Authorities (SHAs) and the Department of Health (DH). 

If it is to succeed in effecting improvements in the health of people in the Region and reducing health 

inequalities, it needs to be genuinely cross-disciplinary, galvanising a range of perspectives, resources 

and decision-making powers behind a shared agenda for the Region. Facilitating such a dialogue as 

the basis for a joint endeavour is then a third key purpose for the Strategy as a whole. 

4 Physical Activity in the East of England Eastern Region Public Health Observatory (ERPHO) 2005. 

5 Obesity in the East of England ERPHO 2004. 

6 Alcohol Misuse Intervention: Guidance on Developing a Local Programme of Improvement, DH, 2005 (Crown copyright). 

7 Economic and Social Costs of Mental Illness in England Sainsbury Centre for Mental Health, 2003. 

8 A Technical Health Supplement for the East of England has been published alongside this strategy document. This presents a more comprehensive 

range of data of relevance to Healthy Futures.

What the Strategy does not address… 

1.9 The focus of this Strategy is health and health inequalities within the East of England, not the NHS or 

health service delivery. From the outset it is important to be clear that the Strategy does not therefore 

focus on: 

• Issues relating to employment, labour supply or working conditions in the health and social 

care sector specifically – whether that is part of the NHS, the private sector or the community/ 

voluntary sector 9 

• The performance, in economic terms, of the health and social care sector, or the scope for 

improving that performance 10 

• The actual or potential impacts of the NHS on the regional economy through, for example, 

procurement practices 

• The nature or implications of changing arrangements with regard to the delivery of NHS services 

in the East of England. 

1.10 All four of the issues raised above are important, and all four merit strategic consideration at a regional 

scale. However from the outset, the intention has been that Healthy Futures should focus solely on 

the health of people and inequalities in health within the East of England. Hence these allied issues 

are not addressed here although their significance is noted. 

Structure of this document 

1.11 In Chapter 2, we provide a summary statement of the policy context for Healthy Futures, drawing 

both on the range of strategies for the East of England and the national policy context. Key to this 

is the White Paper, Choosing Health, which was published by the DH in 2004. 

1.12 Thereafter, the document is divided into three main sections, each of which is sub-divided into 

a number of chapters. 

• Section A provides the backdrop to the Strategy by summarising the evidence base. It describes 

the health of people in the East of England (Chapter 3) and provides an analysis of the factors 

which are determining the health of people in the Region (Chapter 4) 

• Section B sets out the Regional Health Strategy for the East of England. In Chapter 5, a Vision 

for the health of people in the East of England is presented and three high level Themes are 

introduced. These are examined in more detail in subsequent chapters, each of which outlines 

three Strategic Priorities and a number of accompanying Actions 

• Section C explains the processes through which Healthy Futures will be delivered, linking with 

Local Area Agreements at a local level, through to the delivery structures for Choosing Health 

and for the priorities set out in the Integrated Regional Strategy at a regional scale. It also 

explains how the progress of the Strategy will be monitored over the years ahead. 

9 These issues are a concern: health and social care is a low paying sector and low pay is correlated with poor health. But low pay in the health 

and social care sector is no more of a focus for this Strategy than, for example, low pay and poor working conditions in the agricultural and 

tourism industries. 

10 Health and social care is one of the largest sectors of the economy and it is growing quickly; it has been identified as a key sector in the 

Regional Economic Strategy. 


02 Policy context for 

Healthy Futures 


The policy context for Healthy Futures is defined along two distinctive dimensions. Choosing 

Health – the White Paper published by the Government in November 2004 – provides the national 

policy backdrop; this emphasises the need to make it easier for individuals to make healthier choices. 

A second key dimension is concerned with the regional context and, specifically, the priorities and 

aspirations set out in key regional strategies. During 2004/05, these were distilled into Sustainable 

Futures, the East of England’s first Integrated Regional Strategy. This included a Vision of a better 

quality of life for everyone who lives or works in the East of England, and to this end it identified 

high level outcomes and a set of priorities for the Region. 

2.1 The policy context for Healthy Futures is defined along two distinctive dimensions. The national 

policy context must be understood in terms of the Government’s priorities for people’s health 

nation-wide. But ‘health’ does not exist outside the environment in which people live and work. 

Hence as the foundation for a forward-looking Regional Health Strategy, Government’s ambitions 

need to be interpreted through the prism of regional priorities for the East of England. In the 

paragraphs below we summarise both policy contexts. 

National policy context 

National policy for public health: Choosing Health and Delivering Choosing Health 

2.2 Choosing Health, the Government’s White Paper on public health, was published in November 

2004 with a focus on health promotion and the reduction of health inequalities. The White Paper 

was followed in March 2005 by Delivering Choosing Health, which provided a cross-government 

programme for implementation. 

2.3 The policies contained in Choosing Health were presented as radical and as representing the beginning 

of a new direction in public policy. In fact, there was a great deal of continuity with earlier public health 

policies: Health of the Nation (1992) and Saving Lives: Our Healthier Nation (1999). This continuity 

lay in the definition of priority areas; the targets adopted; and the underlying view of the role of the state 

in promoting population health. In Choosing Health, the latter was defined in terms of making it easier 

for individuals to make healthier choices and this became the fundamental theme of the White Paper. 

There were, however, two important exceptions to this position. One concerned children and young 

people (where it was acknowledged that a more paternalistic approach was needed). The other was 

the protection of people’s health from the adverse consequences of others’ actions. 

2.4 The White Paper stressed the economic arguments for improving population health. This followed 

the final Wanless Report in 2004. 11 Wanless modelled the national costs of health care going forwards 

to 2022/23 using three scenarios. The difference in future cost between the baseline scenario, which 

assumes no change in current trends, and the ‘fully engaged scenario’ is modelled at £30bn pa (2002/3 

prices) or 1.9% of Gross Domestic Product (GDP). In the latter scenario the population is assumed to 

take more responsibility for the maintenance of its own health by adopting healthier lifestyles. The 

economic motivation to improve population health was explicitly acknowledged in the White Paper. 

11 Securing Good Health for the Whole Population Final Report, Derek Wanless, HM Treasury/DH (Crown copyright), February 2004. 


20 

2.5 Against this backdrop, the White Paper sought to ‘make it easier for individuals to make healthy 

choices’. In addressing health inequalities, the solution was to make it easier for individuals from 

disadvantaged groups to exercise healthier choices. From this position, three key principles were 

developed: informed choice (people want to make their own decisions about choices that will 

affect their health); personalisation (the support provided by government needs to recognise the 

different circumstances of particular groups, and specifically, the difficulties faced by disadvantaged 

groups); and working together (delivering the strategy will require effective partnerships across 

communities, involving local government, the NHS, advertisers, business, retailers, the voluntary 

sector, media, and faith groups). Six priorities were then identified as over-arching: 

• Reducing the numbers of people who smoke 

• Reducing obesity and improving diet and nutrition 

• Increasing exercise 

• Encouraging and supporting sensible drinking 

• Improving sexual health 

• Improving mental health. 

2.6 In terms of implementation, key roles were identified at national, regional and local levels. 

In the context of a Regional Health Strategy, it is worth dwelling on the latter two: 

• At a regional scale, Regional Public Health Groups were identified as having a key role in integrating 

and co-ordinating activities at the regional level, identifying regional issues and priorities for health 

and presenting information on health at the regional level. But alongside these, Government 

Offices for the Regions, Regional Assemblies and Regional Development Agencies were also 

recognised as playing an important part in shaping the social determinants of health through 

their influence over strategy on transport, employment, the environment and regeneration. 

At a regional scale, Choosing Health was therefore seen as a multi-disciplinary endeavour 

• Similar arguments were made at a local level. Choosing Health identified that local authorities and 

PCTs share a responsibility to improve health and well-being by leading community partnerships; 

delivering on national targets; identifying local needs; and commissioning and delivering services. 

There are various structures for partnership working, including LSPs, Children’s Trusts and Crime 

and Disorder Reduction Partnerships. Increasingly, Local Area Agreements will provide a key vehicle 

for delivery planning. These are structured around four functional blocks: children and young 

people; safer and stronger communities; healthier communities and older people; and economic 

development and enterprise. The read-across to Healthy Futures is considerable. Hence through 

Local Area Agreements, LSPs will have a key role in delivering this Strategy (see Chapter 9). 

Frameworks/plans for public health in the East of England 

2.7 In parallel with the emergence of Choosing Health, work has been underway on the production of various 

regional plans concerned with different priorities identified in the White Paper (although work on some 

of these regional documents preceded the White Paper’s publication). With a focus on the broader 

determinants, Healthy Futures will complement and support their delivery. Three key documents are: 

• Smoke Free East: A Tobacco Control Framework for the East of England 2005-2010, which 

has recently been completed 12 

• Physical Activity Action Plan: this has been developed by the Regional Physical Activity Forum 

12 Available at www.go-east.gov.uk/goeast/public_health

• Food and Health Action Plan: the development of this Plan will be led by the East of England 

Public Health Group during 2006. It will link to the Obesity Framework which has recently been 

completed to support NHS delivery. 

Other national strategies and policies 

2.8 Alongside Choosing Health and its allied documents, Healthy Futures has been influenced and 

informed by various other national strategies that are concerned with health and well-being more 

generally. These include the National Strategy for Sustainable Development (published in 2005); 

the National Service Frameworks for Children, Young People and Maternity Services, and for Older 

People; the National Strategy for Neighbourhood Renewal (2001); and the Sustainable Communities Plan 

(2003). Reference to these and other national strategies and policies is made throughout this document. 

Broader regional policy context 

2.9 Within the East of England, the strategic context for Healthy Futures is set out in a suite of regional 

strategies. The most important – given the argument in Section A (which follows) – are the draft 

Regional Spatial Strategy (East of England Plan) which sets out priorities for spatial development 

Region-wide (including transport and housing provision) over the period to 2021; the Regional 

Economic Strategy which sets out the Region’s ambitions for the future of its economy; and the 

Regional Social Strategy, which is concerned with addressing social exclusion in the East of England. 13 

2.10 During 2004/05, the East of England Regional Assembly (EERA) led an exercise to review these – and 

other – regional strategies, to draw out common themes (and identify potential tensions) and hence 

to present a single Vision, a set of high level outcomes, and a composite set of priorities for the East 

of England as it looks to the future. This process resulted in the production of Sustainable Futures: 

the Integrated Regional Strategy for the East of England. This provides the main regional policy 

context for Healthy Futures (see Figure 2.1, overleaf). 

2.11 In preparing the Integrated Regional Strategy, the intention was that future regional strategies – 

such as Healthy Futures – should be developed in the context provided by the Integrated Regional 

Strategy, contributing to its overall Vision of a better quality of life for all who live or work in the 

Region. Beyond this, Healthy Futures will need to reflect and respond to the changing realities of the 

East of England as set out in the Integrated Regional Strategy. This identified eight Crucial Regional 

Issues for the East of England and – in developing the Regional Health Strategy – proper account needs 

to be taken of these. Hence there is a need to recognise fully the significance of the growth agenda, 

the tensions in terms of travel and transport, the dilemmas relating to the growth of the knowledge 

economy, the issues relating to the increasingly polarised labour market, continuing concerns around 

deprivation and social exclusion, rural issues and pressures on resource use, as well as what the 

Integrated Regional Strategy identified as Crucial Regional Issue 6 – health and well-being. 

Conclusion 

2.12 Drawing together the main themes set out in Choosing Health and the priorities identified through 

strategic processes in the East of England, it is clear that Healthy Futures needs to embrace the 

philosophy of Choosing Health – and equipping all people to do so effectively – but within the 

fast-changing and complex context that is the East of England. As the backdrop to the Strategy, 

these issues are examined in Section A. 

13 Note that the Regional Social Strategy includes within it a specific commitment to develop a regional strategy to address issues relating to public health. 


22 

Figure 2.1: Sustainable Futures: the Integrated Regional 

Strategy for the East of England 

(including the high level objectives set out in the Regional Sustainable Development Framework) 

The Vision is to improve the quality of life for everyone who 

lives or works in the East of England 

High Level Outcomes: 

1. An exceptional knowledge base and a dynamic economy in the Region 

2. Opportunities for everyone to contribute to – and benefit from – the Region’s dynamism 

3. Strong, inclusive, healthy and culturally rich communities 

4. A high quality and diverse natural and built environment 

5. A more resource-efficient Region. 

In seeking to achieve the Vision and High Level Outcomes, 

Priorities for the East of England are to: 

• Achieve high quality and sustainable solutions in Growth Areas and other parts of the Region 

facing growth and regeneration pressures 

• Harness fully the Region’s strengths in science, R&D, and in surrounding commercialisation 

processes 

• Address the causes and implications of persistent deprivation and social exclusion wherever 

it exists in the Region 

• Effect a step-change in the efficiency of resource use and the management of the Region’s 

distinctive natural and built environmental assets 

• Capture the benefits from – and manage the impacts of – the Region’s international gateways 

and national transport corridors. 

Regional Sustainable 

Development Framework 

Regional Environment 

Strategy 

Regional Housing 

Strategy 

Regional Sustainable Development Framework 

Premier League Regional Strategies 

Regional Social 

Strategy 

Regional Economic 

Strategy 

Regional Cultural 

Strategy 

First Division Regional Strategies 

Regional Sustainable Development Framework 

Regional Spatial 

Strategy 

Regional Health 

Strategy 

Sub-Regional and Local Strategies and Plans 

Regional Sustainable 

Development Framework

Section A: 

The health of people 



03 Describing the health of 

people in the East of England 


On most measures, people in the East of England are somewhat healthier than the national average: 

overall life expectancy is higher and the incidence of both cancer and CHD is lower. But within the 

Region, health inequalities are large and growing. The health of people in the East of England is 

also less good than in some European regions. 

There is a strong – although complicated – relationship between people’s health and levels of 

deprivation. For example, in 2002-03, 7% of people in social class I in the East of England were 

smokers compared to 33% in social class V, and cigarette smoking has been identified as one 

important reason for the observed gap in life expectancy between rich and poor. 

Within the East of England, these differences have a clear geography: areas such as Great Yarmouth, 

Luton, Tendring and Peterborough are characterised by a high incidence of deprivation, poor selfreported 

health and relatively low levels of life expectancy. However there are people living in poverty 

throughout the Region. There is a need also to recognise the particular health issues facing key groups 

within the population. These include older people (who may be isolated and find access to services 

difficult), black and minority ethnic communities, people with disabilities, lone parents, carers, gypsies 

and travellers, refugees and asylum seekers, prisoners and ex-offenders, and some migrant workers. 

3.1 On most measures, people in the East of England are somewhat healthier than the national average. 

But whilst the overall assessment is fairly positive, health inequalities within the Region are large 

and growing, and – on many measures – the health of people in this Region is less good than in 

comparable European Regions. In this chapter, we set out some of the key dimensions of health 

and health inequalities within the East of England. 

Demography 

3.2 The population of the East of England is currently about 5.4 million people. Over the last twenty 

years the Region’s population has grown at a rate that is close to double the average for England 

as a whole and – as Figure 3.1 demonstrates – this trend is set to continue. It is explained partly 

by net in-migration and partly by population ageing. 


26 

Figure 3.1: Comparative projected population growth, 

2003-2028 (2003 = 100) 

120 

115 

110 

105 

100 

95 

90 

85 

80 

2003 2008 2013 2018 2023 2028 

(Source: Office of National Statistics (ONS) 2003 sub-national population projections) 

3.3 Over this period, there has been a marked change in the age structure of the Region’s population 

and again, recent trends are set to continue. Projections suggest, for example, that between 2008 

and 2013, the number of people aged 65 or more will overtake the number aged 16 or less. In 

addition, the number of ‘very old’ people (aged 85+) in the Region is growing rapidly; an increase 

of 24% was projected between 1998 and 2008. 14 As the backdrop to Healthy Futures, these 

demographic changes are extremely important. 

14 East in Focus: the East of England Health Profile, 2001 ERPHO. 

England 

East of England

Figure 3.2: Projected trends in older people and children, 

2003-2028 

25% 

20% 

15% 

10% 

5% 

0% 

2003 2008 2013 2018 2023 2028 

(Source: ONS 2003 sub-national population projections) 

▲ 

▲ 

▲ 

• 

East 0-15 

East 65+ 

▲ 

▲ 

▲ 

England 0-15 

England 65+ 

▲ 


28 

Figure 3.3: Trend in female life expectancy showing highest 

and lowest compared to regional average 15 

84 

83 

82 

81 

80 

79 

78 1991-1993 

▲ 

Source: Graph prepared by Eastern Region Public Health Observatory (ERPHO) based on data from ONS (Life expectancy at birth in the East of 

England, 1991-93 to 2001-03, National Statistics) 

Life expectancy 

1992-1994 

1993-1995 

1994-1996 

3.4 Across the East of England, average life expectancy is about two years better than the national average. 

However as Figures 3.3 and 3.4 demonstrate, the gaps in life expectancy between the Local Authority 

Districts with the best and worst outcomes (Luton and South Cambridgeshire for females, and Fenland 

and South Cambridgeshire for males) are substantial and they have also increased over the last decade. 

Stevenage is one of the few Local Authority Districts in the country in which life expectancy (for 

females) actually declined throughout the 1990s. 

15 Stevenage is shown to illustrate decline over the last decade. 

▲ 

▲ 

▲ 

▲ 

East Region 

Luton 

▲ 

1995-1997 

▲ 

1996-1998 

▲ 

1997-1999 

▲ 

• 

1998-2000 


Stevenage 

▲ 

1999-2001 

▲ 

2000-2002 

▲ 

2001-2003

Figure 3.4: Trend in male life expectancy showing highest 

and lowest compared to regional average 

80 

78 

76 

74 

72 

70 1991-1993 

▲ 

▲ 

1992-1994 

▲ ▲ 

1993-1995 

1994-1996 

• 

East Region 

Fenland 

▲ 

1995-1997 

Source: Graph prepared by ERPHO based on data from ONS (Life expectancy at birth in the East of England, 1991-93 to 2001-03, National 

Statistics) 

▲ 

1996-1998 

▲ 

1997-1999 

▲ 

▲ 

1998-2000 


▲ 

1999-2001 

▲ 

2000-2002 

A Regional Health Strategy for the East of England 29 

▲ 

2001-2003

30 

Figure 3.5: Proportion of wards in each Local Authority 

District whose rate of poor health is significantly higher 

than the regional average (based on 2001 Census) 

0% of wards 1-10% of wards 11-30% of wards >31% of wards 

South Cambridgeshire Epping Forest Mid-Bedfordshire Great Yarmouth 

Brentwood Uttlesford Maldon Norwich 

Chelmsford East Cambridgeshire Castle Point Thurrock 

Rochford Three Rivers Fenland Peterborough 

Broxbourne Welwyn Hatfield South Bedfordshire Ipswich 

East Hertfordshire Breckland Waveney Southend-on-Sea 

North Hertfordshire Cambridge Basildon Luton 

St. Albans Colchester Braintree 

Broadland Dacorum Harlow 

North Norfolk Hertsmere Tendring 

Babergh Bedford King's Lynn & W Norfolk 

Forest Heath Stevenage 

Mid Suffolk Watford 

St.Edmundsbury South Norfolk 

Suffolk Coastal Huntingdonshire 

(Source: Data prepared by ERPHO) 

Poor health 

3.5 The 2001 Census gathered information on self-reported health. Allowing for differences in the age 

structure, Figure 3.5 shows the proportion of wards in each Local Authority District in the East of 

England in which the age-adjusted rate of poor health is significantly higher than the regional 

average. These data suggest that the incidence of poor health is highest in the larger urban areas 

(Luton, Southend-on-Sea, Thurrock, Norwich, Ipswich, Peterborough and Great Yarmouth), some 

of the more remote rural areas (e.g. Fenland and Maldon), and some of the Districts dominated 

by new towns/ post-war settlements (e.g. Harlow, Basildon). 

‘Big killers’ 

3.6 In the East of England – as elsewhere – CHD and cancer are the ‘big killers’. Key risk factors include 

smoking, obesity, physically inactive lifestyles, poor diet, excess salt, alcohol, diabetes and raised 

blood pressure. 16 

16 The CHD National Service Framework: Leading the Way Progress Report 2005, DH (Crown copyright).

3.7 In 2001, the incidence of all cancers in the East of England (excluding non-melanoma skin cancer) was 

about 360 per 100,000 population for males and 320 per 100,000 population for females; this rate 

increased marginally during the 1990s although there is a suggestion of a slight decline more recently. 

Compared to the UK as a whole, the East of England has fewer cancers strongly associated with 

smoking and deprivation (e.g. lung, pancreas). 17 

3.8 The prevalence of CHD (CHD) is more difficult to estimate. In 2003, age-standardised mortality rates 

for circulatory diseases in the East of England were 288 per 100,000 population for males (compared 

to 322 in England and Wales) and 344 per 100,000 population for females (compared to 371 in 

England and Wales); all of these figures had improved during the preceding decade. 18 

3.9 With regard to the incidence of both cancer and CHD, there is evidence of substantial inequality 

due to deprivation. 19 This can be observed between wards within Local Authority Districts in the 

East of England. Overall, there are more Local Authority Districts with inequality in CHD than 

cancer, and the degree of inequality also tends to be greater for CHD. 

Health and deprivation 

3.10 At a District level, Figure 3.6 summarises the relationships between life expectancy, changes in life 

expectancy, poor health and socio-economic inequalities in CHD and cancer. This is accompanied 

by a series of maps (see pp 34 -37) which illustrate spatial patterns of deprivation, poor health 

and life expectancy across PCT areas within the East of England. 

17 Cancer Incidence in the East INpho Briefing papers on topical public health issues, published by ERPHO May 2004 Issue 10. 

18 Region in Figures: East of England, National Statistics (Crown copyright) – Winter 2004/05 (No 9) Data from Table 7.14. 

19 Based on a measure known as the Slope Index of Inequality: this quantifies the extent to which there is inequality due to deprivation between 

wards in each of the East of England Local Authority Districts. 


32 

Figure 3.6: Life expectancy, changes in life expectancy, poor 

health and socio-economic inequalities in CHD and cancer 

across Local Authority districts within the East of England 


significantly lower 

than regional 

average 

Average % 

increase 

in Life Expectancy 

1991-2003 

Local Authority Male Female Male Female 

District 

% wards in LAD 

whose rate of 

poor health is 

significantly higher 

than EoE average 

Socio-economic 

inequality in CHD 


inequality in cancer 

East of England 3.1 1.6 17% 

Peterborough Yes Yes 1.9 0.6 43% Yes Yes 

Luton Yes Yes 2.6 0.6 53% Yes Yes 

Southend-on-Sea Yes Yes 2.2 0.6 47% Yes Yes 

Thurrock Yes 4.0 1.9 40% Yes Yes 

Mid Bedfordshire 4.0 3.5 12% Yes Yes 

Bedford 3.5 1.5 8% Yes Yes 

South Bedfordshire Yes 2.1 2.3 17% Yes 

Cambridge 2.7 0.4 7% Yes 

East Cambridgeshire 2.1 3.8 5% 

Fenland Yes Yes 1.2 1.5 15% 

Huntingdonshire 3.1 1.2 10% Yes Yes 

South Cambridgeshire 4.5 2.8 0% 

Basildon Yes 3.5 0.9 19% Yes Yes 

Braintree Yes 2.4 0.0 20% 

Brentwood 6.1 3.0 0% Yes Yes 

Castle Point 3.2 0.4 14% 

Chelmsford 2.0 2.5 0% 

Colchester 3.5 2.6 7% Yes 

Epping Forest 2.9 1.8 3% Yes 

Harlow 2.8 3.4 27% Yes 

Maldon 4.4 2.6 12% 

Rochford 4.9 2.8 0% 

Tendring Yes 2.7 0.7 29% Yes 

Uttlesford 3.9 2.0 4% 

Broxbourne 2.8 1.7 0% Yes

Local Authority Male Female Male Female 

District 

Dacorum 3.3 1.0 7% 

East Hertfordshire 3.4 2.8 0% 

Hertsmere 3.6 2.1 7% Yes Yes 

North Hertfordshire 2.4 1.8 0% 

St. Albans 4.0 3.1 0% Yes 

Stevenage Yes Yes 2.4 -2.6 8% Yes 

Three Rivers 3.2 1.5 5% Yes Yes 

Watford Yes Yes 2.1 0.1 8% Yes 

Welwyn Hatfield 3.5 1.5 6% Yes Yes 

Breckland 2.4 1.6 6% 

Broadland 3.8 1.4 0% 

Great Yarmouth Yes 3.3 1.9 35% Yes Yes 

King’s Lynn & WNorfolk 2.8 2.3 29% Yes Yes 

North Norfolk 3.6 2.0 0% 

Norwich Yes 3.7 1.0 38% Yes 

South Norfolk 3.4 2.9 8% 

Babergh 3.6 2.4 0% 

Forest Heath 3.5 0.5 0% 

Ipswich 2.8 1.4 44% 

Mid Suffolk 3.0 3.0 0% 

St. Edmundsbury 3.3 2.1 0% 

Suffolk Coastal 2.2 2.0 0% 

Waveney 2.7 1.9 17% 

(Source: Data provided by ERPHO) 


significantly lower 

than regional 

average 

Average % 

increase 

in Life Expectancy 

1991-2003 

% wards in LAD 

whose rate of 

poor health is 

significantly higher 

than EoE average 


inequality in CHD 


inequality in cancer 


34 

3.11 Looking together at Figure 3.6 and the six maps (which follow), several observations can be made: 

• There are a number of PCT areas which score consistently poorly on every measure. These include 

Great Yarmouth, Peterborough, Luton and Tendring. In these areas, the link between poverty, 

deprivation and poor health appears to be strong. This observation is confirmed by the data 

in Figure 3.6: in the main, life expectancy has increased more slowly than the regional average 

and there is a high local incidence of socio-economic inequality in both CHD and cancer 

• Conversely, there are several PCT areas which score consistently well on every measure: in South 

Cambridgeshire and St Albans and Harpenden, for example, the incidence of deprivation is low, 

people’s self-reported health is typically good and life expectancy is high for both females and 

males. Figure 3.6 also suggests that in these areas, life expectancy has increased at a faster rate 

than the regional average 

• There are other areas in which the picture is more mixed. Across much of the London fringe, for 

example, PCT areas score well in terms of measures from the Indices of Deprivation (ID) but these 

are not translated straightforwardly into good health outcomes. In part this may be explicable in 

terms of substantial local inequalities linked to the incidence of CHD and cancer. In Hertsmere 

and Three Rivers Local Authority Districts, for instance, Figure 3.6 suggests that the proportion 

of wards with a rate of poor health which is higher than the regional average is low but that 

there are sizeable socio-economic inequalities in both CHD and cancer. In both cases, rates of 

improvement in life expectancy have been close to the regional average. 

Figure 3.7: Child poverty Indices of Deprivation 2000 (ID 2000) 

PCT Weighted average ID 2000 Child poverty domain 

Weighted average of Child Poverty 

East of England: 24.7 

34.7 to 42.5 (7) 

24.7 to 34.7 (11) 

18.5 to 24.7 (7) 

9.8 to 18.5 (16) 

PCT Boundary 

SHA Boundary 

Source: erpho PCT Core Dataset 2003 

Based on Ordnance Survey Material. 

© Crown Copyright. All rights reserved. Erpho 100040338 2003

Figure 3.8: Unemployment Index of Multiple Deprivation (IMD 2000) 

PCT Weighted average IMD unemployment domain 

Weighted average of Unemployment 


11.9 to 16.6 (7) 

8.0 to 11.9 (8) 

6.4 to 8.0 (10) 

3.9 to 6.4 (16) 

PCT Boundary 

SHA Boundary 



© Crown Copyright. All rights reserved. Erpho 100040338 2003 

Figure 3.9: Multiple deprivation (IMD 2000) 

PCT Weighted average IMD 2000 score 

Weighted average of IMD 2000 score 


29.5 to 38.0 (5) 

17.9 to 29.5 (10) 

1.4 to 17.9 (9) 

6.0 to 14.7 (17) 

PCT Boundary 

SHA Boundary 





36 

Figure 3.10: Self-reported health 

Proportion of self-reported health given 

as ‘not good’ by PCT (2001) 

Percentage of the population 

East of England: 7.6 percent 

9.2 to 11.3 (8) 

7.6 to 9.2 (10) 

6.7 to 7.6 (11) 

5.4 to 6.7 (12) 

PCT boundary 

SHA boundary 

Source: Census 2001 Office for 

National Statistics 

Crown copyright material is reproduced with the permission 

of the Controller of HMSO and the Queen’s Printer for Scotland. 



Figure 3.11: Female life expectancy 

Female life expectancy from birth, 1999-2001 

Female life expectancy by PCT 

East of England: 81.1 years 

Significantly lower (7) 

Lower (12) 

Higher (16) 

Significantly higher (6) 

PCT boundary 

SHA boundary 

Source: erpho PCT Core dataset 2003 


© Crown Copyright. All rights reserved. Erpho 100040338 2003

Figure 3.12: Male life expectancy 

Male life expectancy from birth, 1999-2001 

Male life expectancy by PCT 

East of England: 76.6 years 

Significantly Lower (7) 

Lower (12) 

Higher (15) 

Significantly higher (7) 

PCT boundary 

SHA boundary 

Source: erpho PCT Core dataset 2003 



Vulnerable groups within the population 

3.12 The relationship between health and deprivation is strong and its geography is well established. 

But in addition, the particular issues faced by certain population groups must also be recognised; 

these groups may be dispersed within the overall population and hence largely invisible in terms 

of aggregate data. Within the East of England, the Regional Social Strategy has identified black 

and minority ethnic groups, people with disabilities, lone parents, older people, carers, asylum 

seekers, refugees and ex-offenders as especially vulnerable. In the paragraphs below we 

comment on key health issues relating to some of these groups. 

3.13 Older people – particularly those that live alone – often face significant challenges; as argued 

above, the Region’s demography is changing and older people comprise a growing proportion 

of the population. Isolation can be a problem and there are frequently major issues with regard 

to accessing services. In addition – nationally – 57% of the fuel poor are age 60 or over (reflecting 

the fact that properties in poor condition are disproportionately occupied by single older people) 

and poor housing design contributes to serious accidents, particularly among older people (who 

20 21 

account for almost half of the deaths from accidents in the home). 

3.14 People from black and minority ethnic (BME) communities face distinctive issues – although evidence 

suggests that BME groups are not uniformly at greater risk of poor health compared with whites. 

Nevertheless, many BME groups (with the exception of Chinese) are at much higher risk of diabetes 

mellitus than whites; Caribbeans and Pakistanis/Bangladeshis have a significantly higher risk of self 

reported poor or fair health than whites; and babies of Pakistani born mothers experience an infant 

20 The implications of an ageing population for the sustainable development of the East of England Study by Population Ageing Associates, for EERA, 2003. 

21 See Chapter 7. 


38 

mortality rate which is more than twice the average. Overall the evidence suggests that many of 

the health inequalities experienced by BME groups are explicable in terms of material deprivation; 

and the correlation between areas of the Region in which the ethnic population is relatively large 

and levels of deprivation are acute (see Figure 3.9) is a strong one. In addition, however, BME 

groups experience inadequate access to quality health services and this is a further contributory 

factor to poor health outcomes. 22 

3.15 Prisoners, ex-offenders and young offenders are vulnerable in terms of health outcomes. Within 

the East of England there are 14 prisons – a significant proportion of the national estate. The 

prison population is growing and it has a very high incidence of mental ill health. Hence there are 

complicated and important dimensions, including those linked to the rehabilitation of offenders. 

3.16 Another vulnerable group is Gypsy and Traveller communities such as English Romany Gypsies, 

Scottish and Welsh Travellers, Irish Heritage Travellers, Showpeople, New Travellers, Circus People 

and Bargees. A national study found that Gypsies and Travellers have significantly poorer health 

and more self-reported symptoms of ill-health than other UK-resident, BME groups and economically 

disadvantaged white UK residents. 23 Within this group, maternal health and infant health are especially 

problematic. Institutional barriers have been identified in terms of access to preventative health 

services, but these are compounded by a reluctance to engage with services, an anticipation of 

hostilities and a culture of self sufficiency. 24 Within the East of England, the Gypsy and Traveller 

population is relatively large. 

3.17 Refugees and asylum seekers within the East of England face a further set of health issues. These 

people are inherently vulnerable, having been forced to leave their country of origin, frequently 

because of persecution. Once in the UK, many are living in poor accommodation with insufficient or 

limited access to services and in many neighbourhoods they are viewed with hostility, suspicion and 

prejudice. In seeking to improve the health of people within the East of England and to reduce health 

inequalities, the issues facing refugees and asylum seekers need to be taken into account fully. 

3.18 Finally, it is important to comment on migrant workers. Migrant workers are defined by the 

Organisation for Economic Co-operation (OECD) as ‘foreigners admitted by the receiving State for 

the specific purpose of exercising an economic activity remunerated from within the receiving country’. 

The term ‘migrant workers’ embraces a great variety of situations and hence the health issues faced by 

migrant workers will also vary substantially. That said, access to health (and other) services can be an 

issue and some migrant workers find themselves living in poor accommodation, working very long 

hours and facing isolation and exclusion. 25 

22 Ethnicity and Health Inequalities INpho Briefing papers on topical public health issues September 2002, Issue 2. 

23 The Health Status of Gypsy and Travellers in England G Parry and P Van Cleemput (2004), University of Sheffield – for the DH. 

24 Gypsy and Traveller Communities: Accommodation, Education, Health, Skills and Employment – An East of England Perspective Study completed 

by Camille Warrington and Sherry Peck, for EEDA (March 2005). 

25 See, for example, http://www.gyros.org.uk

Conclusions 

3.19 Across the East of England, patterns of health and well-being are complicated. There are substantial 

variations in health between Districts, but also within them. All of the data suggest a strong relationship 

between poor health and deprivation, but the relationship is not a simple one: we can observe poor 

health outcomes in relatively affluent areas, suggesting that local inequalities may be just as – and 

some would argue more – problematic than overall conditions. Hence although there are serious issues 

in those parts of the Region which are known to have relatively weak economies (e.g. Great Yarmouth 

and Fenland), there are also issues in some areas which are generally considered to be buoyant: for 

example, female life expectancy hardly changed in Cambridge, Braintree and Watford from 1991-2003 

while in Stevenage it actually declined. In addition, it is important to acknowledge the particular issues 

faced by vulnerable groups and communities of interest which tend to be dispersed across the Region 

and hence largely invisible in terms of data. 


04 Understanding the health of 

people in the East of England 


What actually determines the health of the population is a complicated question. Within the 

East of England, key factors include: 

• A high incidence of employment in low paid jobs in sectors such as health and social care, 

tourism, and agriculture and food processing 

• Stress at work, particularly amongst those aged 50 or more (which is a growing proportion 

of the workforce) 

• A relatively large number of people of working age who are economically inactive: a proportion 

are long-term sick and deteriorating mental health can often be the issue 

• Relatively low levels of educational attainment, particularly in terms of progression to further 

and higher education and continuing learning in adulthood 

• Housing pressures, linked both to affordability and to the condition of housing 

• Poor access to services, particularly in rural areas and among some vulnerable groups 

• Weak social and community networks 

• Physical inactivity and increasing obesity 

• Lifestyle factors such as smoking, drug abuse, alcohol consumption and sexual health. 

Introduction 

4.1 For any individual, issues relating to age, genes and other constitutional factors are primary 

determinants of health. Nevertheless – as Chapter 3 demonstrated – looking across the East 

of England, we can observe that people of similar age and gender experience very different 

health outcomes. In the East of England – as elsewhere 26 – health has improved over recent years, 

but on many measures, health inequalities have increased. These trends reflect a range of social, 

economic and environmental conditions and processes. It is these wider issues – and their relationship 

to health and inequalities in health in the East of England, and the wider implications that follow – 

that form the focus for this chapter. 

4.2 Underpinning the discussions in this chapter are two theoretical approaches: 

• The first relates to the determinants of health. Public health practitioners argue that these need 

to be understood at different scales, ranging from lifestyle choices, through social and community 

networks to broader living and working environments, and more general socio-economic, cultural 

and environmental conditions. The relationship between these factors is summarised in one well 

known model of health determinants which is presented in Figure 4.1 

26 Independent Inquiry into Inequalities in Health, chaired by Sir Donald Acheson, published by the DH/The Stationery Office 

(Crown copyright), 1998. 


42 

Figure 4.1: The main determinants of health 27 

General socio-economic, cultural and environmental conditions 

Education 

Agriculture 

and 

food 

production 

Work 

environment 

Living and working 

conditions 

Social and community networks 

Individual lifestyle factors 

Age, sex and 

constitutional 

factors 

Unemployment 

Water & 

Sanitation 

Health 

Care 

Services 

• The second is the life course approach. There is substantial evidence that health – both good and 

bad – is transmitted from one generation to the next through economic, social and developmental 

processes: babies born to poorer families are more likely to be born prematurely, are at greater risk 

of infant mortality and have a greater likelihood of poverty, impaired development and chronic 

disease in later life. 28 Against this backdrop, the life course approach focuses on the experience 

of health from conception through childhood and adolescence to adulthood and old age. It argues 

that there are critical points at the transition between life stages where an individual may move 

in the direction of advantages or disadvantages in health. 29 

4.3 The two approaches need to be regarded as cross-cutting: individual determinants are manifested 

in different ways at different life stages, and as an individual moves from one life stage to the next, 

the nature of the determinants will change. 

4.4 In the paragraphs that follow, we examine each of the ‘layers’ within Figure 4.1, drawing on evidence 

and analysis from across the East of England to understand better the processes underpinning the 

data described in Chapter 3. As the strategy prepared by the Norfolk, Suffolk and Cambridgeshire SHA 

observes, around 15% of health differences are explicable in terms of genetic and biological factors, 30 

the other influences on health – which are the focus for Healthy Futures – are explicable in terms 

of these broader determinants. 

Housing 

27 Dahlgren G, Whitehead M. Policies and strategies to promote social equity in health Stockholm: Institute of Futures Studies, 1991 

(Diagram reproduced with the publisher’s permission). 

28 Tackling Health Inequalities: 2002 Cross-Cutting Review HM Treasury (Crown copyright). 

29 See, for example, ‘Childhood disadvantage and adult health: a life course framework’, Hilary Graham and Chris Power, 

Health Development Agency (HDA), 2004 

30 Health Strategy 2005-2010 Norfolk, Suffolk and Cambridgeshire Strategic Health Authority, 2005.

I: General socio-economic, cultural and environmental 

conditions 

4.5 Chapter 3 demonstrated a strong correlation between poor health outcomes and deprivation. But 

what is it about weak economies and social exclusion that translates into poor health outcomes? 

There are many different dimensions and in the paragraphs that follow, we examine three key ones: 

the nature of work and employment, education and learning, and broad environmental conditions. 

Work and employment in the East of England 

4.6 In the East of England – as elsewhere – work and employment are key elements of a dynamic economy. 

Hence it is no coincidence that Goal One from the Regional Economic Strategy is concerned with 

building a skills base that can support a world class economy: skills, work, employment and economic 

prosperity are thoroughly intertwined. 

Relationship between work and health 

4.7 As well as being integral to the economy, work is a primary source of status; often it is the way 

in which people are defined, both by others and by themselves. At an individual level, work and 

employment provide purpose, social support, structure and a means of participating in society, as 

well as income. 31 For all of these reasons, people’s experience of – and patterns of engagement in – 

work have important implications for their health. The links are well-established, but complicated: 32 

• Work which provides job satisfaction and allows individuals discretion, security and control over 

their working lives seems to confer considerable health benefits (and the reverse is also true). 

This appears to manifest itself during mid-life, a period during which social inequalities in health 

are especially apparent. 

• An absence of work – in the form of unemployment – produces negative health effects. It impacts 

on psychological well-being, social participation and physical health. Impacts tend to be especially 

acute late into an individual’s career. They are also problematic in the early years of employment; 

this in turn can have a substantial influence over the remainder of the life course. 

• The threat of unemployment/redundancy is closely correlated to increased illness, health service 

use and hospital admissions. 33 

4.8 One influential and robust examination of the relationship between work experiences and health 

outcomes was based on a longitudinal study 34 of the English civil service. This demonstrated that 

stress at work results from an imbalance between the psychological demands of work on the one 

hand and the degree of control over work on the other. In seeking to improve health outcomes, 

it made the case for a better balance between effort and reward. The latter was measured in three 

different ways: esteem, career opportunities (including job security and promotion prospects) and 

financial remuneration. 35 

31 ‘The Future of Work-Life Balance’ part of the Economic and Social Research Council (ESRC) ‘Future of Work’ Programme Seminar Series. 

32 Work, non-work, job satisfaction and psychological health: Evidence Review HDA, March 2005. 

33 Worklessness and health – what do we know about the causal relationship? HDA, March 2005. 

34 A longitudinal study is one which focuses on the same group of people over a long time period. 

35 Work, Stress, Health: The Whitehall II Study CCSU/Cabinet Office/UCL, 2004. 


44 

The changing experience of groups in the workforce 

4.9 Over the recent past, there is evidence that the world of work has become less satisfying and 

more stressful with most people claiming that they are working harder than previously. In the 

East of England and elsewhere, older people are a key and growing part of the labour force. 

Evidence from the ‘Working in Britain’ survey 36 suggested growing issues for the over-50s at 

work – particularly a feeling of being under pressure but also undervalued. 37 

4.10 Women are another critical part of the labour force. The same survey found that women had seen 

a greater proportionate increase in working hours than men during the 1990s. Women in their 30s 

and 40s have seen the largest increases in the amount of time they spend working in paid jobs 

although they are at an age when family responsibilities are at their greatest. 38 

Low pay and inequalities in pay 

4.11 In the East of England, the Regional Economic Strategy asserts that the Region has a ‘strong economy 

supported by a weak skills base’: across much of the Region, ‘the economy is trapped in a spiral of low 

value-added, low skills and low wages’. In the main, the problem is not unemployment: 39 the Region 

has one of the highest employment rates in the UK. Instead, the challenge is low wage levels and poor 

quality employment. For example, in rural parts of the East of England, 400,000 people – close to a 

sixth of the population in rural areas – live in low income households but half of these people live in 

households where someone is working. 40 The problems of low pay are also found in urban areas where 

there are often high concentrations of poorly-paid service jobs in both the public and private sectors. 

4.12 Within the Region, the ‘low wage – low skills equilibrium’ is especially problematic in some sectors: 

agriculture, health and social care, and tourism have all been identified in these terms and all of these 

sectors have above average proportions of low skilled workers. 41 In different ways, all three sectors are 

important for the regional economy and they are all cited in the Regional Economic Strategy. 42 But in all 

three, there are major challenges relating to the health of the workforce. As well as delivering benefits 

for the individuals concerned, their families and communities, addressing these challenges could reduce 

absenteeism, increase productivity and – hence – improve regional economic performance. 

4.13 Across the Region, the problems of low pay are exacerbated by inequalities in pay. Within the East 

of England, the extent of inequality is substantial: evidence suggests that the range in average pay 

at a local authority level lies between 76% and 150% of the regional average, 43 and at local and 

neighbourhood levels, the differences are greater again. 

36 Based on a survey undertaken during 2000 as part of ‘The Future of Work’, a £4m research Programme launched by the Economic and Social 

Research Council in October 1998 (see www.leeds.ac.uk/esrcfutureofwork/synopsis). 

37 ‘Diversity in Britain’s Labour Market’ part of the ESRC ‘Future of Work’ Programme Seminar Series. Further evidence for declining job satisfaction 

among older workers was cited in HDA’s evidence review ‘Work, non-work, job satisfaction and psychological health’ published March 2005. 

38 ‘Diversity in Britain’s Labour Market’ part of the ESRC ‘Future of Work’ Programme Seminar Series. 

39 There are exceptions within the Region, notably in some of the larger cities and coastal towns where levels of deprivation tend to be acute. 

40 Poverty and Social Exclusion in Rural East of England Observatories Social Exclusion Partnership Report, 2004. 

41 East of England 2004 Labour Market Assessment: Overview Report Prepared for EEDA by Step Ahead Research. 

42 A Shared Vision: The Regional Economic Strategy for the East of England EEDA, 2004 page 104. 

43 Health and Social Care and Sustainable Development in the East of England Centre for Public Services and the Nuffield Institute for Health, 

2004 page 38.

Worklessness in the East of England 

4.14 Over the last 10 years, unemployment rates have halved in the East of England. However the 

proportion of the working age population which is economically inactive has remained stable. 

Within the Region, there are about 155,000 people who are currently economically inactive but who 

would like to work. 44 Of these, around 71,000 are claiming Incapacity Benefit or Severe Disablement 

Allowance and/or have a work limiting illness lasting more than one year. Nationally, employment 

rates vary according to the type of sickness or disability and employer prejudices can be an issue: for 

people with diabetes the employment rate is over 60% while for those with mental health problems 

it is 17%. Analysis suggests that lone mothers and carers form a significant proportion of economically 

inactive women – and around a quarter of these report that they would like to be engaged in paid 

employment. A similar proportion of economically inactive people aged over 50 and below retirement 

age would like to work; here the main barriers are qualification and skills levels. 45 

4.15 Given the relationship between work and health, the issue of worklessness – which is seen most strongly 

in the East of England in terms of economic inactivity – raises important challenges for Healthy Futures; 

these are all the more important in the context of a region which reports labour shortages. 

Work, health and future challenges in the East of England 

4.16 In terms of the health of people in the East of England, issues relating to work and employment are 

posing challenges. In employment terms, the Region is set to grow significantly: the East of England 

Plan (draft Regional Spatial Strategy) makes provision for a projected net growth of 421,500 jobs in 

the period 2001-2021. If this is to contribute to an enhanced quality of life – including better health 

outcomes and reduced health inequalities – it is vital that quality jobs are created; these must provide 

people with meaningful work, good social interaction, prospects and income. 

4.17 However areas that have grown quickly in the past – including some of the new towns – have tended 

to create large numbers of relatively poor quality jobs, often in retail, leisure/tourism and back office 

service functions, and there has been concern that they might have encouraged young people out of 

education and training at the age of 16/17 – a critical moment in the life course. If increased economic 

activity is to be linked to improved health and reduced health inequalities, the Region will need to do 

better. Interesting and fulfilling jobs must be created in which there is an appropriate ‘effort-reward 

balance’ across all occupations. Employment growth of this nature should serve the best interests of 

the employee, the employer and the Region as a whole. Consistent with this argument, it is important 

to note that promoting access to work, tackling low pay and improving conditions of work has been 

identified as one of eight Strategic Objectives within the Regional Social Strategy. 

Education and learning 

‘Although the extent to which education has an independent effect on health status, and the 

mechanisms by which it does so are not fully understood, it does appear to have an important 

influence. This influence may be seen as both potentiating (providing the trigger for healthier 

lifestyles and behaviour) and protective (providing access to employment opportunities and life 

chances that can protect individuals from disadvantage in later life).’ 46 

44 Labour Market Statistics: June 2005 – East National Statistics (Crown copyright). 

45 ‘Increasing Employment Rates in Disadvantaged Communities’ Supporting document to the 2004 Labour Market Assessment for 

the East of England completed by Step Ahead Research for EEDA. 

46 Independent inquiry into inequalities in health report, chaired by Sir Donald Acheson, published by the DH/The Stationery Office 

(Crown copyright), 1998 page 38. 


46 

4.18 There is a direct relationship between people’s experience of education and learning; the opportunities 

available to them in the labour market; and, subsequently, their health outcomes. Currently, the 

Region’s performance is mixed and there are some substantial variations within it: 

• In 2003, the proportion of 15 year olds attaining five or more GCSEs at Grades A-C was 50.0% 

across the East of England compared to 52.9% across England as a whole. Within the Region it 

ranged from 46.1% in Bedfordshire and Luton to 58.1% in Hertfordshire 47 

• Rates of progression into higher education are lower than the UK average in seven of the ten 

county/unitary authority areas in the East of England: the proportion of young people (aged less 

than 21) entering higher education ranges from 16.6% in Thurrock to 47.5% in Hertfordshire 48 

• In terms of the skills of the resident population, Hertfordshire and Cambridgeshire have a lower 

proportion of low skilled residents than is found elsewhere in the Region and a higher proportion 

of high skilled residents 49 

• In 2003, survey evidence suggested that 44% of professionals had undertaken job related 

training in the previous 12 months compared to 16% of those working in skilled trades and 

13% of those in elementary occupations. 50 

4.19 At a regional scale, the correlation between higher levels of skills and better health outcomes is a 

strong one – although the underlying processes are complicated. In Suffolk, for example, success rates 

at GCSE (Level 2) and A Level (Level 3) are relatively good, but there is a high incidence of low skilled 

workers in the county. In part this is explicable in terms of the sectoral and occupational mix and in 

part through the out-migration of more highly skilled younger people. As the regional data cited above 

demonstrates, employer funded job-related training tends to focus on the higher occupational groups. 

This all suggests that patterns of labour market inequality – which have important spatial dimensions 

in the East of England – are, if anything, deepening. For young people living in rural parts of Suffolk, 

the lack of learning and career opportunities appears to be shaping key life decisions which will have 

a bearing on health outcomes, both for those that leave and those that remain in the area; in 

considering the Region’s medium-term health prospects, particularly in rural areas, the choices made 

by this cohort are extremely important. Arguments of this nature have underpinned the case for 

establishing a University Campus within the county and in time – accepting the links between low 

pay, unsatisfactory jobs and poor health – this ought to contribute to better health outcomes. 

4.20 Within the East of England, there are some social groups that are particularly disadvantaged in 

educational terms. Gypsy and Traveller children are, for example, at particular risk. This is explained 

in terms of high levels of racism towards Gypsy and Traveller children within schools; enforced mobility 

impacting negatively on access to education; difficulties of the education system in accommodating 

nomadism; and a secondary curriculum which is seen to be culturally inappropriate or irrelevant. 51 

The children of refugees are likely also to be disadvantaged. 

Environmental factors 

4.21 A wide range of environmental factors have a relationship to people’s health. These include radiation 

levels, the presence of chemical toxins, air quality, the quality of water supply, extremes of temperature, 

noise and over-crowding. In the context of respiratory and infectious diseases reaching epidemic 

47 Department for Education and Skills (DfES) School and College Performance Tables quoted in East of England 2004 Labour Market Assessment Overview 

Report prepared by Step Ahead Research for EEDA. 

48 KPMG, HESA and CACI quoted in quoted in East of England 2004 Labour Market Assessment Overview Report prepared by Step Ahead Research for EEDA. 

49 Census 2001, quoted in East of England 2004 Labour Market Assessment Overview Report prepared by Step Ahead Research for EEDA. 

50 Data from LFS quoted in East of England 2004 Labour Market Assessment Overview Report prepared by Step Ahead Research for EEDA. 

51 Gypsy and Traveller Communities: Accommodation, Education, Health, Skills and Employment – An East of England Perspective, Camille Warrington 

and Sherry Peck, for EEDA 2005.

proportions in recently urbanised populations after the industrial revolution, it was issues of this nature 

that dominated the earliest thinking with regard to public health. 52 

4.22 In the East of England in the 21st Century, determinants of health relating to the physical environment 

are evidenced in a less dramatic manner, but they are present nevertheless. Nationally, air pollution 

from particulate matter is linked to 8,100 premature deaths annually and sulphur dioxide to 3,500. 53 

The Regional Environment Strategy highlights that a major source of air pollution in the Region is 

emissions from traffic. Within the Region, in 2002, some 36% of households had two or more 

cars/vans (compared to 29% across England) and there were almost 83,000 vehicles per day on every 

kilometre of motorway in the Region (compared to 78,000 across England). 54 Despite technological 

improvements, increases in road traffic are contributing to air pollution 55 which is known to have 

negative health impacts, particularly in areas which are in close proximity to the source of emissions. 

But there are other indirect consequences for people’s health: within the East of England, the 

increasing use of motor vehicles, the increase in physical inactivity and the rising levels of obesity 

are causally inter-related. 56 

4.23 Noise is another environmental factor which has adverse impacts on population health. There is a 

body of evidence to suggest that chronic exposure to environmental noise leads to impaired cognitive 

function and health in children. 57 Noise from road traffic and air traffic are two key sources. 

4.24 Looking to the future, climate change is likely to have a substantial effect on people’s health. Nationally, 

an Expert Group on Climate Change and Health (formed at the request of Ministers at the Department 

of Health) has predicted that by the 2050s and as a result of climate change, heat-related deaths are 

likely to increase by about 2,000 cases per year; food poisoning will increase by 10,000 cases per year; 

there is likely to be a substantially increased risk of major disasters caused by severe winter gales and 

coastal flooding; and the incidence of skin cancer is likely to increase by 5,000 cases per year in the 

UK. 58 In the East of England, some areas are likely to be severely affected by the impacts of climate 

change: the low-lying Fens and Thames Gateway areas will be at greater risk of flooding and saline 

intrusion. 59 The report of the Expert Group on Climate Change and Health in the UK concluded by 

suggesting that the NHS ought to be able to cope. However there was one major exception – coastal 

flooding – and it is in this context that low lying parts of the East of England are vulnerable. 

II: Living and working conditions 

4.25 Nested underneath the broad social, economic and environmental factors which define the East 

of England – and caused in part by them – are the places/conditions in which people live, learn and 

work. These contribute to health outcomes. In seeking to improve the health of people within the 

East of England and reduce inequalities in health, it is important to understand this second ‘layer’ 

of determinants, both in terms of the current situation and future trends and drivers. The paragraphs 

that follow consider four elements: working and learning environments, housing, the design of 

settlements, and access to services. 

52 ‘Issues in Health Development – Environment and Health’ HDA, undated. 

53 Making the case: Improving health through transport HDA, 2004. 

54 Region in Figures – East of England, National Statistics (Crown copyright) No 9 Winter 2004/05. 

55 This point is also made in the sustainability appraisal of the draft East of England Plan. See East of England Plan Non-Technical Summary 

of the Sustainability Appraisal, Levett-Therivel and Land Use Consultants, November 2004. 


57 See the World Health Organisation website on ‘Noise and Health’ http://www.euro.who.int 

58 Health effects of climate change in the UK Authored by the Expert Group on Climate Change and Health in the UK. Department of Health (Crown 

copyright) 2001. 

59 Living with Climate Change in the East of England Report to the East of England Regional Assembly and the Sustainable Development Round Table 

by LUC, CAG and SQW, 2003. 


48 

Working and learning environments 

4.26 There is much evidence that the environments in which people work or study have important 

implications for their health; these are related to the broad ‘conditions’ described above – wage levels, 

the balance between effort and reward, etc. – but they are not reducible to them. The Whitehall II 

study found that ‘good levels of social supports had a protective effect on mental health and reduced 

the risk of spells of sickness absence’ while ‘a poor work environment – including poor social support 

at work – was one of the main factors explaining the higher prevalence of depressive symptoms 

among participants in the lower employment grades’. 60 

4.27 Choosing Health – the health White Paper – flags the importance of promoting health in the 

workplace. It identifies smoke free work environments as a priority and the desire for this has been 

expressed strongly in the East of England: of the 7,882 people who took part in the Big Smoke Debate 

in the East of England in 2004, some 80% would back a law to make all workplaces smoke free. 61 In 

addition, health and safety at work remains an important consideration. The 1974 Health and Safety 

at Work Act placed duties on employers to protect the health and safety of their employees. Since 

the Act was passed, the nature of work – and work places – has changed significantly; there are many 

more small workplaces, women comprise a greater proportion of the workforce and the service sector 

has grown. Over this period, progress on safety issues has been substantial but traditional interventions 

have been less effective vis-à-vis health; in moving forward, this is recognised as a priority. 62 

4.28 Within this overall context, one group which is especially ‘at risk’ is migrant workers, as exemplified 

by the Morecambe Bay disaster. Within the East of England there is a high incidence of migrant 

workers, many of whom are employed on a casual and/or seasonal basis. Across all sectors, a 

responsible approach to migrant workers needs to be encouraged; employers could, for example, 

play an important role in signposting migrant workers to local health services. 

4.29 Like working environments, learning environments are important for health. In this context, the National 

Healthy Schools Programme – which was launched in 1998 – is instructive; it encourages schools to 

work towards a healthy schools standard by investing in the health of their pupils and staff to help raise 

achievement and reduce health inequalities. Every Local Education Authority (LEA) in the UK is working 

in an accredited partnership with PCTs to manage their own local programme for the benefit of pupils, 

schools and local communities. Evidence from a review of Ofsted school inspection reports found that 

the Programme is contributing to raising pupil achievement and promoting social inclusion, and that 

it is having a greater impact in schools serving areas of socio-economic disadvantage. 63 

Housing 

4.30 The housing in which people live has a strong – but complex – relationship to their health. Within 

the East of England, there are major issues relating to the affordability of housing. Across much of 

the Region, house prices have risen much faster than incomes, making housing unaffordable for 

many people. 64 Hence particularly for those working in low paid occupations and/or low paid sectors, 

there are substantial challenges relating to home ownership. One consequence has been an increasing 

incidence of homelessness although – as the Regional Housing Strategy makes clear – homelessness 

may often be the end result of other social and health-related problems. In this context, it has identified 

young people (aged 16-17) as especially vulnerable; young people are relatively excluded from advice 

on housing and homelessness at a critical moment in their life course. 

60 Work, Stress, Health – The Whitehall II Study Cabinet Office/CCSU/UCL, 2004. 

61 Big Smoke Debate: Results from the East of England published by ERPHO, September 2004. 

62 A Strategy for Workplace Health and Safety in Great Britain to 2010 and Beyond HSC, 2004. 

63 http://www.wiredforhealth.gov.uk/ 

64 The Provision of Affordable Housing in the East of England 1996-2001 Report by Cambridge Centre for Housing and Planning Research for EERA, 2003.

4.31 The housing stock within the East of England is relatively modern; however much of the new town 

stock built in the 1940s and 1950s has reached the stage where serious modernisation is needed. By 

April 2002, there were 8,127 unfit local authority houses and 85,686 unfit private houses within the 

Region. 65 Poor housing has long been associated with a range of physical and mental health conditions. 

Evidence suggests that the effects of poor housing fall disproportionately on older people and children: 

• Children living in poor housing conditions are more susceptible to higher rates of accidents, 

infectious and chronic disease. Evidence suggests a relationship between overcrowding and 

both respiratory conditions and meningitis in children, and – further – that living in overcrowded 

conditions during childhood results in poor self-rated health in adulthood 66 

• There is evidence to suggest that cold housing leads directly to hypothermia and may lead 

to the excess in winter deaths seen in older people. 67 

4.32 Within the East of England, housing conditions are close to the average for England: in the social 

sector, for example, the proportion of houses in the Region which are overcrowded is similar to 

the English average. 68 Within the Region, the proportion of households experiencing fuel poverty 

declined between 1998 and 2001; nevertheless 6.1% of households continue to experience fuel 

poverty and elderly people living in un-modernised homes are at particular risk. 

4.33 With regard to housing needs within the Region, certain groups have been identified as being 

vulnerable. EEDA has recently investigated the accommodation needs of gypsy and traveller 

communities, concluding that a lack of secure accommodation is a major challenge and many 

gypsies and travellers are homeless. 69 EERA has examined the housing needs of refugees, 

recognising the particular challenges linked to integrating these people into the wider community. 

Design and form of settlements 

4.34 The design of settlements can have a substantial impact on the health of the people that live and work 

in them. In the context of the Sustainable Communities Plan, the East of England is facing substantial 

housing and population growth; the East of England Plan (draft Regional Spatial Strategy) makes 

provision for 478,000 net additional dwellings in the period to 2021. In this context, the design 

of settlements – both new and existing – is a major regional issue. In seeking to improve health 

and reduce health inequalities, two different dimensions need to be taken into account: 

• First, it will be essential that appropriate levels of health service provision are ‘planned into 

the design of new and existing settlements in the Region’s three Growth Areas and elsewhere. 

Substantial work on this front is already underway 70 

• Second, it will be imperative that settlements are designed in a manner that encourages healthy 

lifestyles. This requires, for example, that provision is made for green spaces, that footpaths and 

cycleways link areas of housing and areas of employment and hence the scope for physical activity 

is ‘designed in’ rather than ‘bolted on’ as plans for development – in existing and new settlements 

– take shape. 71 

65 The implications of an ageing population for the sustainable development of the East of England Study by Population Ageing Associates, for EERA, 2003. 

66 The Impact of Overcrowding on Health and Education: A Review of the Evidence and Literature Office of the Deputy Prime Minister (ODPM) 

(Crown copyright), 2004. 

67 Independent inquiry into inequalities in health report, chaired by Sir Donald Acheson, published by the DH/The Stationery Office (Crown copyright), 

1998 page 89. 

68 The Impact of Overcrowding on Health and Education: A Review of the Evidence and Literature ODPM (Crown copyright), 2004. 

69 Gypsy and Traveller Communities: Accommodation, Education, Health, Skills and Employment – An East of England Perspective, Camille Warrington 

and Sherry Peck, for EEDA 2005. 

70 Creating Sustainable Communities Making it Happen – Thames Gateway and the Growth Areas ODPM (Crown copyright), 2004. 

71 These issues are explored further in Chapter 6 in the context of Theme A. 


50 

Access to health care and other services 

4.35 A fourth key element of ‘living and working conditions’ that has a material bearing on people’s health 

experiences and health outcomes – and inequalities in both – relates to access to services. Poor access 

to services is a key cause of socio-economic exclusion. Nationally, it has been observed that ‘lack of 

access to transport is experienced disproportionately by women, children, disabled people, people from 

minority ethnic groups, older people and people with low socio-economic status, especially those living 

in remote rural areas’. 72 Survey evidence suggests that 31% of people without a car have difficulties 

travelling to their local hospital compared to 17% of people with a car. 73 Within the East of England, 

the Regional Social Strategy identifies similar concerns. It reports that a third of the 50,000 lone parents 

and 60% of pensioners in rural districts of the East of England do not own a car and are therefore 

likely to be seriously disadvantaged in terms of access to services; older single women pensioners are 

identified as the group of greatest concern. 

III: Social and community networks 

4.36 Evidence suggests that people’s experience of health and the actions they take to maintain good health 

are strongly influenced by their upbringing and family culture, peer groups, the media and health 

professionals. Typically, people with robust and diverse social networks have stronger immune systems, 

suffer less from heart disease, recover more quickly from emotional traumas such as bereavement, 

and seem to be more resistant to the debilitating effects of illness; this is explained in terms of social 

networks providing support and affirmation, including practical advice around health matters. 74 

4.37 Although there are exceptions, 75 high levels of social capital will generally contribute to enhancing 

people’s health. ‘Social capital’ is defined as ‘the networks, norms, relationships, values and informal 

sanctions that shape the quantity and co-operative quality of a society’s social interactions;’ 76 more 

simply, it can be considered as the ties that exist across families and communities and that help 

structure people’s everyday lives. Whilst causality is difficult to prove, evidence suggests that where 

social capital is weak, support for families and investment in community development can contribute 

in important ways to improving health outcomes. The implication – as one report has put it – is that 

‘policies to reduce social inequalities and to promote social networks are part of a strategy to reduce 

inequalities in health in just the same way as action on economic inequalities or improvements in the 

material environment of disadvantaged communities.’ 77 

4.38 In this context, the voluntary and community sector plays a key role. For an individual, the process 

of engaging in activities linked to the voluntary and community sector is itself indicative of some kind 

of network: people are largely recruited through word of mouth or knowing someone who is already 

involved. But the value of the voluntary and community sector goes further; much voluntary and 

community sector activity is linked – directly or indirectly – to the wider determinants of health 

through, for example, neighbourhood, sports and cultural associations. 


1998 page 56. 

73 Making the Connections: Final Report on Transport and Social Exclusion Report by the Social Exclusion Unit (Crown copyright), February 2003 

74 ‘Community development and networking for health’ Chapter by Alison Gilchrist in Public Health for the 21st Century edited by Orme et al (2003), 

Open University Press. 

75 E.g. peer pressure and social activities are known to support unhealthy habits, particularly among young people, in relation to smoking, drug use, 

alcohol consumption, etc. 

76 See Aldridge, S and Halpern, D ‘Social Capital: A Discussion Paper’ (2002), Cabinet Office: PIU. 


1998, page 17.

4.39 For the East of England, the implication is that those individuals and groups which are living in weak 

or fractured communities, and which are at risk of social exclusion, are likely also to be vulnerable in 

terms of poor health. Similarly, the breakdown of family relationships may also be a source of increased 

vulnerability to poor health outcomes. 

IV: Lifestyle factors 

4.40 In determining health outcomes, individual lifestyle factors are a fourth key consideration. Although 

these relate ultimately to decisions made by an individual, they are – in practice – difficult to divorce 

from the wider context in which they are made. Below, we consider key aspects of lifestyles in the 

East of England and their relationship to the more structural determinants described earlier. 

Smoking 

4.41 Smoking is the leading preventable cause of death in the East of England; it is estimated to have killed 

8,300 people per year in the Region in the period 1998-2002. Most people start smoking between the 

ages of 15-18 years and very few start smoking after the age of 24; in life course terms, this highlights 

the great importance – in determining health outcomes – of the transition to adulthood. Moreover, 

cigarette smoking has been identified as the primary reason for the observed gap in life expectancy 

between rich and poor: in 2002-03, 7% of people in social class I in the East of England were smokers 

compared to 33% in social class V. 78 

4.42 Trying to explain why people smoke is immensely complicated. Ultimately it is an individual choice, 

but peer influence during teenage years is one key factor. 79 Other studies have shown, for example, 

that young mothers are well aware of the negative health consequences of smoking but they took 

the view that the short-term benefits of smoking as a stress reliever when coping with the care of 

young children in poor physical circumstances outweighed the longer term effects. 80 

4.43 In the East of England, Smoke Free East: A Tobacco Control Framework for the East of England, 

2005-2010 has recently been completed. 81 This identifies five strategic priorities which aim to reduce 

exposure to secondhand smoke; reduce the uptake of smoking; promote smoking cessation; reduce 

inequalities caused by smoking; and strengthen community action for tobacco control. 

Exercise 

4.44 Government recommendations are that as a minimum, adults should undertake at least 30 minutes of 

moderate activity on at least five days a week (this can be accumulated in briefer episodes). Currently 

in the East of England, this minimum level is being achieved by 24% of women and 36% of men; 

both figures are below the English averages. 

4.45 Barriers to physical activity exist across the four determinants of health; they include individual factors 

(e.g. time pressures, inconvenience and lack of enjoyment), social factors (e.g. cultural norms and fear 

of crime) and environmental issues (e.g. poor access to safe pedestrian and cycle routes; poor quality 

of parks and public spaces; cost of and distance to facilities; and lack of access to skilled support). 

A change in culture is required to tackle physical activity effectively. Significant changes are needed 

at many levels, from individuals’ awareness of the potential benefits of physical activity and choosing 

to be more active, to changes in the physical environment to make it easier to be more active. 82 

78 Smoking in the East of England: An Update ERPHO March 2005. 

79 ‘Community Development and Networking for Health’ by Alison Gilchrist in Public Health in the 21st Century, Edited by Orme et al, 2003, Open University Press. 

80 ‘The lay contribution to public health’ by Pat Taylor, in Public Health in the 21st Century, Edited by Orme et al, 2003, Open University Press 

81 See www.goeast.gov.uk 

82 Physical Activity in the East of England ERPHO 2005. 


52 

Diet 

‘People in lower socio-economic groups tend to eat less fruit and vegetables, and less food which 

is rich in dietary fibre…. As a consequence, those in lower socio-economic groups tend to have low 

intakes of anti-oxidant and other vitamins, and some minerals, especially relative to intakes in higher 

socio-economic groups’. 83 

4.46 A great deal of work has been done to examine the reasons behind a poor diet. A report by the 

National Food Alliance challenged the presumption that anyone living in the UK could choose a 

healthy diet, arguing that to make good choices, people needed appropriate information, better 

access to appropriate sources of food and more money to spend on food. 84 Subsequently the 

Policy Commission on The Future of Farming and Food flagged the phenomenon of ‘food 

deserts’ asserting that ‘there are places where low income consumers cannot access [healthy] 

food at reasonable prices, particularly fruit and vegetables. The major supermarkets do not 

operate there, and local shops do not provide fresh produce.’ 85 

4.47 Food deserts are generally associated with inner urban areas. However the phenomenon is not 

exclusively urban. A study undertaken in Norfolk in 2002 estimated that only about a quarter 

of villages had a shop which sold any fruit and vegetables. It observed further that while village 

shops were used for ‘top-up’ shopping by most customers, a few residents – particularly older 

people – relied heavily on them. 86 Hence for a potentially vulnerable group of people, there is 

evidence of food deserts in rural parts of the East of England. 

Obesity 

4.48 Obesity is caused when the amount of energy expended is less than energy intake. In the East of 

England, among adults (aged 16-64), the proportion of the population that is overweight or obese 

is 55% in social class I (professional) and 64% in social class V (unskilled manual). Spatially, levels of 

obesity are higher among sub-urban and rural populations than among people living in urban areas. 87 

Sexual Health 

4.49 Trends in sexual behaviour in the East of England are similar to national patterns. Overall, more people 

are becoming sexually active at a younger age; however there is a strong socio-economic gradient 

and problems associated with becoming sexually active at a young age are closely correlated with 

poor levels of educational attainment, early school leaving age, family disruption and other forms 

of disadvantage. Hence the links to the broader determinants are again evident; for example, 

almost half of under-18 conceptions occur in the most deprived 20% of wards. 88 Across the 

Region, the incidence of sexually transmitted infections is increasing, especially among young people. 89 


1998 page 63. 

84 Myths About Food and Low Income - If They Don’t Eat a Healthy Diet it’s Their Own Fault! National Food Alliance (1997). 

85 Farming and Food: A Sustainable Future Report of the Policy Commission on the Future of Farming and Food, 2002 (available from the Cabinet Office 

website www.cabinetoffice.gov.uk). 

86 Food access and inequalities in rural Norfolk Report by Tully Wakeman, East Anglia Food Link, May 2002. 


88 This issue is considered further in Chapter 7. 

89 Sexual Health in the East of England ERPHO INpho Briefing Papers on Topical Public Health Issues, October 2003 Issue 6.

Alcohol 

4.50 Alcohol can cause significant physical, psychological and social harm if misused. Guidelines for sensible 

drinking state that regular consumption of up to 21 units per week for men and 14 for women does 

not accrue significant health risks 90 – equivalent daily limits are less than 3-4 units per day for men 

and less than 2-3 units per day for women (with two alcohol-free days after heavy drinking). Regular 

drinking, including binge drinking, above these levels is not recommended because of the progressive 

health risk this carries. In the East of England, the proportion of women consuming 21-35 units per 

week increased from 2% to 7% between 1993 and 2002; the proportion consuming more than 35 

units per week increased from 2% to 4% over the same period. 91 

Conclusions 

4.51 What determines the health of people in the East of England is, in practice, extremely complicated. 

Causal pathways are multi-dimensional and different layers of health determinants interact with 

each other – in different ways during an individual’s life course – to determine health outcomes. 

4.52 Looking across the four layers, we might summarise the different challenges in terms of different stages 

of the life course, recognising that considerations relating to gender, ethnicity, poverty and geography 

cut across each of these. A summary table which considers all of these dimensions is presented in 

Figure 4.2 overleaf. 

90 Sensible Drinking: the report of an inter-departmental working group. London: DH, 1995. 

91 Alcohol Use in the East of England (draft): ERPHO, October 2005. 


54 

Figure 4.2: Summary table highlighting the relationship 

between different determinants of health as they relate 

to the East of England at key transitions in the life course 

Babies 

and young 

children 

(0-5 years) 

and their 

families 

Young 

people 

(c.16-22 

years) 

Older 

people 

General socio-economic, cultural 

and environmental conditions Living and working conditions 

• Some 200,000 children are estimated 

to be living in poverty in the East of 

England. Factors associated with low 

income families include worklessness, 

single parenthood, disability, a head 

of household from an ethnic minority, 

and lower age of mother 

• There is some evidence that children 

within poorer families are badly affected 

by emissions from traffic as ‘rat runs’, 

etc. are close to their homes 

• One challenge for the Region is to 

encourage young people to remain in 

education post-16: there are lots of low 

paid jobs available, particularly in those 

parts of the Region that are growing 

quickly and in rural areas 

• Many young people in the Region have 

high aspirations career-wise but end 

up in jobs which they consider to be 

disappointing; this is a cause of low 

self esteem and it can have adverse 

implications for their health 

• Many of the young people that do 

complete Further Education/Higher 

Education (FE/HE) courses have 

substantial debt. Particularly if they end 

up in relatively poorly paid employment, 

this can be problematic 

• People of older working age are coming 

under experiencing increased stress 

within the workplace and yet people 

within the Region are likely to need 

to work for longer 

• Poor housing has adverse impacts 

on the health of young children 

• Evidence suggests that early years 

learning can improve educational 

performance in later life and this 

has important implications for health 

• Young children need to have scope 

for an hour or more of physical 

activity every day. This means that 

playgrounds, etc., that are safe need 

to be provided 

• Evidence suggests that participation 

in physical activity drops off sharply – 

particularly for women – once it is not 

a compulsory school activity. ‘Designing 

in’ exercise is therefore likely to be 

especially important for this group 

• Homelessness can be a particular 

problem for young people and 

currently, access to relevant services 

is poor for this age group 

• The incidence of teenage pregnancies 

tends to cluster around particular 

schools suggesting that support from 

and through schools might have 

a significant impact on teenage 

conception rates. This in turn 

has long-term health implications 

• Older people – many of whom are 

home owners – may be living in poor 

housing conditions. Particularly for 

older, single, women in isolated rural 

areas, this is a concern 

• Fear of crime tends to be especially 

acute among older people and 

this can limit access to services

Social and community networks Lifestyle networks 

• In the main, networks ought to be reasonably good 

for mothers and young children, other than the most 

disadvantaged 

• Networks are very influential in encouraging healthy 

or unhealthy behaviour: peer influence can result in 

very positive or very negative outcomes 

• As people approach retirement, one important source 

of social networks can disappear; this is a source of real 

vulnerability 

• Older people may become lonely and isolated following 

bereavement and this can make them extremely vulnerable; 

in the East of England there appears to be a particular 

problem facing elderly widows living alone in large, isolated 

houses which may also be falling into disrepair 

• Poor diet during the first five years 

of life can have long-term implications 

• Most people who smoke, start smoking 

in their teenage years; this has long-term 

implications for people’s health 

• Poor habits in terms of diet and cooking may 

begin as people leave home and these habits 

can be difficult to break later. It is important 

that this group of people knows how to 

handle food and make good food choices 

• Consumption of alcohol amongst this group 

can be excessive and this cohort is also prone 

to experimentation in illegal drugs 

• Sexual health issues were raised as a major 

issue in Choosing Health and it is likely 

that these are especially relevant for people 

in this age group 

• The transition to retirement is a major life 

change at which disposable income may 

fall significantly. This in turn will have 

implications for consumption decisions 

• It is important that older people are able 

to remain physically active; this has been 

shown to improve mental alertness 


Section B: Healthy Futures: 

Regional Health Strategy 



05 Healthy Futures: the strategy 


Taking into account the key determinants of health in the East of England, the policy context provided 

by the Choosing Health White Paper and the strategic context provided by the Integrated Regional 

Strategy, Healthy Futures has been developed. It focuses on issues which are especially important 

to the East of England and which can be influenced at a regional scale. 

The core of Healthy Futures is defined by a Vision that may be simply stated: ‘to improve the 

health of the population and to reduce health inequalities in the East of England.’ In order 

to achieve this Vision, three broad Themes are identified, each of which embraces a number of 

distinct Strategic Priorities: 

• Theme A: Health in Sustainable Communities 

• Theme B: Health at Key Life Stages 

• Theme C: Health in a Connected Region. 

Actions have been identified relating to each Strategic Priority. The Actions are intended to support 

and influence a range of much bigger regional and local strategic processes; working through 

these other delivery processes, progress towards the Vision ought to be achieved. 

The Strategy’s components 

5.1 The analysis in Chapters 3 and 4 has painted a complex and dynamic picture of health and health 

inequalities in the East of England. The underlying causes relate to a range of factors – from broad 

regional conditions through social networks to the specific lifestyle choices that individuals make. 

Cutting across these, it is clear that particular groups in the population are affected in different ways 

and the needs of groups which are vulnerable should be recognised explicitly. A third important 

dimension surrounds Key Life Stages, recognising that there are specific (but cumulative) 

health-related opportunities and threats as people move from one life stage to the next. 

5.2 Healthy Futures needs to make sense of this complexity in a manner that is specific and appropriate 

to the East of England. In addition, it must recognise what can – and what cannot – be achieved 

at the regional scale. Some issues are not in the Region’s gift to determine: the Region cannot, for 

example, make regulatory or fiscal changes (although it may have some discretion in implementation). 

These considerations have been instrumental in shaping Healthy Futures. 

5.3 In short, we have taken on board the factors that are determining the health of people in our 

Region; we have appraised these in the light both of regional priorities set out in the Integrated 

Regional Strategy, and national priorities articulated in Choosing Health; and then we have 

identified those priorities that we believe the Region, as a whole, can and must respond to. 

Our Strategy has been built up in this manner. 


60 

5.4 Healthy Futures has a number of different components: one Vision, three Themes, nine Strategic 

Priorities and accompanying regional Actions. 92 These Actions – which will be subject to on-going 

development and review – take a number of forms: 

• Targeted research and investigation, contributing to the development of the regional evidence base 

• Preparation of guidance and/or training materials, focusing especially on ‘mainstreaming’ 

key priorities from within Healthy Futures across a range of delivery processes 

• Gathering and disseminating good practice (much of it generated locally) and data/intelligence 

to relevant partners across the Region 

• Raising awareness of key issues and influencing the range of processes that can contribute 

to them 

• Influencing government, particularly in response to issues that manifest themselves at 

a regional scale. 

5.5 On their own, Actions of this nature are not going to deliver the Vision set out in Healthy Futures. 

However the Actions ought to be able to influence the three sets of delivery processes linked to: the 

Integrated Regional Strategy; Choosing Health; and local and sub-regional priorities (particularly those 

defined by LSPs and being advanced – across much of the Region – through Local Area Agreements, 

and those services being influenced by Investing in Communities (IiC) partnership programmes). 93 These 

in turn – and in combination – ought to be able to make a real difference to the health and well-being 

of people in the East of England. 

Healthy Futures: the Strategy 

Vision 

5.6 The core of Healthy Futures is defined by a Vision that may be simply stated: 

To improve the health of the population and to reduce health inequalities in the East of England. 

5.7 The range of factors which are shaping the health of people in the East of England is enormous; 

achieving this Vision is not going to be easy, particularly given the intention both to improve overall 

health and to reduce inequalities in health. However we must – as a Region – address these issues. 

As Figure 5.1 demonstrates clearly, on key indicators – such as life expectancy (and the graph 

illustrates variations in male life expectancy) – inequalities across the Region are currently increasing; 

this is a trend that we need to reverse whilst seeking also to improve overall population health. 

92 In Chapters 6-8, Action Tables follow discussions of each Strategic Priority. These have been developed in consultation with partners and they 

will be subject to on-going development and review. The timescales set out in the Tables relate to the approximate period over which Actions 

will be completed; progress on all of the Actions needs to be achieved relatively quickly, including those that are described as ‘long-term’. 

The expectation is that the Action Tables will be reviewed and refreshed on a regular basis. 

93 The delivery of Healthy Futures is considered further in Chapter 9.

Figure 5.1: Male Life Expectancy in the East of England for 

the least and most deprived quintiles of Local Authorities 

Male Life Expectancy (Years) 

79 

78 

77 

76 

75 

74 

73 

72 

71 1991-1993 

(Source: Data provided by ERPHO) 

▲ 

Themes and Strategic Priorities 

▲ 

1.7yrs 

1992-1994 

1993-1995 

1994-1996 

5.8 Sitting beneath the Vision, we have identified three key Themes, each of which embraces distinct 

Strategic Priorities. These reflect the key determinants of health, but they do so in a way that is specific 

to the particular issues and challenges facing the East of England. They take account, for example, 

of the Sustainable Communities Plan and the fact that three of the four Growth Areas designated 

by government are partially within the East of England; the increasingly polarised labour market 

within the Region; the ageing population; and the growing role of the East of England in terms 

of international gateways. There is a great deal of read-across between the different Themes and 

Strategic Priorities; in delivery, they will complement each other in important ways. The three key 

Themes are introduced in the paragraphs that follow. 


▲ 

▲ 

5.9 In the East of England, there are particular challenges in striving towards healthy, sustainable 

communities. These reflect, inter alia, the pace of growth; the challenges linked to resources such 

as water supply; and the accumulated shortfall in investment in the surrounding infrastructures – 

both hard and soft. 

▲ 

1995-1997 

▲ 

1996-1998 

▲ 

• 

▲ 

1997-1999 

Least deprived quintile of LAs 

Most deprived quintile of LAs 

▲ 

1998-2000 

▲ 

1999-2001 

▲ 

2.6yrs 

2000-2002 

A Regional Health Strategy for the East of England 61 

▲ 

2001-2003

62 

5.10 In response there is a need to ensure that new and existing communities are designed to be healthy; 

to build community cohesion and support the development of social capital, particularly for people 

experiencing disadvantage; and to take steps to ensure that all people within the Region are genuinely 

in a position to ‘Choose Health’. 


5.11 People of different ages within the East of England are facing quite different issues with regard 

to their health and well-being. These need to be understood and addressed if the health of the 

population is to be improved and the extent of health inequalities reduced: 

• First, it is vital that we address the issues facing children and young people. The issues relating 

to young children and their families are very important while the transition into adulthood is 

a second key factor in terms of long-term health outcomes. The Region must support all its 

children and young people – and their families/carers – better 

• Second, much can be done to improve the health of people of working age. For those in 

employment, work is a big part of life and depending on the nature and experience of work, 

it can contribute either positively or negatively to health. For those who are economically inactive, 

there is also a wide range of health issues. Sometimes poor health excludes people from work 

and this can be a particular source of isolation and vulnerability 

• Third, given the Region’s changing demography, it is vital to recognise the issues pertaining to older 

people. The concept of ‘active ageing’ needs to be embraced fully, encouraging full participation 

and both recognising and supporting the role that older people can and do play in communities 

throughout the East of England. 


5.12 The third major Theme that defines Healthy Futures is concerned with the position of the East 

of England globally. The East of England is intrinsically – and increasingly – inter-connected. In this 

context, three major issues – all of which were identified in the Integrated Regional Strategy – will 

have a significant bearing on the future health of the population and on health inequalities. All three 

need to be addressed in advancing the Strategy. Hence there is a need to recognise and respond to 

the practical implications of international gateways; to harness the East of England’s international 

position to encourage learning, knowledge development and R&D for health; and to understand 

and plan for the impacts of climate change and the more sustainable use of resources within the 

Region, in terms of health and health inequalities issues. 

5.13 The Vision and Themes – and the Strategic Priorities which follow – are summarised in Figure 5.2 and 

described in subsequent chapters. For each Strategic Priority a number of Actions are also identified.

Figure 5.2: Healthy Futures: the Regional Health Strategy 


Vision: To improve the health of the population and reduce 

health inequalities in the East of England 

Theme A: Health 

in Sustainable 

Communities 



foundations of healthy lifestyles 

are designed creatively into 

new and existing communities 

within the East of England. 

SP2: To provide infrastructure 

and support to build social 

capital, particularly among those 

communities (both geographical 

communities, communities of 

interest) which are experiencing 

poor health outcomes. 


communities to ‘Choose Health’ 

positively and more easily 

National Priorities 

set out in the 


White Paper 

Theme B: Health 

at Key Life Stages 


and young people in the East 

of England can get off to a 

healthy start in life 

SP5: To encourage better health 

for people in the East of England 

throughout their working lives 

SP6: To support people in the 

East of England in ‘active ageing’ 

and adding life to years 

Evidence and Analysis 

relating to the nature 

and extent of health and 

health inequalities issues 

Theme C: Health in 

a Connected Region 

SP7: To recognise and respond 

to the practical implications 

of international gateways for 

health and health inequalities 

within the East of England. 


England’s international position 

to encourage learning, knowledge 

development and R&D for health. 

SP9: To understand and plan for 

the impacts of climate change 

and the more sustainable use 

of resources within the Region 

in terms of health and health 

inequalities issues. 

Priorities from Regional 

Strategies in the 



06 Theme A: Health in 

Sustainable Communities 


Theme A is concerned with Health in sustainable communities. This is a particular challenge in the 

East of England given the pace of population growth and the pressure on resources. Three Strategic 

Priorities are identified, together with appropriate Actions: 

• Strategic Priority 1: To ensure that the social, economic and environmental foundations of 

healthy lifestyles are designed creatively into new and existing communities in the East of England 

• Strategic Priority 2: To provide infrastructure and sustained support to build social capital, 

particularly among those communities (geographical communities, communities of interest 

and potentially vulnerable groups) which are experiencing poor health outcomes 

• Strategic Priority 3: To make it possible for communities to ‘Choose Health’ positively 

and more easily 

6.1 Health is – or should be – an integral element of sustainable communities. The new UK Sustainable 

Development Strategy sets out some of the most important requirements of sustainable communities; 

these are summarised in Figure 6.1 below. 

Figure 6.1: What makes Sustainable Communities? 94 

Sustainable communities are places where people want to live and work, now and in the future. 

They meet the diverse needs of existing and future residents, are sensitive to their environment, 

and contribute to a high quality of life. They are safe and inclusive, well planned, built and run, 

and offer equality of opportunity and good services for all. 

Sustainable communities should be: 

• Active, inclusive and safe – fair, tolerant and cohesive with a strong local culture and other 

shared community activities 

• Well run – with effective and inclusive participation, representation and leadership 

• Environmentally sensitive – providing places for people to live that are considerate 

of the environment 

• Well designed and built – featuring a good quality built and natural environment 

• Well connected – with good transport services and communication linking people to jobs, 

schools, health and other services 

• Thriving – with a flourishing and diverse local economy 

• Well served – with public, private, community and voluntary services that are appropriate 

to people’s needs and accessible to all 

• Fair for everyone – including those in other communities, now and in the future 

94 Securing the Future: Delivering UK Sustainable Development Strategy, HM Government, 2005 (Crown copyright). 


66 

6.2 In the East of England, there are particular challenges – and opportunities – in striving towards healthy 

sustainable communities. The agenda is enormous and it extends far beyond the remit of Healthy 

Futures. However in seeking to deliver the Vision set out in Chapter 5, three elements are especially 

important and these have defined three Strategic Priorities. 

Strategic Priority 1: To ensure that the social, economic and 

environmental foundations of healthy lifestyles are designed 

creatively into new and existing communities in the East of England 

6.3 The manner in which settlements are planned and designed contributes significantly to the health 

of the people who live in them. Bad planning and design results in poor health outcomes; conversely, 

good planning and design can be positively health-enhancing. These arguments have long underpinned 

policy. The World Health Organisation, for example, has supported the concept of ‘Healthy Cities’ and 

Phase IV of the World Health Organisation’s Healthy Cities Network in Europe (2003-2007) sets out two 

key priorities: 

• Healthy urban planning – encouraging planners to integrate health considerations into 

planning strategies 

• Health impact assessment (HIAs) – promoting HIAs to support inter-sectoral action for promoting 

health and reducing inequality. 95 

6.4 Although there are challenges linked to growth in the East of England – both in regeneration areas and 

areas which are already buoyant – there are also real opportunities. Settlements (both new and existing) 

that are being (re)designed need to contribute in a positive way to the health of the people who will 

live in them. New developments – whether residential, mixed use or town centre – need to be actively 

health promoting. In addition, appropriate health infrastructures need to be planned in anticipation 

of population and housing growth. More generally, account needs to be taken of changing lifestyles, 

expectations and aspirations, informed by the underlying determinants of population health described 

in Chapters 3 and 4 and the policy drivers set out in Chapter 2. 96 Hence there is a need to: 

• Recognise that many people (particularly women) are juggling paid work with caring 

responsibilities: planning and design – in terms of the proximity and accessibility between 

places of employment, housing and the broader social infrastructure – can have a 

material bearing on the ability of people to cope 

• Plan for population ageing: a range of housing types – including lifetime homes – ought to be 

planned from the outset and account ought to be taken of the need for closer proximity/easier 

access to services, reducing feelings of isolation and improving community safety 

• Ensure that places are designed to minimise the risk and fear of crime 

• Take into account the critical importance of accessible green space in urban and rural areas, 

recognising its significance in terms of recreation and amenities, the broader ‘liveability’ 

agenda, 97 and the clear links to physical and mental well-being 

• Recognise the significance of building social capital and creating a real sense of community. 

Hence, designing in appropriate social infrastructures is imperative, including provision for 

a range of cultural, faith-based, sporting and leisure activities 

95 Phase IV (2003-07) of the World Health Organisation’s Healthy Cities Network in Europe, World Health Organisation (2003). 

96 The recently published White Paper on healthcare outside hospitals ‘Our Health, Our Care, Our Say’ will also need to be taken into account. 

97 The liveability agenda is about creating places where people choose to live and work. In 2003, ODPM launched a ‘Liveability Fund’ to support 

significant Local Authority projects to improve parks and public spaces.

• Acknowledge the potential links between health and the sustainable use of resources. Many 

different elements could be cited, including water resources and energy use. One further important 

component relates to the generation of waste; in this context it will be important to ensure that 

waste management is included within design criteria for new/existing settlements, following the 

principles set out in Planning Policy Statement 10 (Planning for Sustainable Waste Management). 

6.5 In addition, it will be imperative that the links between healthy communities and transport planning 

are made fully and creatively. 98 In terms of health outcomes, transport – which includes walking 

and cycling as well as the use of private vehicles and public transport – is double-edged. Its healthpromoting 

aspects can include access, recreation, exercise and economic development. However 

negative effects include: pollution; traffic injuries; noise; stress and anxiety; danger; land loss and 

planning blight; and community severance. 99 Moreover, evidence suggests that the negative impacts 

tend to be experienced primarily by more deprived communities, thereby exacerbating inequalities 

in health outcomes. All of these different dimensions need to be taken into account fully in planning 

for healthy sustainable communities across the East of England. Moving forward, the opportunities 

linked to ‘active transport’ 100 need to be explored in some detail. 

6.6 Against this backdrop, Strategic Priority 1 is intended to ensure that the social, economic and 

environmental foundations of healthy lifestyles are designed creatively into new and existing 

communities in the East of England; 101 and in delivering this priority, the links to Strategic Priority 9 102 

need to be clear and strong. Spatially, the focus will need to be on those parts of the Region which 

are growing quickly and/or undergoing significant regeneration. 

6.7 In terms of the Actions that follow, the priorities identified by the World Health Organisation are 

relevant to much of the East of England – and across urban and rural areas alike. Hence it will be 

essential to continue to work closely with Inspire East (see Figure 6.2), planners and developers to 

ensure that health genuinely is ‘designed in’ as the Region seeks to respond both to the Regional 

Economic Strategy and – once it is finalised – to the East of England Plan. In addition, there is a 

need to support the intention – set out in the Regional Housing Strategy – for the Regional Housing 

Delivery Group to liaise with health professionals and to encourage better joint working and planning 

between housing authorities, PCTs and SHAs. Building on work already undertaken within the Region, 

it will be important to support health professionals as they seek to engage effectively with the new 

planning system. 103 Some specific Actions are set out in the Table on page 70. 

Figure 6.2: Inspire East 

Inspire East is one of the Regeneration Centres of Excellence across England which were set up in 

the context of the wider sustainable communities agenda. Inspire East is a regional body and it aims 

to drive up skills and knowledge in the related fields of regeneration and neighbourhood renewal. 

Its services are available to a wide range of people from the public and private sector including built 

environment professional, regeneration practitioners, people from the public and private sector 

including built environment professionals, regeneration practitioners, people working for local/ 

regional government and community representatives. 

Taken from Inspire East’s website: www.inspire-east.org.uk 

98 This should build on the World Health Organisation Declaration on Transport, Environment and Health which commits governments to promote 

health in transport policies and was signed in June 1999. 

99 Carrying out a health impact assessment of a transport policy: Guidance from the Transport and Health Study Group, Faculty of Health Medicine. 

100 Defined as travel modes that involve physical activity. 

101 There are close links between Strategic Priority 1 and Strategic Priority 9 (To understand and plan for the impacts of climate change and the more 

sustainable use of resources within the Region in terms of health and health inequalities issues). 

102 Strategic Priority 9 focuses on climate change and the more sustainable use of resources; it is discussed in Chapter 8. 

103 Reuniting Health and Planning: A Training Needs Analysis Report by Ben Cave Associates, Common Cause Consulting and InteREAM for ODPM 

and partners, May 2005. 


68 

Designing Health into Sustainable Communities 

– Cambridgeshire Horizons 

The Cambridge Sub-Region has been identified by Government in the Sustainable Communities 

Plan as part of one of the four Growth Areas across the greater south east. Cambridgeshire 

Horizons is the local delivery vehicle (LDV) responsible for implementing the Structure Plan 

targets and sustainability standards for the Cambridge Sub-Region, including 47,500 new 

homes and 50,000 new jobs by 2016. 

Within this context, Cambridgeshire Horizons is actively seeking to design health into 

sustainable communities. It has set up a Health Forum, the members of which are drawn 

from PCTs, the Strategic Health Authority, NHS Trusts and Local Authorities within the 

Cambridge Sub-Region. The Forum nominates a representative to sit on the overall 

Board of Cambridgeshire Horizons. 

The purpose of the Forum is to ensure that healthcare organisations can inform and influence 

infrastructure development in the Cambridge sub-region in order to build health-promoting 

communities; and ensure appropriate health care infrastructure provision linked to new 

developments; and influence the planning and provision of other services, and the design 

of developments, to create healthy sustainable communities. 

Within this context, the Forum is seeking to liaise with LSPs and other local agencies and organisations; 

identify health forecasting and planning work needs; and ensure health sector engagement with the 

planning processes linked to new developments. 

Work undertaken by the Forum to date includes developing an approach to Health Impact 

Assessments (through which there has been a close dialogue with local authority planning 

officers) and work on the site specific requirements of the new settlement at Northstowe, 

including designing in infrastructure for health. 

Case study provided by Cambridgeshire Horizons.

Sustainable transport and health – Travelchoice, 

Peterborough 

In 2004, the Department for Transport (DfT) named Peterborough as one of three Sustainable 

Travel Demonstration Towns across England. Prior to this, sustainable travel played a role in the 

City Council’s transport policy, however the £3.24 million funding associated with the award has 

allowed for a rapid extension in the provision of marketing materials and information including: 

improved public transport information, the development of an improved website, and mapping 

including walking, cycling and bus routes. 

Locally branded as Travelchoice, the project aims to increase sustainable travel; walking, cycling, 

public transport and car sharing. Travelchoice in Peterborough is developing an integrated set of 

measures which are directed at changing travel behaviour among specific groups (such as school 

children and commuters) through better travel information and promotion of sustainable modes. 

The project is made up of 18 schemes that are designed to produce a modal shift from the private 

car and promote healthier and more active forms of transport. These schemes include individualised 

travel marketing (packages of information tailored to individual household need and preference), 

travel behaviour research, walking and cycling reviews, route branding, business travel plans, real 

time passenger information and a car sharing website. In addition, there are a number of innovative 

projects being developed (e.g. text and go SMS service, a good going pledge card, and cycle 

revolution events). 

Peterborough hosted the DfT Sustainable Towns Conference on the 5th April 2006. This 

conference, titled: Getting active…getting there – making the links between transport 

and health, covered areas such as forging partnerships to deliver healthier transport solutions 

and overcoming the barriers associated with achieving sustainable travel habits. 

Case Study provided by Travelchoice, Peterborough City Council. 


70 

Strategic Priority 1: To ensure that the social, economic and environmental 

foundations of healthy lifestyles are designed creatively into new and 

existing communities in the East of England 

Action Area Actions Milestones 

Incorporating health 

considerations into Local 

Development Frameworks 

(LDFs) 

Designing and (re)building 

communities for health in 

urban and rural areas 

Developing approaches 

to mobility, access and 

transport which are 

aligned with healthy 

sustainable communities in 

both rural and urban areas 

1-1: Produce guidance to ensure 

that planning processes have 

full regard to the promotion 

of population health and the 

reduction of health inequalities 


1-2: Raise awareness of the 

opportunities for creating 

healthier communities in 

existing and new settlements 

1-3: Contribute to reviews of 

sustainable development and 

other toolkits to ensure that they 

address health issues relevant to 

sustainable communities 

1-4: Ensure that the emerging 

Regional Design Champions 

Network and the Design Review 

Panel are equipped to encourage 

good health 

1-5: Support and influence Local 

Transport Plans so that more 

consideration is given to healthy 

options for travel e.g. through 

‘Active Transport’ 

• Task-and-finish group 

established 

• Draft guidance prepared and 

piloted 

• Guidance disseminated to Local 

Planning Bodies 

• Identification of good/best 

practice case studies 

• Development of mechanisms 

for dissemination 

• Relevant toolkit review cycles 

are identified and a programme 

of work is developed 

• Health inputs are made into 

review processes 

• Emerging Networks/Panels give 

full consideration to the links 

between design and health 

• Review of planned approaches 

in the Region 

• Good practice from around 

the Region is identified 

• Findings are disseminated, 

linking with the Physical 

Activity Action Plan

Timescale Suggested lead partner(s) Outcomes 

Short-term (0-2 years) 





GO-East, EERA, EEPHG 

Inspire East 

EEPHG 

Inspire East, English Heritage 

GO-East, Local Transport Authorities, 

EEPHG 

Local Development Frameworks 

recognise and address issues relating 

to health and health inequalities 

Steps are taken to make 

communities healthier in 

existing and new settlements 

across the East of England 

As sustainable development and 

other toolkits are revised, refreshed 

and developed, they include 

guidance and measures for 

creating healthier communities 

High quality design processes 

across the Region actively embrace 

opportunities to improve health 

outcomes 

Opportunities for – and uptake of – 

forms of mobility that have positive 

health outcomes are increased 


72 

Strategic Priority 2: To provide infrastructure and sustained support 

to build social capital, particularly among those communities 

(geographical communities, communities of interest and potentially 

vulnerable groups) which are experiencing poor health outcomes 

6.8 Chapter 4 highlighted the relationship between the health of people on the one hand and the strength 

of social capital on the other. In general, the social norms and networks which structure relationships 

and – in broad terms – constitute social capital have a strong bearing on access to resources, 

information and opportunities both within (bonding) and between (bridging) communities. Hence 

the strength of relationships within families and communities matter greatly in terms of people’s health. 

6.9 Evidence from the British Social Attitudes Survey series showed an increase in social capital and 

social trust in the early 1990s, but it also suggested that this was concentrated in the middle classes. 

It suggested further that increasing disparities between socio-economic groups in the quantity or nature 

of social capital may go some way towards explaining increasing health inequalities: evidence pointed 

to a statistically significant relationship between perceived low levels of social support and poor mental 

health, and between a lack of engagement in organised activities and the incidence of smoking. 104 

Empirically therefore, social capital matters and Healthy Futures ought to respond. 

6.10 So where – and why – is social capital potentially weak in the East of England? 

• First, irrespective of location, social capital will – de facto – be weak for people who are unable 

to participate fully in the networks and associations through which social capital itself functions. 105 

Within the East of England, the Regional Social Strategy has identified black and minority ethnic 

groups, people with disabilities, lone parents, older people, carers, asylum seekers, refugees and 

ex-offenders as especially vulnerable; and to this list, we might add some migrant workers and 

people who have experienced major changes in family relationships (through bereavement, divorce, 

etc.). For these people, social capital may be very weak and poor health outcomes may follow. 

• Second, it may be that social capital is weak and being eroded in areas which are changing 

quickly, either in terms of their economic base or the composition of the resident population. 

There is evidence that local populations may feel threatened by in-movers who bring with them 

different lifestyles and expectations, and this may be a particular issue in more rural areas; in this 

context, ‘bridging’ social capital (i.e. that which needs to exist between different groups) may be 

especially important. 

• Third, new settlements are likely to be quite weak in terms of social capital, simply because many 

of their residents will – by definition – be new to the area and the soft infrastructure that helps 

communities to function – in the guise of clubs, societies, and informal institutions – is likely to be 

embryonic. Given the nature and pace of development, this dimension of sustainable communities 

needs to be embraced fully: so-called ‘bonding’ social capital (between people within a particular 

community) needs to be created. 106 

104 Social Capital and Health - Health Survey for England, 2000 (Published by The Stationery Office). 

105 In this context, Skills for Life – the Government's strategy for improving the nation's skills in literacy, numeracy and English for speakers of other 

languages (ESOL) which was published by DfES in 2001 – is important. It focuses on priority groups with the greatest literacy and numeracy needs. 

106 During the Action Planning Workshops undertaken in October 2005, the point was made that people who are new to an area tend to be 

heavy users of health services, presumably because social capital is weak. This may have more general implications in terms of resourcing within 

a fast-growing region.

6.11 Against this backdrop, there is a need to provide infrastructure and sustained support to build 

social capital, particularly among those communities and groups which are experiencing poor health 

outcomes. Looking ahead, there may be opportunities to engage the private sector in this context, 

encouraging businesses to consider the importance of building social capital as they exercise corporate 

social responsibility. But there will often also be a core role for both local authorities and the voluntary 

and community sector, recognising – as argued in Chapter 4 – that its contribution is certainly two-fold: 

both the process of engaging in voluntary and community sector activity and the product of that 

endeavour make a material contribution to the creation of social capital which in turn will have an 

important bearing on the Region’s ability to achieve the Vision set out in Healthy Futures. 107 Beyond 

this, there is scope to build social capital across different generations (linking with Theme B). 

6.12 In seeking to advance Strategic Priority 2, there are strong and clear links to the Regional Social Strategy 

and particularly to its eighth Strategic Objective, ‘to develop social networks, community assets and 

promote community cohesion’. There are also important links to EEDA’s IiC programme. The Actions 

identified in response to Strategic Priority 2 will need to be delivered in concert with initiatives of this 

type; the Actions are set out in the Table on page 76. 

107 This issue is also raised in the context of Strategic Priority 6 (see Chapter 7). 


74 

Support group for first generation Pakistani women 

over 40 – Raunak 

A support group was set up in an area of Bedford that was targeted within the Social 

Regeneration Budget. The group was set up to support south Asian women over the 

age of 40 who were diagnosed as suffering from depression or who were identified as 

being at risk of mental health issues. Most of these women were first generation migrants 

and in most south Asian languages, there is no equivalent word to describe depression. 

However this particular group of women were targeted as there was a risk of isolation 

due to language barriers; some were caring for disabled/elderly spouses; and many 

were experiencing isolation due to children moving away from home. 

The action that was taken was to set a support group called Raunak (joyous atmosphere) 

which was facilitated to provide a space for the women to relax, enjoy light exercise, enjoy 

healthy cooking and be introduced to specific health providers. 

The group has helped many of the women make new friendships, participate in English for 

Speakers of Other Languages (ESOL) classes, eat more healthily, and take part in outdoor 

trips that are of mutual interest and social events. 

Case Study provided by the Minority and Ethnic Network Eastern Region (MENTER).

Young people, volunteering, social capital: InterAct – 

Circles of Support Project 

The Circles of Support project arose from a growing concern that, the fundamental needs for 

transition aged young people (16 -19) who have learning disabilities were not being adequately 

met by existing structures of support. Through in-depth discussions with the families and carers of 

learning disabled young people, it has been clearly identified that upon leaving special schools at 

the age of 16 many young people with learning disabilities become isolated in the community – 

yet they have the same dreams, goals and aspirations as other teenagers. 

InterAct launched the Circles of Support project in June 2001 in Essex. Circles of Support enables 

young people with learning disabilities to take part in everyday activities, supported by peer group 

volunteers (aged 16-18). A Circle of Support is created for the disabled young person so that they 

are able to learn life skills that many of us take for granted such as money and time management 

skills. The Circle is led by the learning disabled young person, involves 3-4 young volunteers (usually 

local sixth formers) plus back up support from family and a mentor from InterAct. The circle of young 

people, led by the client, decides on the kind of skills they are going to gain from the activity. A trip 

to the cinema will help the Circles client to gain travel, time and money management skills plus 

develop their social interaction skills and self confidence. 

Since 2001, the Circles of Support project has worked with over 150 young people in Essex, 

many of whom are now living independently, have some form of employment, have increased 

self confidence, feel part of their community and have developed long lasting friendships with 

their Circles volunteers. 

Case study provided by InterAct. 


76 

Strategic Priority 2: To provide infrastructure and sustained support 

to build social capital, particularly among those communities 

(geographical communities, communities of interest and potentially 

vulnerable groups) which are experiencing poor health outcomes 


Building social capital 

across the generations 

Responding to the social 

determinants of health 

as they relate to key 

vulnerable groups within 

the Region 

Recognising the importance 

of the voluntary and 

community sector, 

and the contribution 

of volunteering to 

health and well-being 

2-1: Actions to better understand 

inter-generational relationships 

and their links to health outcomes 

2-2: Identify and disseminate good 

and best practice in supporting the 

health needs of groups of people 

for whom exclusion from broad 

social networks is frequently a 

source of vulnerability (e.g. 

ex-offenders, children-as-carers, 

gypsies and travellers, isolated 

older people) 

2-3: Identify the health benefits 

of volunteering and encourage 

greater participation in it to 

help build capacity across the 

voluntary and community sector, 

complementing Change-Up and 

other programmes 

• Significance of intergenerational 

components of 

social capital and its links to 

determinants of health through 

the life course are codified 

• Strategic regional and 

sub-regional processes 

respond to this potential 

• Mechanism for effective and 

regular dialogue on the links 

between social determinants 

and key vulnerable groups 

is agreed 

• Expert insights are disseminated 

to regional and sub-regional 

agencies and organisations 

• Health benefits of volunteering 

are identified, codified and 

disseminated 

• Mechanisms for promoting 

volunteering are identified 

and used


Long-term (>5 years) 

Medium-term (3-5 years) 


Future East 

Health and Social Inclusion Panel, 

Observatories Social Exclusion 

Partnership 

Future East and regional 

Voluntary and Community 

Sector (VCS) networks 

The importance of nter-generational 

relationships is recognised (and 

hence supported) through regional 

and sub-regional strategies 

Agencies/organisations across the 

Region are able to respond better 

to the social determinants of poor 

health as they affect vulnerable 

and excluded groups within the 

population 

The health benefits of volunteering 

are identified and participation 

in volunteering is increased 


78 

Strategic Priority 3: To make it possible for communities 

to ‘Choose Health’ positively and more easily 

6.13 Choosing Health – the 2004 White Paper – identifies six over-arching priorities: 

• Reducing the numbers of people who smoke 

• Reducing obesity and improving diet and nutrition 

• Increasing exercise 

• Encouraging and supporting sensible drinking 

• Improving sexual health 

• Improving mental health. 

6.14 Against this backdrop, the third Strategic Priority within the Theme of Health in Sustainable 

Communities is concerned with shaping and informing the choices that people make, recognising – 

as Choosing Health itself makes clear – that many of the decisions affecting our health are choices 

we make as consumers. 

6.15 Consumption decisions are influenced by many factors, some of which are national or international 

in scope. The role of the media is, for example, substantial and there are, inevitably, limits as to 

what can be done at a regional scale in response. 

6.16 Nevertheless, making it possible for communities to ‘Choose Health’ more actively and easily is 

a key Strategic Priority. At root, it links to the underlying determinants, and income and access are 

key factors: a national study found that financial problems (linked mainly to the costs of accessing 

transport) had restricted uptake for 23% of people seeking to use mental health services. 108 Hence 

building a strong economy – with opportunities for broad participation – ought to be a priority in 

advancing Healthy Futures and encouraging individuals and communities to ‘Choose Health’. 109 

In addition, there are clear links to the first two Strategic Priorities from Healthy Futures: individuals 

are far more likely to ‘Choose Health’ if their peers are doing likewise (Strategic Priority 2), 110 and, the 

design of settlements (Strategic Priority 1) must influence the ease with which good choices can be made. 

6.17 Within this broad context, there are more immediate steps that also need to be taken. Making it 

possible for communities to ‘Choose Health’ more actively and easily means, for example, ensuring 

that all people who live and/or work within the East of England have access to good and relevant 

information in appropriate media. Hence in those parts of the Region which have communities of 

Portuguese migrant workers (for example), information in Portuguese may be needed. In addition, 

information must be provided in a way that is relevant and appropriate. Activities and initiatives aimed 

at health promotion and health awareness need to be tailored to the specific circumstances facing 

particular communities; for vulnerable groups within the Region, improving health literacy 111 must be 

a continuing priority. ‘Making it possible for communities to ‘Choose Health’ more actively and 

easily’ also means that regional-level frameworks/action plans that have been (or are being) developed 

for food and health, tobacco control and physical activity must be implemented effectively. 

108 Making the Connections: Final Report on Transport and Social Exclusion, Report by the Social Exclusion Unit (Crown copyright), February 2003. 

109 This links strongly with the Vision set out in the Regional Economic Strategy and the eight strategic goals that underpin it. 

110 For example, there is a great deal of evidence that most people who smoke start smoking during their teenage years, a life stage during which 

the power of peer pressure is especially strong. 

111 This is defined as the capacity of an individual to obtain, interpret, understand and use basic health information and services in ways which 

are health-enhancing.

6.18 In addition, there are real opportunities linked to the 2012 Olympics/Paralympics. In the course 

of London’s winning pitch to the International Olympic Committee in Singapore in July 2005, 

the following comments were made: ‘We can no longer take it for granted that young people will 

choose sport. Some may lack the facilities, or the coaches and role models to teach them. Others… 

may simply lack the desire. We are determined that a London Games will address that challenge’. For 

the East of England, the 2012 Olympics/Paralympics offer the prospect of greater interest in sport and 

physical activity – and this in itself should encourage people to ‘Choose Health’ positively. There is also 

the opportunity to capture elements of the Olympic legacy such that future generations benefit from 

better facilities and amenities. Third, there is the prospect of increased volunteering linked to sport 

which itself should contribute to building social capital and strengthening communities. Hence the 

2012 Olympics/Paralympics ought to constitute a substantial and unique opportunity for the East 

of England in striving towards the Vision set out in Healthy Futures. 

6.19 A series of regional-level Actions which have been identified in order to advance Strategic Priority 3 

are set out in the Table overleaf. 

Fifty and Beyond – Encouraging physical activity amongst 

older people 

Organised and co-ordinated by the sports development team at Sportspace (Dacorum Sports Trust, 

which manages sports and leisure services for Dacorum Borough Council), the scheme provides over 

50 sessions per week in community centres and village halls for easy access and to provide activities 

on a local level throughout the borough of Dacorum (Hertfordshire). The range of activities offered 

includes exercise to music; singing; yoga; swing, line, and ballroom dancing; short mat bowls 

and chair based exercise. There is also a comprehensive programme of rambles and health walks. 

Current participation levels average 680 per week, with a 25,000 annual attendance in 2004/5. 

In addition to the community programme, there are also targeted activities within the borough’s 

four sports centres. The programme operates with qualified instructors but is also reliant on 

approximately 70 volunteers. 

Emerging from the co-ordinated programme has been the formation of a number of local self 

sufficient groups including ‘Going Places’ – which organises themed holidays including bowls 

holidays; ‘Oasis’ – Outings Shared Interests – which organises monthly guest speakers and 

outings; and an indoor bowls league. 

The success of the programme has been reflected in the response of the local hospital’s senior 

geriatrician who, in thanking the team for their work, commented that they are able to do more 

for older people than he can, recognising the programme’s ability to keep people out of hospital, 

fit and healthy. 

Case study taken from the Regional Physical Activity Framework. 


80 

Strategic Priority 3: To make it possible for communities 

to ‘Choose Health’ positively and more easily 


Choosing Health in 


Understanding the ways 

to help vulnerable people 

to ‘Choose Health’ 

Enhancing health literacy 

among vulnerable groups 

3-1: Support the implementation 

of key plans which have been/are 

being developed: 

• Obesity framework 

• Tobacco control framework 

• Physical activity action plan 

• Food and health action plan 

3-2: Ensure that the build-up to 

the 2012 Olympics/Paralympics is 

used to encourage (a) increased 

participation in sport and physical 

activity amongst people of all ages 

(including those with disabilities); 

(b) increased participation in 

volunteering linked to sport; and 

(c) the full potential legacy to be 

captured 

3-3: Draw together appropriate 

expertise and experience from 

within the Region concerned with 

improving the health of vulnerable 

groups and encouraging people to 

make positive choices for health 

3-4: Raise awareness of the range 

of available information relating 

to health and health inequalities 

issues in the East of England 

3-5: Develop and disseminate 

training materials to improve 

health literacy among vulnerable 

groups 

• Individual plans are completed 

and launched 

• Strategies led by organisations 

other than DH/NHS adopt 

complementary priorities 

and synergies are achieved 

• Priority actions are identified 


• Priority actions are delivered 

• Expertise and experience is 

assembled and disseminated 

e.g. through ERPHO’s website 

• Appropriate dissemination 

mechanisms are identified 

• Appropriate health status 

indicators are identified 

consistent with an ageing 

population 

• A clear project plan is 

developed and DH funding 

is secured 

• Training materials are produced 

and used







EEPHG, with relevant lead partners 

(e.g. Sport England / Regional 

Physical Activity Forum with regard 

to the physical activity action plan) 

Sport England East 

ERPHO, Observatories Social 

Exclusion Partnership 

ERPHO, Observatories Social 


EEPHG 

Progress is made in achieving the 

Choosing Health targets within 


Increased physical activity 

amongst people of all ages 

Increased participation in 

sport-related volunteering 

Strong Olympics/Paralympics 

legacy in the East of England 

Much better awareness Region-wide 

of problems and solutions 

Organisations and agencies in the 

East of England are more aware of 

health and health inequalities issues 

across the Region 

Improved health literacy among 

particularly vulnerable adults 


07 Theme B: Health at Key 

Life Stages 


Theme B is concerned with Health at Key Life Stages, recognising that people of different ages are 

facing different issues. Three Strategic Priorities are identified, together with appropriate Actions: 

Strategic Priority 4: To ensure that children and young people in the East of England can get 

off to a healthy start in life 

Strategic Priority 5: To encourage better health for people in the East of England throughout 

their working lives 

Strategic Priority 6: To support people in the East of England in ‘active ageing’ and adding 

life to years 

7.1 In order to achieve the Vision set out in Healthy Futures, it is important to recognise the changing 

demographics of the East of England (outlined in Chapter 3) and the different issues facing people 

of different ages within the East of England. These need to be understood and addressed if the health 

of the population is to be improved and the extent of health inequalities reduced. At the same time, 

it is essential to acknowledge the links across different stages of the life course: health outcomes 

in mid or later life are strongly influenced by events in childhood and even before birth. 

Healthy pre-schools pilot in Cambridgeshire 

Launched in March 2004, the Cambridgeshire Health Promoting Pre-School Programme 

(Foundation Stage) has been piloted with seven local pre school settings. 

Through working with staff and members of the local community, pre-school settings chose a 

theme to work on over a period of two terms. Two pre-school groups chose healthy eating, two 

focussed on mental and emotional wellbeing, two opted for loss and change and one selected 

health related exercise. 

As a consequence of the pre-school programme, the setting focussing on health related exercise 

introduced a Happy Hearts programme (which aimed to educate young children about the 

importance of physical activity through a range of fun activities). The setting looking at healthy 

eating involved parents in identifying changes that could be introduced to promote a balanced 

diet, replacing sweet biscuits with healthier snacks including yoghurt, dried fruit, fruit and 

vegetables. On the theme of mental and emotional wellbeing, one setting received some 

circle time and behaviour management training, provided by the Cambridgeshire 

Care and Education Partnership. 


84 

Nationally, the early years work in Cambridgeshire complements policies that direct the National 

Healthy School Programme. It contributes to four of the five criteria of ECM: being healthy, 

staying safe, enjoying and achieving, and making a positive contribution. It also contributes 

to priorities highlighted in the Choosing Health white paper. 

An external evaluation, published in March 2005, found that the programme raises awareness 

about holistic health issues amongst children, staff and families, provides a vehicle to involve 

parents, opens up new channels of communication within the setting and beyond and 

maximises the work it is doing. The evaluation recommends that the pre-school programme 

should be extended to small cohorts of pre-schools on a rolling programme. 

Case study provided by the National Healthy Schools Programme. 

Strategic Priority 4: To ensure that children and young people in 

the East of England can get off to a healthy start in life 

7.2 The wide range of issues relating to children and young people has been a strong policy focus in the 

UK and internationally. At a foundational level, the United Nations Charter on the Rights of the Child 

(UNCRC) provides an international human rights instrument setting out the basic rights of children, 

and the obligations of governments to fulfil those rights. A whole tranche of domestic policy has 

been developed from this basic premise. 

7.3 In the UK, the importance of the early years for child development, the problems of multiple 

disadvantage for young children, the variation in the quality of services for children and families, 

and the need for community-based programmes of early intervention were highlighted in a key 

cross-government report. 112 This led to the launch of Sure Start, the aim of which was to work 

with parents and pre-school children to promote the physical, intellectual, social, and emotional 

development of young children, particularly those who are disadvantaged. 

7.4 More recently, the publication in 2003 of the Green Paper Every Child Matters: Change for 

Children heralded a new inter-disciplinary approach to the well-being of children and young people 

from birth to the age of 19 years. The intention was that every child, whatever their background or 

their circumstances, should have the support they need to be healthy; stay safe; enjoy and achieve; 

make a positive contribution; and achieve economic well-being. In September 2004, the final 

elements of the National Service Framework (NSF) for children, young people and maternity services 

were launched to provide a key delivery mechanism to achieve (mainly) the ‘be healthy’ outcome 

described in ECM. The Children Act followed in November 2004, providing the legislative foundation 

for more effective and accessible services focused around the needs of children, young people and 

families. In July 2005, a Green Paper, Youth Matters, was published by Department for Education 

and Skills (DfES); this was based around the principle of integrating services around young people’s 

needs thereby helping all teenagers – and particularly those that are disadvantaged – to achieve the 

five ECM outcomes to the greatest possible extent. 

112 Department for Education and Employment. Sure Start: making a difference for children and families. London: DfEE, 1999.

7.5 Within this overall context – and focusing on those elements which relate most directly to health – 

we can cite some headline statistics for the East of England: 113 

• In 2000, 1.1% of babies born in the East of England weighed less than 1500g and 6.8% weighed 

less than 2500g. At a local authority district level, infant mortality rates were highest during 

the late 1990s in Cambridge, Luton, Fenland, Norwich and Peterborough 114 

• Some 200,000 children are estimated to be living in poverty in the East of England. Moreover, 

at the time of the 2001 census, over 150,000 dependent children within the Region lived 

in households in which no adult was working 

• Issues relating to overweight and obese children have risen steadily over the recent past: 

in the East of England, 16% of boys and 21% of girls are overweight 

• Although teenage conception rates are low in the East of England relative to the national 

average, UK figures are high relative to much of Western Europe. 115 Within the Region, 

almost half of under-18 conceptions occur in the most deprived 20% of wards. A national 

report by the Social Exclusion Unit suggested that the high incidence of teenage pregnancy 

in deprived areas is explicable in terms of young people seeing no reason not to get pregnant 

(in the context of low aspirations); lack of knowledge about contraception; and mixed messages 

from the media and from institutions (such as schools) 116 

• Some 76% of smokers in the East of England report that they started smoking between the 

ages of 11 and 18. In 2000, 34% of 15-year old girls and 25% of boys were found to be 

regular smokers 

• In the East of England, the proportion of young men, aged 16-24 years, consuming more than 

28 units of alcohol per week increased by 8% between 1993 and 2002. For young women aged 

16-24 years, there was a 10% increase in those consuming more than 21 units of alcohol per 

week over this time. 117 

7.6 With regard to the long-term health prospects of the East of England, the experiences of the Region’s 

children and young people are critical. Moreover, there are strong inter-generational elements: as the 

Regional Social Strategy explains, ‘teenage mothers are less likely to finish their education, less likely 

to find a good job and more likely to end up as single parents bringing up their children in poverty. 

The children run a much greater risk of poor health and have a much higher chance of becoming 

teenage mothers themselves’. Enhancing the health of children and young people within the East of 

England is essential if this cycle of deprivation is to be broken, if health inequalities are to be reduced, 

and if the health of the Region’s population is to be improved. 

113 Unless otherwise stated, data are taken from a paper on Child Health, prepared by ERPHO as an input into the development 

of the Regional Health Strategy. 

114 East in Focus: East of England Health Profile 2001 ERPHO. 

115 See http://www.nhsinherts.nhs.uk 

116 Social Exclusion Unit report on Teenage Pregnancy, 1999 – cm4342. 

117 Alcohol Use in the East of England (draft), October 2005, ERPHO. 


86 

7.7 The agenda with regard to children and young people is vast. In the East of England, a number of key 

dimensions might be highlighted, all of which have implications for the remainder of the life course: 

• First, it is vital to acknowledge and respond to the number of children growing up in poverty 

within the Region. The numbers are substantial and there is evidence to suggest that being poor 

in a relatively rich area has more negative implications for health than being poor in a more 

generally deprived area; as one recent study put it, ‘the prevalence of affluence and affluent 

images cause the socially excluded to suffer negative impacts upon their mental and physical 

health’ 118 and, particularly for children and young people, this is a major issue 

• Second, the issues relating to young children and their families need to be fully addressed. These 

include supporting families so that they are well informed, prepared and supported for birth and 

parenthood, and enabling children to develop so that they can meet their full emotional, social 

and physical potential. Within this context, it is especially important to recognise and respond to 

the needs of children with life-limiting conditions and their families and carers 

• Third, it is imperative to recognise the roles played by schools. In this context, the National Healthy 

Schools Programme (which encourages a ‘whole school’ approach to exercise, sport, healthy eating 

and drinking) is an important venture. The opportunities linked to Extended Schools 119 – within 

the framework provided by ECM – also need to be recognised. At the same time, however, it is 

important to acknowledge that schools cannot be the only channel for health awareness and 

health promotion to children and young people; other mechanisms need to be found particularly 

in seeking to support those who are disengaged 

• Fourth, it is important to emphasise the significance of the transition out of compulsory education. 

As Chapter 4 reported, rates of progression into further and higher education are low. Data from 

the 2001 Census show that in some districts in the East of England, the proportion of 17 year olds 

not in education or work is in excess of 15%. In the context of a generally buoyant economy, the 

transition out of compulsory education is a key one and it provides a defining moment with regard 

to the remainder of the life course. 

7.8 Cutting across all of these dimensions, two further observations must be made. First, the crucial 

importance of family relationships needs to be flagged; this links strongly to the broader concept of 

social capital which formed the focus of Strategic Priority 2. Second, it is imperative to recognise the 

issues facing children and young people who may be particularly vulnerable for a host of different 

reasons; these may include life-limiting conditions, physical or sensory disabilities, abusive relationships, 

caring responsibilities (i.e. children-as-carers), discrimination (e.g. towards children and young people 

from Gypsy and Traveller communities). In all of these circumstances, children and young people need 

particular support such that the five ECM outcomes can be achieved irrespective of a child’s/young 

person’s background or circumstances; the issues facing vulnerable children and young people are 

reflected in Standards 6-10 of the National Service Framework (NSF). 

118 Health and Social Care and Sustainable Development in the East of England Report completed by the Centre for Public Services 

and the Nuffield Institute for Health, for the East of England Public Health Group, January 2004. 

119 A package of support and funding for schools extending their services was launched in June 2005.

7.9 Taken as a whole, the NSF for children, young people and maternity services is the key delivery 

mechanism for the ‘be healthy’ outcome of ECM and within this context, PCTs and local authorities 

are playing key roles. In parallel, Local Area Agreements – which are being developed across much 

of the East of England – will also be contributing to the achievement of the ECM outcomes. 

7.10 Through Healthy Futures, the intention is to influence and support these on-going processes and to 

do so in a way that addresses key regional issues and opportunities. In addition, there is a commitment 

to align regional processes such that they might contribute more effectively the pursuit of all five ECM 

outcomes. To these ends, a number of regional level Actions have been identified. These are set out 

in the table overleaf. 


88 

Strategic Priority 4: To ensure that children and young people 

in the East of England can get off to a healthy start in life 


Ensuring that the voice of 

children and young people 

is heard and that the rights 

of children and young people 

are fully recognised 

Linking regional strategies 

and the health and wellbeing 

of children and 

young people 

Supporting Under 5s 

and their families 

Supporting school-age 

children and young people 

4-1: Led by the Regional 

Assembly, key regional 

agencies/organisations adopt the 

United Nations Convention on 

the Rights of the Child (UNCRC) 

4-2: Ensure that regional 

strategies are aligned with 

the five key outcomes set 

out in ECM 

4-3: Identify a clear ‘children and 

young people’s champion’ on the 

Health and Social Inclusion Panel 

to promote the interests of all 

children and young people, 

particularly those who are 

vulnerable and/or have disabilities 

4-4: Promote good practice in 

terms of the roll-out of childrens’ 

centres, and forge connections 

to regional plans linked to the 

Choosing Health priorities and 

identified in Action 3-1 (SP3) 

4-5: Ensure that the Healthy 

Schools Programme continues 

to respond to national targets, 

in a way that takes into account 

regional priorities 

4-6: Encourage the application 

of principles from the Healthy 

Schools Programme in Further 

Education Colleges (FECs) and 

Higher Education Institutions 

(HEIs) 

• EERA signs up to the UNCRC 

• Key regional agencies actively 

consider signing up to the 

UNCRC 

• Issues relating to the health of 

children and young people – 

particularly those that are 

vulnerable and/or have health 

issues and/or disabilities – are 

taken into account 

• A clear ‘children and young 

people’s champion’ is identified 

on the Health and Social 

Inclusion Panel 

• Mechanisms to disseminate 

good practice are developed 

• Links to allied strategies 

are made 

• Progress of the Healthy 

Schools Programme is 

actively monitored 

• Discussion with Association 

of Colleges Eastern Region 

(ACER) and the Association 

of Universities in the East of 

England (AUEE) takes place 

• Benefits of the Healthy Schools 

programme are captured 

in a form that is appropriate 

for FECs and HEIs








EERA 

EERA 

EERA 

GO-East 

Regional Healthy Schools 

Coordinator, supported by DH/DfES 

ACER, AUEE, EEPHG 

The profile of children’s and young 

people’s rights is increased 

The needs of younger and future 

generations are recognised 

Contributions are made to the 

pursuit of the five key outcomes 

in ECM 

Greater account of the issues 

relating to children and young 

people is taken in regional 

strategic processes 

Cross-Agency links are made and 

progress is made in advancing 

regional priorities linked to 


Principles underpinning the 

Healthy Schools Programme 

are strongly embedded 

FECs and HEIs become learning 

environments that are more 

actively health promoting 


90 

Strategic Priority 5: To encourage better health for people 

in the East of England throughout their working lives 

7.11 As Chapter 4 made clear, the processes surrounding work and employment provide purpose, social 

support, structure and a means of participating in society, as well as income. 120 People’s experience of 

work – and workplaces – has a substantial bearing on their health. Chapter 4 highlighted the importance 

of structural issues concerned with the relationship between work and health including the incidence of 

employment in low pay sectors and the uptake of training and workforce development; the surrounding 

issues are addressed directly in both the Regional Social Strategy and the Regional Economic Strategy, and 

they are supported rather than replicated here. In Healthy Futures, the focus for Action is on the more 

immediate links between health, work and workplaces. 

(i) Vulnerable groups in the workforce, including those that are workless and experiencing 

poor mental health 

7.12 A first key issue concerns groups which are – in some sense – vulnerable within the workforce. 

This includes both those who are currently in employment and those who are workless. In the East 

of England, the people who are prone to social exclusion are also likely to be vulnerable within the 

workforce. As set out in the Regional Social Strategy, this includes black and minority ethnic groups, 

disabled people, lone parents, older people, carers, asylum seekers, refugees and ex-offenders; all 

of these people are – in relative terms – more likely to find it difficult to secure employment. Some 

migrant workers are also vulnerable in labour market terms. 

7.13 People with mental health problems comprise another vulnerable group; survey evidence – quoted 

in Choosing Health – suggests that most employers are unwilling to recruit people with any kind 

of mental health problem and the associated stigma for the individuals concerned is considerable. 121 

Drawing on Census data, the Regional Social Strategy observes that 12.7% of the economically inactive 

population is sick or disabled and that these people constitute the biggest group among those who 

are economically inactive but want paid work. Other evidence suggests that just under half of all those 

classified as long-term sick or disabled are diagnosed with psychological ill health. There is, further, 

the suggestion that individuals (particularly men) drop out of the labour force as a result of worsening 

psychological health. There is no evidence that increasing numbers of school leavers enter the labour 

market in a poor state of health and hence, the implication is that a cause of the problem resulting 

in worklessness – and the vulnerability relating to it – is related to the experience of work; levels of 

job satisfaction relative to aspirations is one key issue. 122 

7.14 In a region with labour shortages, issues relating to the mental health of people in the workplace are 

a concern. Actions to improve job satisfaction – in the broadest sense – would appear to be a priority. 

For those that have become workless because of long-term sickness, appropriate routes back into 

employment should be beneficial both for the individual (in terms of their own health outcomes) 

and for the regional economy. In this context, the Intermediate Labour Market – which provides work, 

training and personal development opportunities for the long-term unemployed and economically 

inactive, in the charitable or not for profit sectors – may have much to offer as a bridge back into 

long-term employment. 

120 ‘The Future of Work-Life Balance’ part of the ESRC ‘Future of Work’ Programme Seminar Series. 

121 Choosing Health, DH (Crown copyright) 2004 – page 157. 

122 ‘Work, non-work, job satisfaction and psychological health’ published by HDA in March 2005.

(ii) Workplaces 

7.15 The nature of workplaces impacts on the health of the people who work in them. Over the last thirty 

years, progress has been made in relation to safety at work but less attention has been paid to health. 123 

Following the Health Bill, most workplaces ought, in the future, to be smoke-free environments. 124 

However they ought, in addition, to be actively health promoting; this theme was highlighted in 

Choosing Health. 

7.16 Within this context, steps could be taken by employers to promote health. Typically, larger corporations 

and some public sector bodies are able to provide some access to occupational health support, but 

for smaller companies – which are prevalent in the East of England – the challenges are significant. 

Nevertheless – as Choosing Health itself observes – there are no-cost/low-cost actions that can be 

taken and which ought to confer benefits on employee and employer alike. For example – although 

knowledge of the scheme is limited – Inland Revenue rules allow employers to help staff increase 

physical activity by cycling to work, including through tax-efficient bike purchase from salary. Steps 

are also being taken to develop a new healthy business assessment; the intention is that this should 

be incorporated in the Investors in People (IiP) Standard when it is next reviewed in 2007. 125 Within 

the East of England, there may be opportunities to work with small and micro-businesses such that 

more workplaces can be actively health promoting. 

Supporting people with health problems returning to work 

– extract from an account from a customer on the Essex 

Pathways to Work Pilot 

‘I have moderate depression and severe anxiety, and although keen on the idea of working, I 

was very anxious just thinking about work. I was also worried about the financial implications. 

Over several interviews my Jobcentre Adviser allayed all my fears, explaining that I did not have to 

work immediately. She helped me to look for part time work and also introduced me to a Job Broker. 

When my Counsellor moved from the area I felt very isolated. My Adviser suggested that the 

Condition Management Programme would help me cope better with my depression and anxiety. 

I found the Programme really helpful. When I was offered part-time jobs, a Work Benefit Calculation 

showed I would not be worse off – my Adviser also told me about all the other things available to me. 

I was very nervous about starting work. But with In Work Support and continued counselling through 

the Programme, I am now excited at the prospect. Without the help of Pathways to Work and my 

adviser, I would not have considered applying for jobs. Now I’m waiting for a start date for one 

of the jobs and the other one is willing to wait and let me start at the same time’. 

Case study provided by Jobcentre Plus. 

123 A Strategy for Workplace Health and Safety in Great Britain to 2010 and Beyond HSC, 2004. 

124 The Health Bill – which was announced in parliament on 27th October 2005 – delivers the pledge in the Choosing Health White Paper to ban 

smoking in all enclosed public places apart from licensed premises that do not serve or prepare food and private members’ clubs. 

125 Choosing Health, DH (Crown copyright) 2004 – pages 165 and 166. 


92 

(iii) Issues relating to life-work balance 

7.17 In terms of people’s experience of work, there are challenges at both ends of the increasingly polarised 

labour market. For the ‘work rich’, working hours are increasing 126 and the ‘long hours culture’ is 

growing. Commuting (particularly to London) is absorbing more and more time, lifestyles are becoming 

more unhealthy (as people literally do not have time to prepare healthy food or take regular exercise), 

consumption of alcohol is increasing, and – for many – fundamental questions relating to life-work 

balance are being raised. The East of England Plan for Sport (produced by Sport England East, 

May 2004), for example, highlights the culture of long working days and argues that there is a 

need to influence work places to create a healthier and more active workforce. 

(iv) Life-work transitions 

7.18 Finally, consideration needs to be given to life-work transitions, including those linked to parenting, 

other caring responsibilities and – particularly – to the process of retirement. 

7.19 Within the East of England, older workers are facing particular employment issues with adverse 

implications for their health. One study estimated that within the Region, around 50% of those 

aged between 50 and State Pension Age and not in work, would like to be working. The reasons for 

inactivity centred around long-term sickness (amongst men) and caring responsibilities (mainly amongst 

women). In terms of the latter, the greatest concentration of caring commitments among working age 

people is in the 50-64 age cohort; to date the focus on combining caring and work has been limited, 

certainly in relation to that on parenting and work, yet for older workers, this is a major issue. 127 

7.20 The fact of caring responsibilities is likely to be one reason for the observation – a report from the 

Performance and Innovation Unit observed that older workers are experiencing increasing stress in 

the workforce. Government itself has observed both the phenomenon and the consequences: 

‘Successive cohorts of older workers complain of increasing pressures and stress in working life. 

Many would welcome the opportunity to carry on working in less pressured jobs in the same 

organisation or elsewhere, or the chance to try something completely new. But this has rarely 

been on offer or culturally acceptable – for example, very few older people are working part 

time in organisations for which they once worked full time. Instead they face a cliff edge – 

the high-pressured job that they have always done, or nothing. Presented with such a ‘choice’, 

many older workers have felt compelled to retire’ 128 

7.21 The transition out of employment into retirement can be a source of stress and anxiety and hence a cause 

of poor health. In this overall context, the attitudes of employers towards retirement are critical: a Green 

Paper from the Government highlighted the need to tackle barriers to flexible retirement to enable people 

to move from full-time to part-time work, or to less responsible positions, thus allowing them to make 

a more gradual transition from work to retirement. 129 In terms of the health of people in the East of 

England – a growing proportion of whom are of ‘older working age’ – these issues are important. 

Action Areas and Actions linked to Strategic Priority 5 

7.22 In order to advance Strategic Priority 5, six regional Actions (one of which is shared with Strategic 

Priority 6) have been identified. These are presented in the table on page 94. 

126 According to Regional Trends 38 (National Statistics (Crown copyright)), the average weekly hours (including overtime) for full-time male employees 

in the East of England are 41.4 hours per week compared to a UK average of 40.9 hours (data for 2002). Nationally, it is reported that 3.74 million 

workers clock up more than the 48-hour limit under the Working Time Directive. This is 423,000 more than in 1992 when there was no long hours 

protection (see Choosing Health: Making Healthy Choices Easier’, DH, 2004 – page 161). 

127 The Implications of an Ageing Population for the sustainable development of the East of England Population Associates, for EERA, July 2003. 

128 Winning the Generation Game A Report by the Performance and Innovation Unit (Crown copyright), April 2000. 

129 Simplicity, Security and Choice: Working and Saving for Retirement HM Treasury/DWP (Crown copyright), 2002.


94 

Strategic Priority 5: To encourage better health for people 

in the East of England throughout their working lives 


Reducing barriers to 

workforce participation 

linked to health, mental 

health and disabilities 

issues 

Encouraging workplaces 

to contribute to people’s 

health 

Increasing flexibility in 

life-work transitions 

(Relates to both SP5 

and SP6) 

5-1: Ensure that strategic 

regional level skills / business 

support partnerships are aware 

of (and promote) the links 

between work and health 

5-2: Develop and support new 

and existing approaches to 

support people with health, 

mental health and disabilities 

issues in continuing in – 

or returning to – work 

5-3: Align the Health and Safety 

Executive’s (HSE) national 

programmes for improving health 

at work to address regional issues 

5-4: Learn from the ‘Health 

at Work’ pilot and disseminate 

the findings to workplaces 

across the East of England 

5-5: Promote regional uptake 

of management standards for 

work-related stress 

5-6/6-1: Support the adoption 

of ‘age positive’ and ‘carer 

friendly’ employment practices 

• Meet with the Regional Skills 

and Competitiveness 

Partnership to discuss and 

agree a route forward 

• Business support / skills 

advisers on the ground are 

better equipped to recognise 

and address the links between 

work, health and disability 

issues 

• Good practice resulting from 

the Essex Incapacity Benefit (IB) 

Reform Pilot (Pathways to 

Work) is shared and 

disseminated 

• Elements of Pathways to 

Work that can be tested 

and implemented within 

mainstream services 

elsewhere in the East of 

England are identified 

• Awareness amongst health 

providers of work-related 

support that is available to 

people with health issues 

is increased 

• HSE activity is reviewed in 

the light of the priorities 

identified in Healthy Futures 

• Steps are taken to increase 

levels of alignment 

• Lessons from the pilot 

are captured 

• Lessons are disseminated 

• Management standards 

for work-related stress are 

promoted amongst employers’ 

groups within the East of 

England 

• Identification and 

dissemination of good practice 

examples








Regional Skills and Competitiveness 

Partnership, EEDA 

Jobcentre Plus, SHAs 

HSE 

Sport England/Business Link 

for Norfolk 

HSE 

Future East 

Greater awareness of the links 

between health, skills/training and 

work, particularly among regional 

agencies and organisations 

Improved rates of employment 

among people with health, mental 

health and disabilities issues 

HSE programmes are better 

aligned with regional priorities 

More work places are actively 

promoting health 

More employer organisations 

are aware of the issues linked 

to work-related stress 

Higher activity and employment 

rates, particularly among mid-life 

and older people, and people 

with caring responsibilities 


96 

Strategic Priority 6: To support people in the East of England in ‘active 

ageing’ and adding life to years 

7.23 Between 1981 and 2003, the proportion of people aged 75 or over rose from 5.9% to 8% of the 

total in the East of England; this trend is projected to continue into the 2020s. Moreover, between 

2008 and 2013, the number of people aged 65 and over is projected to overtake the number aged 

16 and under in the Region. Within this overall context, the sixth Strategic Priority – identified in order 

to deliver the Vision of Healthy Futures – is concerned with ‘active ageing’, focusing especially on 

the issues facing the Region’s older people. 

Active ageing 

7.24 ‘Active ageing’ is defined by the World Health Organisation as ‘the process of optimising opportunities 

for health, participation and security in order to enhance quality of life as people age’. The concept 

embraces continuing participation in social, economic, cultural, spiritual and civic affairs, as well as 

the ability to be physically active and participate in the labour force. 130 

7.25 Active ageing is a process, not a milestone. Hence in terms of Healthy Futures, several Strategic 

Priorities have important contributions to make. There are close links with the three Strategic 

Priorities included within Theme A – Health in Sustainable Communities: 

• The design of settlements (Strategic Priority 1) must have regard to the process of ageing 

in terms of individuals and the population as a whole 

• The health and well-being of people of all ages is closely linked to all aspects of social capital 

(and inter-generational elements are important) (Strategic Priority 2) 

• Access is a key consideration with regard to people’s ability to ‘Choose Health’ (Strategic Priority 3) 

and population ageing ought to be considered in this context. 

7.26 There are strong links to Strategic Priority 5, particularly in terms of life-work transitions. And health 

outcomes throughout the life course are influenced by events in childhood; Strategic Priority 4 is 

therefore also relevant. 

Specific issues facing older people 

7.27 Within this broad context, we must also focus on the more specific issues facing older people within 

the East of England, and their implications for health and well-being. 

7.28 The discussion under Strategic Priority 5 highlighted the complex transition from work to retirement, 

and flagged the implications in terms of people’s health. Against this backdrop, many older people 

engage in volunteering, thereby contributing greatly to the Region’s life; nationally, the economic 

value of formal volunteering has been estimated to be £40bn per annum while the estimated value 

of volunteering for health and social services is around £7bn. 131 Particularly for the ‘young old’, the 

process of volunteering is also extremely important in terms of generating social capital and avoiding 

isolation and exclusion (see Strategic Priority 2). 

130 Active Ageing: A Policy Framework World Health Organisation (2002). 

131 Taken from a factsheet to support delivery of the preventive aspects of the National Service Framework for Older People, produced by the HDA 

(available at www.futureeast.org.uk)

7.29 However, older people also face some quite specific challenges. Funding regimes are such that 

education and training opportunities may be simply unavailable and ageism in the workplace can also 

be a concern. 132 In addition, some 30% of pensioners (approximately 300,000 people) in the East of 

England live in households with below 50% mean income, after allowing for household costs; this is 

the second highest proportion across England. Moreover, within the Region, one third of pensioners 

live alone. For these people, there is an increasing risk of a lack of social cohesion, a greater likelihood 

of living in homes which are in disrepair and a higher risk of low income (compared to pensioner 

couples); lone pensioners may therefore be especially isolated and vulnerable. 133 

7.30 Across the East of England, the number of very old people (aged 85 or more) is projected to rise 

by 24% between 1998 and 2008; this rate of increase is faster than that for England as a whole. 134 

Amongst ‘older old’ people, mortality from CHD and stroke is decreasing but morbidity is increasing 

and this in turn is placing considerable demands on health services. In addition, mental health 

problems are a serious concern; they are having substantial social and economic impacts on 

patients, their families and carers. 

National Service Framework (NSF) for older people 

7.31 Nationally – in response to issues of this type – the NSF for older people was published in March 

2001. It sets standards across health and social services for all older people, whether they live at 

home, in residential care or are being looked after in hospital. The NSF includes eight Standards 

and it embraces plans to tackle age discrimination; ensure older people are supported by newly 

integrated services; address medical conditions which are particularly significant for older people 

(stroke, falls and mental health problems associated with older age); and promote the health 

and well-being of older people through co-ordinated actions across the NHS and local authorities. 

Action Areas and Actions linked to Strategic Priority 6 

7.32 The Actions identified within Healthy Futures in response to Strategic Priority 6 are intended to 

support the NSF for older people and the delivery processes linked to it, focusing on those issues 

which are especially important in the East of England. In delivery terms, this means ensuring that 

strategic regional and sub-regional processes are fully informed about the process of population 

ageing and the specific issues facing older people – and are able to respond to them. In advancing 

this element of Healthy Futures, Future East – the Regional Ageing Forum for the East of England 

– will have a key role to play (see Figure 7.1). Specific Actions are set out in the table on page 100. 

132 Subject to parliamentary approval, legislation to outlaw age discrimination in employment and vocational training will come into force 

in October 2006. 




98 

Town and Bridge Project: Improving health and 

well-being in Ipswich 

The Town and Bridge (T&B) Project was developed following a report which showed that death 

rates amongst people under age 75 were 75% higher in Town ward and 54% higher in Bridge 

ward – two wards within Ipswich – than in Suffolk as a whole. Even more worryingly, death rates 

in these two wards increased over the 1990s, in marked contrast to a 10% decline across Ipswich. 

Further research revealed that the increase in death rates was due to higher rates of death amongst 

those aged 45-74 from heart disease, stroke, cancer and lung disease. 

In response, five strands of work were identified during 2004: 

• a campaign to increase the warmth of owner occupied housing and eliminate fuel poverty 

• increasing the availability and accessibility of welfare benefits advice 

• health promotion programmes embedded in a community development approach 

• developing a Community Development Strategy 

• improving street lighting in the project area 

Subsequently, these different strands have been progressed. Achievements so far have included: 

securing £140k to improve fuel poverty within the area; the operation of a smoking cessation 

clinic which – during its first few months – resulted in a number of people quitting smoking; 

and upgrading street lighting to highways standard on the basis of £110k of ‘liveability’ money. 

Case study provided by the Director of Public Health, Ipswich PCT.

Learning for Older People – Into IT in Norfolk 

‘Into IT in Norfolk’ is a project run by Age Concern Norfolk in partnership with Norfolk Adult Social 

Services. Its purpose is to provide small grants to care homes, sheltered housing complexes and 

places such as day centres where older people meet regularly, to allow them to buy computers 

and then – with some training support – to encourage residents to use the computers. 

A survey was undertaken of six venues within Norfolk which had taken part in the project. 

This suggested that most of the people engaging with the programme were aged 80 or more 

and that few had any previous experience of using computers. Following some initial training, 

all but three of the residents reported that they wished to continue using computers in the future 

in order to write letters and/or contact family and friends and/or browse the internet and/or play 

games. The majority of residents commented that the project had encouraged them to learn new 

skills. A number also commented that it had helped them to feel less isolated and/or changed 

their life for the better. 

One gentleman from a care home, who had previously enjoyed visiting art galleries, found he 

was able to do this via the internet giving him back the opportunity to pursue a previous interest. 

Case Study provided by Age Concern Norfolk. 

Figure 7.1: Future East 

Established in 2004, Future East is the Regional Ageing Forum for the East of England. The aim 

of Future East is to enable a strategic and joined-up approach to promoting and implementing 

change. The focus of the initiative is strategic, and also to provide a process to bring regional 

players together for action. This includes developing a mechanism for co-ordinated activity 

across the Region, bringing together organisations which can act to: 

• ‘Age-proof’ all regional policy 

• Increase employment and opportunity amongst the over-50s 

• Develop innovative practice in service delivery, product design and infrastructure development 

• Share best practice 

• Help build a future which is fully inclusive across all generations 

• Heighten awareness of the ageing dimension of sustainable development. 

Future East will galvanise and enable member organisations to work together, acting as a dynamic 

platform for collaborative activity to meet the challenges of an ageing society. 

Future East is supported by a strong partnership of organisations, including the East of England 

Regional Assembly, the EEDA and leading voluntary sector agencies. 

Taken from Future East’s website which may be found at www.futureeast.org.uk 


100 

Strategic Priority 6: To support people in the East of England in 

‘active ageing’ and adding life to years 


Increasing flexibility in 

life-work transitions 

(Relates to both SP5 and SP6) 

Accessing education 

and training 

Ensuring that older 

people can participate 

in all aspects of the 

Region’s life, and that 

issues of isolation and 

access are addressed 

5-6/6-1: Support the adoption 

of ‘age positive’ and ‘carer 

friendly’ employment practices 

6-2: Improve access for older 

people to education and training 

6-3: Ensure that the health needs 

of older people are addressed 

through regional strategies, 

particularly those relating 

to isolation and access 

• Identification and dissemination 

of good practice examples 

• Investigate the scope for 

bending mainstream funding 

for skills, education and training 

• Relevant strategic regional and 

sub-regional processes are 

identified 

• Perspectives relating to the 

health and well-being of 

older people are mainstreamed 

within strategic processes





Future East 

Future East 

Future East, EERA 

Higher activity and employment 

rates, particularly among mid-life 

and older people, and people 

with caring responsibilities 

Greater opportunities for older 

people to participate in education 

and learning 

Health needs of older people are 

addressed and better outcomes 

are achieved 


102

08 Theme C: Health in 

A Connected Region 


The focus of Theme C is Health in a Connected Region, recognising that the East of England 

is facing some distinctive issues in this context. Three Strategic Priorities are identified, together 

with appropriate Actions: 

• Strategic Priority 7: To recognise and respond to the practical implications of international 

gateways for health and health inequalities within the East of England 

• Strategic Priority 8: To harness the East of England’s international position to encourage 

learning, knowledge development and R&D for health 

• Strategic Priority 9: To understand and plan for the impacts of climate change and the more 

sustainable use of resources within the Region, in terms of health and health inequalities issues 

8.1 The third major Theme within Healthy Futures is concerned with the position of the East of England 

globally. Three major issues – all of which were identified in the Integrated Regional Strategy – are 

likely to have a significant bearing on the health of the population and health inequalities. These 

are introduced briefly in the paragraphs which follow. 

Strategic Priority 7: To recognise and respond to the practical 

implications of international gateways for health and health 

inequalities within the East of England 

8.2 Our seventh Strategic Priority is concerned with the implications of increased physical movement – 

of both people and freight – into and out of the East of England. The Region’s airports – particularly 

Stansted and Luton – are growing and there are expansion plans for the Haven and Thames Gateway 

Ports. All of this means that the East of England is increasingly globally inter-connected. This brings 

both pros and cons which – in seeking to improve the Region’s health and reduce inequalities in 

health – need to be taken into account fully. 

8.3 The fact of growing international gateway functions brings with it important issues with regard 

to health protection; substantial volumes of tobacco may, for example, be imported illegally while 

gateways can also provide a focus for low-cost alcohol sourced from continental Europe and further 

afield. More positively, the international gateways are expected to precipitate employment growth 

and this in turn needs to be harnessed – linking with Strategic Priority 5 – to provide better jobs for 

more people. 

8.4 A further dimension of international gateways relates to the people entering the UK at ports and 

airports in the East of England. Some of these people are extremely vulnerable and it is important 

that appropriate health advice and support is provided. 

8.5 Within the East of England there are currently around 600 dispersed asylum seekers, the majority 

of whom come from one of five countries (Turkey, Iran, Iraq, Eritrea and Sudan). 135 These people enter 

the UK seeking sanctuary because of persecution at home and they officially become refugees once 

their case has been investigated and it is proven that their fear of persecution is well-founded. Both 

135 Asylum Seekers: The Facts Published by the EERA Consortium for Asylum and Refugee Integration, July 2005. 


104 

people seeking asylum and refugees are vulnerable in health terms and accessing health care can be 

difficult, not least because of language and cultural issues. A health sub-group of the East of England 

Consortium for Asylum and Refugee Integration has been investigating the surrounding issues, 136 

Healthy Futures must lend support to this work. 

8.6 Migrant workers constitute a second important group. These are much greater in number – a recent 

study has estimated that there are some 50,000-80,000 migrant workers in the East of England, and 

this number is growing. Migrant workers enter the Region in a great variety of circumstances and 

hence, making generalisations is both difficult and dangerous. However a proportion are working very 

long hours in low paid jobs and in poor (and sometimes dangerous) working conditions; particularly 

for these people, access to services (including, but not restricted to, healthcare) can be an issue and 

this may be exacerbated by issues relating to language and culture. In pure economic terms, it has been 

estimated that new migrant workers to the East of England contribute revenue in the order of £360m 

per annum. 137 Migrant workers are an important part of the way in which the Region works, and 

therefore recognising and responding to issues surrounding their health and well-being needs to be 

a priority within Healthy Futures. 

8.7 The table below sets out a number of regional-level Actions which have been identified in response 

to Strategic Priority 7; these will be advanced alongside – and in support of – the range of on-going 

delivery processes. 

Strategic Priority 7: To recognise and respond to the practical 

implications of international gateways for health and health 

inequalities within the East of England Action Area Actions Milestones Timescale 

Action 

Action 

Area 

Area Actions 

Actions 

Milestones Timescale 

Milestones 

Suggested lead partner(s) Outcomes 

Understanding the health 7-1: Understand better the health • Appropriate mechanisms are 

needs of potentially 

needs of people entering the 

established to capture and 

vulnerable people 

Region through networks of 

disseminate information 

entering the Region 

good practice, information 

and intelligence 

and intelligence 

• Good practice is identified – 

for example from international 

gateways elsewhere in the UK 

and internationally 

Recognising the impact 

of illicit imports of drugs/ 

tobacco/alcohol 

7-2: Highlight the extent and 

impact of illicit imports on health 

in different parts of the Region, 

and support the development 

of appropriate Actions 

• Regional intelligence 

is gathered together 

and disseminated 

• Implementation of regional 

plans relating to tobacco 

control and alcohol is supported 

136 East of England Consortium for Asylum and Refugee Integration: End of Year Report, 2003-04. 

137 Migrant Workers in the East of England Report completed by Dr Sonia McKay and Dr Andrea Winkelmann-Gleed for EEDA, June 2005.

Norfolk Tobacco Alliance 

Smoke Free Norfolk is aiming to implement a Tobacco Strategy for Norfolk and at present is in the 

consultation phase. It is working to five strategic priorities, one of which includes action to reduce 

the uptake of smoking. 

The main projects actively in progress include a scheme to protect young children from second 

hand smoke exposure and work to encourage and enable young people to give up smoking. 

This incorporates smoke free homes initiatives and school-based programmes. The school-based 

programme is working with 5 secondary schools. It aims to offer support for effective preventative 

education, and smoking cessation. The project has trained a number of young people’s workers, 

and has also trained ‘stop smoking advisors’ in how to work specifically with young people. 

Each school involved in the project has run up to 7 sessions with young people to support 

them in their efforts to stop smoking. 

Other initiatives include partnership work with trading standards and HM Revenue and Customs. 

This work is aimed at reducing under age sales, eliminating tobacco promotion and reducing illicit 

tobacco trade. HM Revenue and Customs is a member of the Alliance’s multi-agency group and its 

services are highlighted at Norwich Airport and sea ports. 

Case Study provided by the DH Regional Tobacco Manager. 

Suggested Lead Partner(s) Outcomes 




ERPHO, EERA, EEPHG 

Customs and Revenue, 

Trading Standards 

Regional partners are more aware 

of the health needs of people 

entering the Region 

Harm reduction and 

health improvements 


106 

Strategic Priority 8: To harness the East of England’s international position 

to encourage learning, knowledge development and R&D for health 

8.8 The East of England has substantial knowledge-based assets. Our proximity to the rest of Europe – and 

indeed further afield – ought to provide a basis for wider engagement and learning. And potentially, 

this could bring important health benefits to the Region. As a long-term priority within Healthy 

Futures, links of this nature ought to be harnessed. 

8.9 One dimension concerns the health of people in the East of England in relation to international 

comparators. When considered on an international stage, the health of people in this Region is 

quite poor; health outcomes in parts of Scandinavia, for example, appear to be much better. There 

are data challenges linked to making robust assessments, both in terms of the units for data collection 

and the manner in which data are gathered. Hence statistical ‘proof’ is hard to come by. This should 

not however prevent the Region learning from elsewhere, particularly from areas that are comparable 

in socio-economic terms. 

Strategic Priority 8: To harness the East of England’s international position 

to encourage learning, knowledge development and R&D for health 


Harnessing opportunities 

provided by the EU 

Generating evidence-based 

policies and practice 

8-1: Ensure that routine health 

data are published alongside 

European comparator information 

where this is available and 

appropriate 

8-2: Explore opportunities to 

participate in health-related EU 

programmes linked to the pursuit 

of Healthy Futures 

8-3: Improve networking across 

public health research in the East 

of England to ensure that the 

research needs of the Region 

are met more efficiently 

8-4: Maximise the benefits 

of health-related research 

in the Region 

• ERPHO’s work on EU 

comparators continues 

• The findings are disseminated 

to regional partners 

• Relevant programmes 

are identified 

• Regional agencies/organisations 

are encouraged to participate 

• Scoping meeting is completed, 

focusing on the priorities 

identified in Healthy Futures 

• Appropriate actions are 

identified 

• Scope of health-related research 

is better understood 

• Linkages are made more 

strongly to the benefit 

of the Region

8.10 Improving knowledge with regard to the Region’s health also needs to have internal dimensions. 

Currently research into public health occurs in pockets across the Region: some is sponsored by 

the DH and occurs within NHS structures whilst other research takes place within universities and 

research institutes. More could be done to improve dialogue across these different domains and to 

ensure that the research needs of the Region – including those identified within Healthy Futures 

– are better aligned with the research activity that is taking place. 

8.11 Finally, it is important to acknowledge the extent of health-related R&D that is taking place within 

the Region’s research institutes, universities and some of its businesses. Much of this research is world 

class and its impacts – in terms of pharmaceuticals, medical devices and healthcare systems – will be 

seen worldwide. Although links to the health of people in the Region are indirect, population health 

(in the East of England and elsewhere) ought to be improved as a result of these specialisms and 

Healthy Futures needs to acknowledge and encourage them. Continuing support ought therefore 

to be given to Health Enterprise East and the various existing/planned Enterprise Hubs with links to 

health-related research. 

8.12 A number of Actions which are linked to harnessing the Region’s international position to encourage 

learning, knowledge development and R&D for health are set out in the table below. 






ERPHO, EEPHG 

EEPHG, Observatories Social 


Academic Public Health Forum 

EEDA 

Different agencies have a common 

view about how the Region’s health 

compares with elsewhere in order to 

inform strategies for public health 

Improved participation in EU 

programmes that contribute 

to public health practice and/or 

R&D strengths 

Research in public health is better 

aligned to the priorities identified 

within Healthy Futures 

Regional R&D strengths are used 

fully, maximising their economic 

contribution and impact on health 

services and systems, and ultimately 

on public health 


108 

Strategic Priority 9: To understand and plan for the impacts of climate 

change and the more sustainable use of resources within the Region, 

in terms of health and health inequalities issues 

8.13 As a result of climate change, summers are becoming hotter and drier, while winters are milder and 

wetter; the expectation is that there will be more extreme climate events (very hot days and intense 

downpours of rain); and sea levels will rise, increasing the risk of coastal flooding and erosion. In 

the East of England, the impacts of climate change may be greater than elsewhere. As a report put 

it, ‘as well as having large low-lying areas, the Region is also sinking very slowly due to geological 

processes, making it vulnerable to coastal inundation as sea levels rise. Greater intensity and frequency 

of winter rainfall may increase the risk of flooding from rivers, while drier summers may put additional 

pressure on water resources’. 138 

8.14 The impacts of climate change will be profound and wide ranging. The direct impacts on the health 

of people in the East of England are likely to include heat-related deaths and illness, increased incidence 

of food poisoning, increased injuries during storm events, increased health problems caused by air 

pollution (particularly in urban areas) and increased incidence of skin cancer. In addition, there is 

evidence that flooding – which is likely to increase in frequency as a result of climate change – has 

adverse consequences for mental health; this includes anxious anticipation of flood events, high levels 

of stress during the event, and depression in the aftermath. 

8.15 The process of adapting to the impacts of climate change in order to improve health and reduce 

inequalities in health across the East of England must be a priority for Healthy Futures. Some of these 

impacts are negative – and there are clearly major issues relating to health protection in the context, 

for example, of increased concerns about food safety. However there are also positive effects: 

warmer weather may be conducive to greater participation in physical exercise, and changed growing 

conditions could improve the range of fruit and vegetables produced locally while warmer winters 

may make fuel poverty less of an issue. In seeking to achieve the Vision set out in Healthy Futures, 

it will be imperative that the issues relating to climate change adaptation are strongly on the agenda. 

8.16 Under the auspices of Healthy Futures, a number of regional-level Actions are proposed in order 

to advance Strategic Priority 9. These are set out in the table on page 110. 

138 Living with Climate Change in the East of England: Summary Report (2003) Completed by Land Use Consultants, CAG Consultants and SQW Ltd 

for the East of England Regional Assembly and the Sustainable Development Round Table.

Climate change, health and the work of CRed 

(Community Carbon Reduction Project) 

Perhaps the clearest recent example in the UK of the climate’s impact on health occurred during 

the heat wave of August 2003, when there was a 16% increase in deaths in England and Wales 

(figures from Eurosurveillance July 2005). As temperatures are predicted to rise significantly in the 

next century, it is likely that scenarios akin to this will become more frequent in the East of England. 

Domestic insulation, draught-proofing and passive solar mechanisms as a means of controlling 

thermal comfort (retaining heat during winter and a cool environment during summer) are 

examples of carbon reduction and energy bill reduction activities which are affordable to 

pensioners and those on low incomes. Encouraging people to leave the car at home and 

walk and or cycle more also has obvious environmental and health benefits, especially in 

an era where obesity is becoming a major cause for concern and road traffic emissions 

are being linked to respiratory diseases. 

The Community Carbon Reduction Project’s (CRed) promotion and use of sustainable resources 

endeavours to avert the worst effects of climate change and subsequent health implications. 

CRed’s ambition is to reduce carbon dioxide emissions in the East of England by 60% by 2025. 

It has designed a network of pathways to help individuals and organisations to achieve this, 

highlighting the importance of energy efficiency measures and awareness of the issue and 

offering advice upon how they can make a personal commitment to combating climate change. 

One aspect of carbon reduction is the promotion of reduced vehicle usage. ‘Use the car less’ is 

CRed’s pledge which is frequently highlighted as a way to reduce emissions. CRed is just as quick 

to point out the health benefits of using alternative forms of transport. ‘Before you jump into the 

car ask yourself if you could walk or cycle to your location. You can improve your health and save 

money by leaving your car at home and walking or cycling to the local shops’ see CRed Transport 

http://www.cred-uk.org 

Case Study provided by CRed (Community Carbon Reduction Project). 


110 

Strategic Priority 9: To understand and plan for the impacts of climate 

change and the more sustainable use of resources within the Region, 

in terms of health and health inequalities issues 


Advancing the regional 


framework (RSDF) 

Anticipating and planning 

adaptation and mitigation 

required for health and 


9-1: Ensure that regional 

agencies/organisations’ 

commitment to sustainable 

development (through sign-up to 

the RSDF) takes on board fully the 

issues and opportunities relating 

to population health 

9-2: Develop an appropriate 

strategy and action plan focusing 

on the links between health and 


• Health input is provided into 

reviews of the regional 


framework 

• Scoping discussion takes place 

with the Climate Change 

Partnership 

• A strategy and action plan is 

prepared and launched




EEPHG 

Climate Change Partnership 

Health is ‘mainstreamed’ 

as part of commitments to 


The potential consequences of 

climate change in relation to the 

health of people in the East of 

England are better understood and 

appropriate responses are agreed 


112

09 Delivering Healthy Futures 


The Actions identified in Chapters 6-8 will support and influence (rather than replicate or replace) 

three key groups of processes: it is these that will contribute substantively to the delivery of 

Healthy Futures. These delivery processes are those relating to: 

• Regional priorities set out in the Integrated Regional Strategy and in other ‘premier league’ 


• National priorities for population health set out in Choosing Health 

• Local and sub-regional priorities, particularly those defined by the LSPs and being advanced 

– across much of the Region – through Local Area Agreements, and those services being 

influenced by IiC partnership programmes. 

Progress on delivering the Actions identified in Healthy Futures – and on achieving the overall 

Vision – will be reviewed regularly by EERA’s Health and Social Inclusion Panel. 

9.1 Healthy Futures has been developed from the premise that the health of people in the East of 

England is – literally – ‘everyone’s business’. Delivering Healthy Futures will therefore be a shared 

responsibility. The hope is that the wide range of partner organisations and agencies that have 

contributed to the development of this Strategy will be influenced by Healthy Futures in preparing 

their own corporate plans and making decisions about resource allocation. 

9.2 Beyond this, the delivery of Healthy Futures will be ensconced within three groups of delivery 

processes (which are explained below). The intention is that these should be facilitated and supported 

by the Actions identified in this document. Progress in delivering these Actions will be overseen by the 

EERA’s Health and Social Inclusion Panel. These different elements – and the relationships between 

them – are illustrated in Figure 9.1(overleaf) and described in the paragraphs that follow. 


116 

Figure 9.1: Delivering Healthy Futures 

Delivery processes for regional 

priorities as set out in the 

Integrated Regional Strategy 

Key delivery processes 

Health and Social Inclusion Panel 

Actions defined in 


Delivery processes for local and sub-regional priorities, 

particularly those defined by LSPs and being advanced 

through Local Area Agreements, and those services being 

influenced through liC partnership programmes 

9.3 There are three key groups of delivery processes that will contribute substantively to the delivery 

of Healthy Futures. These are explained briefly below. 

1) Delivery processes relating to the Integrated Regional Strategy 



Healthy Futures: 

The Regional Health Strategy for the 




9.4 Healthy Futures has been strongly influenced by the Vision, key outcomes and priorities set out in the 

Integrated Regional Strategy. Once finalised, Healthy Futures is one of the ‘premier league’ regional 

strategies for the East of England. 139 In advancing Healthy Futures, the delivery processes that are 

emerging for the Integrated Regional Strategy will play a role. A Regional Partnership Group has been 

formed to oversee the delivery of the Integrated Regional Strategy, providing a key interface between 

Central Government and regional agencies and organisations, and – more specifically – signing off 

regional advice to Government on the prioritisation of available resources. It will be important that 

the Regional Partnership Group – and any other regional delivery groups that are subsequently formed 

– take into account fully the priorities set out in Healthy Futures (alongside those included in other 

premier league strategies). 

9.5 It will also be important that the bodies which are overseeing the delivery of other premier league strategies 

take note of Healthy Futures – both through the lens of the Integrated Regional Strategy and directly. As 

Figure 9.2 attempts to summarise, there is a strong level of read-across and significant complementarity. 

Hence the Regional Planning Panel (guardian of the East of England Plan) ought, for example, to be 

informed by the priorities set out in Healthy Futures, just as the Health and Social Inclusion Panel needs 

to be actively influenced by – and influencing – the priorities in the East of England Plan. 

139 The other premier league regional strategies are shown in Figure 9.2. 

Delivery processes for national 

priorities for population health 

(as they relate to the Region)

Figure 9.2: Read-across between existing ‘premier league’ 

regional strategies and the Strategic Priorities identified 

in Healthy Futures 140 

Strategy 

Date published 2004 2004 2004 2003 2001 2005 2001 




foundations of healthy 

lifestyles are designed 

creatively into new and 

existing communities in 


SP2: To provide infrastructure 

and sustained support 

to build social capital, 

particularly among 

those communities 

(geographical communities, 

communities of interest 

and potentially vulnerable 

groups) which are 

experiencing poor 

health outcomes 


communities to ‘Choose 

Health’ positively and 

more easily 



and young people in the 

East of England can get 

off to a healthy start in life 

SP5: To encourage better 

health for people in the 

East of England throughout 

their working lives 

Regional 

Economic 

Strategy 

Regional 

Spatial 

Strategy 

Regional 

Social 

Strategy 

Regional 

Environment 

Strategy 

Regional 

Cultural 

Strategy 

Regional 

Housing 

Strategy 

Regional 

Sustainable 

Development 

Framework 

✓ ✓✓ ✓✓ ✓✓ ✓ ✓✓ ✓ 

✓ ✓ ✓✓ ✓ ✓ ✓ 

✓ ✓ ✓ ✓ 

✓✓ ✓ ✓ 

✓✓ ✓✓ ✓ ✓ 

140 The Table shows where priorities already identified in existing premier league strategies map onto those that have now been defined in Healthy 

Futures. The strength of the fit is shown by the number of ticks. 


118 

Strategy 

Date published 2004 2004 2004 2003 2001 2005 2001 

SP6: To support people in 

the East of England in 

‘active ageing’ and 

adding life to years 


SP7: To recognise and 

respond to the practical 

implications of international 

gateways for health and 

health inequalities within 



England’s international 

position to encourage 

learning, knowledge 

development and R&D 

for health 

SP9: To understand and plan 

for the impacts of climate 

change and the more 

sustainable use of resources 

within the Region, in terms 

of health and health 

inequalities issues 

Regional 

Economic 

Strategy 

Regional 

Spatial 

Strategy 

Regional 

Social 

Strategy 

Regional 

Environment 

Strategy 

✓ ✓ ✓ ✓ 

✓✓ 

Regional 

Cultural 

Strategy 

2) Delivery processes relating to national priorities for population health 

(as they relate to the East of England) 

Regional 

Housing 

Strategy 

✓✓ ✓ ✓ 

9.6 Healthy Futures has been informed by the priorities set out in Choosing Health and its supporting 

documents. In the East of England, a number of multi-Agency Choosing Health delivery groups are in 

the process of being formed and the expectation is that these will be steered strongly in their work by 

the regional priorities set out in Healthy Futures, thereby contributing in important ways to its delivery. 

9.7 Beyond this, there is also the question of the relationship between Healthy Futures and the NHS. 

Given current uncertainties regarding future NHS organisational structures, it is impossible to be 

definitive. However we will maximise the benefits from any future changes in NHS organisation. 

Our hope is that Healthy Futures will be seen to provide a medium-term statement of health 

issues in the East of England against which priorities for elements of public health and health 

service delivery may subsequently be assessed. 

Regional 

Sustainable 

Development 

Framework 

✓ ✓ ✓✓ ✓✓

3) Delivery processes for local and sub-regional priorities 

9.8 Finally, we envisage a number of local/sub-regional delivery processes playing important roles. LSPs and 

emerging Local Area Agreements are one key part of the delivery process at a local scale. Local Area 

Agreements are being advanced across much of the Region. They are structured across four funding 

blocks: children and young people, safer and stronger communities, economic development and 

enterprise, and healthier communities and older people. All four resonate with the Themes and 

Strategic Priorities identified in Healthy Futures and the read-across is, intentionally, strong. In 

addition, by influencing service delivery, Investing in Communities Partnerships will also 

form an important element of the delivery process at a sub-regional scale. 

Health and Social Inclusion Panel, and Monitoring Progress 

9.9 The East of England Regional Assembly’s Health and Social Inclusion Panel will contribute to the 

delivery of Healthy Futures through its advocacy and influencing roles. It will be important that 

clear mechanisms are used to communicate with local and sub-regional partnerships. In seeking 

to disseminate the Strategy, it may want to consider producing a children-friendly version that 

can communicate effectively with children and their families. 

9.10 The Health and Social Inclusion Panel will monitor progress with regard to the delivery of the Strategy. 

Monitoring will take place at two levels: 

• First, progress on the delivery of individual Actions identified in the Strategy will be reviewed 

on a regular basis. Given the emphasis on influencing wider delivery processes, the precise 

impacts of individual Actions will be difficult to isolate. However, where relevant and appropriate, 

the effectiveness of Actions will be assessed, primarily in order to build up a body of evidence as 

to how and where regional interventions can add serious value 

• Second, steps will be taken to monitor the changing state of the Region’s health. The Strategy 

will have some – but very limited – influence on the headline indicators. Nevertheless, the Health 

and Social Inclusion Panel will want to be assured that the Strategy – and the Actions developed 

within it – is aligned with changing health needs. 

The proposal is that the changing state of the Region’s health will be monitored through an 

aggregation of Community Health Profiles. Provision for these was made in Choosing Health: 

the commitment was that Profiles should be prepared by Public Health Observatories on an annual 

basis using a common set of indicators for each Local Authority District. The first set of profiles will 

be published in 2006. It should be possible to aggregate the data for individual districts to derive an 

overall Health Profile of the Region and then to refresh this annually. This resource will be invaluable 

in terms of monitoring changes in the health of people across the East of England. 

9.11 Overall – and through these different mechanisms – the Health and Social Inclusion Panel will want 

to be assured that Actions are being delivered and that wider processes are being influenced and 

supported in a way that contributes to achieving the Vision set out in Healthy Futures – namely, 

improvements in health and reductions in inequalities in health across the East of England over 

the period to 2010 and beyond. 


120

Annex A: 

Consultation process 

A Regional Health Strategy for the East of England 

121

122 

Consultation process 

Overview 

Overseen by a Health Strategy Board 141 (with delegated authority from EERA) and with officer 

support from a Technical Advisory Group, 142 Healthy Futures has been developed in an iterative 

and consultative manner over a period of 18 months and involving well over 200 people. The 

consultation draft of Healthy Futures was posted on EERA’s website on 22nd July 2005. In 

amending it subsequently, serious account has been taken of the comments and insights 

provided in response by a wide range of stakeholders. 

Key elements of the various consultation processes are summarised below: the first of these 

informed the development of the consultation draft while the other three have been in response 

to the draft Strategy. 

1) Early Stakeholder Workshop and Task Groups 

An early Stakeholder Workshop was held in September 2004 and was well attended. This included 

a plenary session and then split into three Task Groups. In line with the ‘life course’ approach, 

these focused on children, young people and their families; people of working age; and older people. 

Each of the Task Groups met on two further occasions and considered the nature of key regional issues 

relating to particular stages in the life course and the opportunities for effective regional intervention. 

2) Discussions on the consultation draft of Healthy Futures 

Over the summer and early autumn 2005, officers from the East of England Public Health Group 

met with a range of regional and sub-regional partnerships and groups to present and discuss the 

consultation draft of Healthy Futures. Meetings were held, inter alia, with: the LSP Network, the 

Regional Health Forum, various Local Authority Health Scrutiny Committees, the Age Concern Regional 

Network, NHS public health networks, the Principal Youth Officers Network, the Regional Children’s 

Leads, Future East, the Sustainable Development Round Table, Community and Voluntary Forum: 

East of England (COVER), MENTER, the East of England Faiths Council, and the Board of GO-East. 

3) Written responses to the consultation draft of Healthy Futures 

In addition, written responses were invited on the consultation draft. By the end of October 2005, 39 

responses had been received. Of these, around a third came from NHS organisations (principally PCTs 

and SHAs) and two-thirds from a wide array of other agencies and organisations operating at regional 

and sub-regional scales. 

In the main, the written comments provided broad support for the draft document. Elements which 

were identified as needing further development included: the action plan and arrangements for delivery 

(particularly in relation to LSPs and Local Area Agreements), the opportunities surrounding the 2012 

Olympics/Paralympics, issues relating to travel and transport, the challenges of isolation (particularly 

among older people) and the issues relating to working age people outside of work/employment. In 

amending the draft Strategy, we have attempted to take into account the full range of perspectives 

that were set out in the consultation responses. 

141 The Health Strategy Board was set up as a ‘task and finish’ group to develop the Regional Health Strategy. In terms of membership, it has 

comprised several Non-Executive members of EERA, the Regional Director of Public Health, the director of ERPHO, a senior officer from HDA/NICE, 

and officers from EERA. 

142 The Technical Advisory Group has supported the Strategy’s development and it has included senior officers from Jobcentre Plus, Learning and Skills 

Council, East of England Public Health Group, ERPHO, HDA/NICE, EEDA, EERA and GO-East.

4) Action Planning Workshops 

During October 2005, five workshops were organised; these were structured around Theme A 

(Health in Sustainable Communities), Theme C (Health in a Connected Region) and the 

three Strategic Priorities from Theme B (focusing, respectively, on children and young people, 

adults of working age, and older people). The principal purpose of the workshops was to consider 

and advance the draft Action Plan. However they also provided an opportunity for stakeholders to 

comment on Healthy Futures as a whole. In total, the five workshops were attended by around 

70 people drawn from the voluntary and community sector, local government, NHS organisations, 

private sector developers, and regional and sub-regional agencies, partnerships and organisations. 


124

Annex B: Links between 

Healthy Futures and 

key PSA Targets 


125

126 

Links between Healthy 

Futures and key PSA Targets 

Overview 

The Public Service Agreement (PSA) Framework was first introduced in 1998 and it has become 

a central element of the Government’s strategy for delivering high quality public services; the 

Framework is intended to ensure that key outcomes are delivered in return for resources. The 

latest set of PSA Targets was published as part of the 2004 Spending Review (SR2004) and 

relates to the period 2005-2008 1 . 

Three different groups of PSA Targets have been identified as especially relevant to the delivery 

of Healthy Futures. These are: 

• Key DH PSA targets, focusing especially on the Department’s priorities linked to improving health, 

reducing inequalities in health and tackling the determinants of ill health 

• ‘Linked’ PSA Targets which belong to other Central Government Departments but were identified 

in ‘Delivering Choosing Health’; this was published by the DH in March 2005 

• Other PSA Targets which are relevant to Healthy Futures, given the three Themes and the nine 

Strategic Priorities that have been identified. 

These three groups of PSA Targets are summarised below. 

A: Key DH PSA Targets (from SR2004) 

1) Substantially reduce mortality rates by 2010: 

• From heart disease and stroke and related diseases (by at least 40% in people under 75 

with at least a 40% reduction in the inequalities gap between the fifth of areas with the 

worst health and deprivation indicators and the population as a whole) 

• From cancer (by at least 20% in people under 75 with a reduction in the inequalities gap 

of at least 6% between the fifth of areas with the worst health and deprivation indicators 

and the population as a whole) 

• From suicide and undetermined injury (by at least 20%). 

2) Reduce health inequalities by 10% by 2010 as measured by infant mortality and life 

expectancy at birth. 

3) Tackle the underlying determinants of ill health and health inequalities by: 

• Reducing adult smoking rates to 21% or less by 2010 with a reduction in prevalence among 

routine and manual groups to 26% or less 

• Halting the year-on-year rise in obesity among children under 11 by 2010 in the context of a 

broader strategy to tackle obesity in the population as a whole. (Joint with DfES and DCMS) 

• Reducing the under-18 conception rate by 50% as part of a broader strategy to improve 

sexual health. (Joint with DfES) 

1 See http://www.hm-treasury.gov.uk/spending_review/spend_sr04/spend_sr04_index.cfm

B: Other PSA Targets (from SR2004) from across Government identified in ‘Delivering 

Choosing Health: Making Healthy Choices Easier’ (DH, 2005) and relevant to 


1) Tackle social exclusion and deliver neighbourhood renewal, working with departments to help 

them meet their PSA floor targets, in particular narrowing the gap in health, education, crime, 

worklessness, housing and liveability outcomes between the most deprived areas and the rest 

of England, with measurable improvement by 2010. ODPM 

2) Reduce the number of people killed or seriously injured in Great Britain in road accidents by 

40% and the number of children killed or seriously injured by 50%, by 2010 compared with 

the average for 1994-98, with greater reductions in disadvantaged communities. DfT 

3) Reduce the under-18 conception rate by 50% as part of a broader strategy to improve sexual 

health. DfES/DH 

4) Improve children’s communication, social and emotional development so that by 2008, 50% 

of children reach a good level of development at the end of the Foundation Stage and reduce 

inequalities between the level of development achieved by children in the 20% most 

disadvantaged areas and the rest of England. DfES/Sure Start Unit/DWP 

5) Narrow the gap in educational achievement between looked-after children and that of their 

peers, and improve their educational support and the stability of their lives so that by 2008 

80% of children under 16 who have been looked after for 2.5 or more years will have been 

living in the same placement for at least two years, or are placed for adoption. DfES 

6) By 2010, bring all social housing into a decent condition with most of this improvement taking 

place in deprived areas, and for vulnerable households in the private sector, including families 

with children, increase the proportion who live in homes that are in decent condition. ODPM 

7) Eliminate fuel poverty in vulnerable households in England by 2010 in line with the 

Government’s Fuel Strategy objective. DTI/Defra 

8) Reduce race inequalities and build social cohesion. Home Office 

9) Demonstrate progress on increasing the employment rate. DWP/HMT 

10) Increase the employment rates of disadvantaged groups (lone parents, ethnic minorities, 

people aged 50 and over, those with the lowest qualifications and those living in the local 

authority wards with the poorest initial labour market position). DWP 

11) Significantly reduce the difference between the employment rates of the disadvantaged 

and the overall rate. DWP 

12) By 2008, improve health and safety outcomes in Great Britain through the progressive 

improvement in the control of risks in the workplace. DWP 

13) Promote sustainable development across government and in the UK [and internationally], 

as measured by: the achievement of positive trends in the Government’s headline indicators 

of sustainable development. Defra 

14) Reduce the gap in productivity between the least well performing quartile of rural areas and 

the English median by 2008 demonstrating progress by 2006, and improve the accessibility 

of services for people in rural areas. Defra 

15) Increase the number of adults with the skills required for employability and progression to 

higher levels of training through: 


128 

• Improving the basic skill levels of 2.25 million adults between the launch of Skills for Life in 

2001 and 2010, with a milestone of 1.5 million in 2007 2 . DfES 

• Reducing by at least 40% the number of adults in the UK workforce who lack NVQ 2 or 

equivalent qualifications by 2010. Working towards this, 1 million adults in the workforce 

to achieve level 2 between 2003 and 2006. DfES 

16) Improve air quality by meeting the Air Quality Strategy targets for carbon monoxide, lead, 

nitrogen dioxide, pesticides, sulphur dioxide, benzene and 1,3 butadiene. Defra/DfT 

17) By 2007-08 reduce the illicit market share for cigarettes to no more than 13%. HM Revenue 

and Customs 

18) By 2008, increase the take-up of cultural and sporting opportunities by adults and young people 

aged 16 and above from priority groups by: increasing the number who participate in active 

sports at least 12 times a year, by 3%; and increasing the number who engage in at least 

30 minutes of moderate intensity level sport at least three times a week, by 3%. DCMS 

19) Further enhance access to culture and sport for children and give them the opportunity to 

develop their talents to the full and enjoy the full benefits of participation by: 

• Enhancing the take-up of sporting opportunities by 5 to 16 year-olds by increasing the 

percentage of schoolchildren who spend a minimum of two hours each week on high-quality 

PE and school sport within and beyond the curriculum, from 25% in 2002 to 75% by 2006 

and 85% by 2008 in England, and at least 75% in each School Sport Partnership, by 2008. 

DfES/DCMS 

20) Ensure people have decent places to live by improving the quality and sustainability of local 

environments and neighbourhoods, reviving brown field land, and improving the quality of housing 

• Leading the delivery of cleaner, safer and greener public spaces and improvement of the 

quality of the built environment in deprived areas and across the country, with measurable 

improvement by 2008. ODPM 

21) Improve the accessibility of services for people in England’s rural areas (Success criteria – mental 

health – access to (i) crisis services and (ii) child and adolescent mental health services) 3 Defra 

22) Reduce crime by 15% and further in high-crime areas, by 2007-08. Home Office 

23) Improve levels of school attendance so that by 2008, school absence is reduced by 8% 

compared to 2003. DfES 

24) By 2008, 60% of those aged 16 to achieve the equivalent of 5 GCSEs at grades A* to C; and 

in all schools at least 20% of pupils to achieve this standard by 2004, rising to 25% by 2006 

and 30% by 2008. (This target may be reviewed in the light of recommendations in the 

Tomlinson report). DfES 

25) Increase the proportion of 19-year-olds who achieve at least level 2 by 3 percentage points 

between 2004 and 2006, and a further 2 percentage points between 2006 and 2008, and 

increase the proportion of young people who achieve a level 3 qualification. DfES 

26) Reduce the proportion of young people not in education, employment or training by 2 

percentage points by 2010. DfES 

27) Reduce the use of Class A drugs and the frequent use of any illicit drugs among all young people 

under the age of 25, especially by the most vulnerable young people 4 . Home Office/DfES 

2 Amended to be consistent with SR2004 targets 

3 Part of Defra PSA4 

4 This was included in Delivering Choosing Health but the wording of the target itself may be consistent with SR2002 (rather than SR2004)

28) Improve children’s communication, social and emotional development so that by 2008, 

50% of children reach a good level of development at the end of the Foundation Stage 

and reduce inequalities between the level of development achieved by children in the 

20% most disadvantaged areas and the rest of England. DfES/Sure Start Unit/DWP 

29) Narrow the gap in educational achievement between looked-after children and that of their 

peers, and improve their educational support and the stability of their lives so that by 2008, 

80% of children under 16 who have been looked after for 2.5 or more years will have been 

living in the same placement for at least 2 years, or are placed for adoption. DfES 

30) As a contribution to reducing the proportion of children living in households where no 

one is working, by 2008: 

• Increase the stock of Ofsted-registered childcare by 10% 

• Increase the take-up of formal childcare by lower income families by 50% 

• Introduce by April 2005, a successful light touch childcare approval scheme. Sure Start 

Unit/DfES/DWP 

31) Further enhance access to culture and sport for children and give them the opportunity to 

develop their talents to the full and enjoy the full benefits of participation by: 

• Enhancing the take-up of sporting opportunities by 5- to 16-year-olds by increasing the 

percentage of schoolchildren who spend a minimum of two hours each week on high-quality 

PE and school sport within and beyond the curriculum, from 25% in 2002 to 75% by 2006 

and 85% by 2008 in England, and at least 75% in each school Sport Partnership, by 2008. 

DfES/DCMS 

32) By 2008, be paying Pensioner Credit to at least 3.2 million pensioner households while 

maintaining a focus on the most disadvantaged by ensuring that at least 2.2 million of 

these households are in receipt of the Guarantee Credit. DWP 

33) Improve working age individuals’ awareness of their retirement provision such that by 2007/08, 

15.4 million individuals are regularly issued a pension forecast and 60,000 successful pension 

traces are undertaken a year. DWP 

34) Eliminate fuel poverty in vulnerable households in England by 2010 in line with the 

Government’s Fuel Strategy Objective. DTI/Defra 


130 

C: Other PSA Targets (from SR2004) from across Government that are relevant 

to Healthy Futures 

Note: In the main, these relate to the broader determinants of health and health 

inequalities which were discussed in Chapter 4 

1) Make sustainable improvements in the economic performance of all English regions by 2008, 

and over the long-term reduce the persistent gap in growth rates between the regions, 

demonstrating progress by 2006. ODPM/DTI/HM Treasury 

2) By 2008, improve the effectiveness and efficiency of local government in leading and delivering 

services to all communities. ODPM 

3) Achieve a better balance between housing availability and the demand for housing, including 

improving affordability, in all English regions while protecting valuable countryside around our 

towns, cities and in the green belt and the sustainability of towns and cities. ODPM 

4) The planning system to deliver sustainable development outcomes at national, regional and 

local levels through efficient and high quality planning and development management processes, 

including through the achievement of best value standards for planning by 2008. ODPM 

5) Improve the relative international performance of the UK research base and increase the overall 

innovation performance of the UK economy, making continued progress to 2008, including 

through effective knowledge transfer amongst universities, research institutions and business. DTI 

6) Build an enterprise society in which small firms of all kinds thrive and achieve their potential 

with an increase in the number of people considering going into business; an improvement in 

the overall productivity of small firms; and more enterprise in disadvantaged communities. DTI 

7) By 2008, working with other departments, bring about measurable improvements in gender 

equality across a range of indicators as part of the Government’s objectives on equality and 

social inclusion. DTI 

8) By 2008, promote ethnic diversity, co-operative employment relations and greater choice 

and commitment in the workplace, while maintaining a flexible labour market. DTI 

9) Increase voluntary and community engagement, especially amongst those at risk of social 

exclusion. Home Office 

10) As part of the wider objective of full employment in every region, over the three years to spring 

2008, and taking account of the economic cycle, demonstrate progress on increasing the 

employment rate. HM Treasury/DWP 

11) Halve the number of children in relative low income households between 1998-99 and 2010-11, 

on the way to eradicating child poverty by 2020. HM Treasury/DWP 

12) By 2010, increase participation in higher education towards 50% of those aged 18-30 and 

also make significant progress year on year towards fair access, and bear down on rates on 

non-completion. DfES 

13) By 2008, improve the productivity of the tourism, creative and leisure industries. DCMS

Annex C: Glossary 


131

132 

Active ageing This is defined by the World Health Organisation as 

‘the process of optimising opportunities for health, 

participation and security in order to enhance quality 

of life as people age’ 

Active transport Travel modes that involve physical activity such as walking 

and cycling 

BMI Body Mass Index This is calculated by dividing a person’s weight (kg) by 

their height (m) squared. A BMI of 25-30 is considered 

overweight and a BMI of 30 or more is obese 

CHD Coronary Heart According to the DH, CHD is a preventable disease that 

Disease preventable disease that kills more than 110,000 people 

in England every year. It is the biggest killer in the country 

EEDA East of England The Regional Development Agency for the East of England 

Development Agency region which was set up following the 1998 Regional 

Development Agencies Act 

EEPHG East of England Public The DH’s regional presence, which is co-located with 

Health Group GO-East (the Government Office for the East of England) 

EERA East of England Voluntary partnership of elected representatives from the 

Regional Assembly 54 local authorities in the East of England and appointed 

representatives from social, economic and environmental 

interests (Community Stakeholders) 

ERPHO Eastern Region Public The ERPHO is part of a national network of Public Health 

Health Observatory Observatories. It was established as an NHS and DH 

partnership to promote better use of health-related 

information according to the roles set out in the 

Government White Paper ‘Saving Lives: Our Healthier 

Nation’ (Cm 4386, 1999) 

Fuel Poverty The UK Fuel Poverty Strategy defines a fuel poor 

household as one that needs to spend in excess 

of 10% of household income on all fuel use in 

order to maintain a satisfactory heating regime 

Future East Regional Ageing Forum for the East of England 

(see Figure 7.1) 

GVA Gross Value Added GVA measures the contribution to the economy of each 

individual producer, industry or sector 

Inspire East Inspire East is one of the Regeneration Centres of 

Excellence across England which was set up in the 

context of the wider sustainable communities agenda 

(see Figure 6.2)

IiC Investing in Communities A catalytic programme, developed by EEDA, provides 

a holistic approach to social inclusion, by supporting 

long-term strategic planning to tackle disadvantage 

and by encouraging the co-ordination of public sector 

resources and interventions to deliver agreed priorities 

Integrated Regional A high level Strategy for the East of England which – 

Strategy drawing on other regional strategies – presents a Vision, 

high level outcomes, and priorities for the East of England 

LAA Local Area Agreement Local Area Agreements are a new way of working to 

build a more flexible and responsive relationship between 

central government and a locality on the priority outcomes 

that need to be achieved at local level 

LSP Local Strategic ODPM describes LSPs as single non-statutory, multi-agency 

Partnership bodies which match local authority boundaries, and aim 

to bring together at a local level the different parts of the 

public, private, community and voluntary sectors. LSPs 

are key to tackling deep seated, multi-faceted problems, 

requiring a range of responses from different bodies. 

PCT Primary Care Trust PCTs have three main functions: improving the health of 

their community; developing primary care and community 

services; and commissioning hospital services for local 

people. Their performance and standards are monitored 

by the relevant Strategic Health Authority 

PSA Public Service The Public Service Agreement (PSA) Framework was first 

Agreement introduced in 1998 and it has become a central element 

of the Government’s strategy for delivering high quality 

public services; the Framework is intended to ensure 

that key outcomes are delivered in return for resources. 

The latest set of PSA Targets was published as part of 

the 2004 Spending Review (SR2004) 

Regional Economic 10-year Strategy developed by the East of England 

Strategy Development Agency (EEDA) setting out economic 

development priorities for the East of England 

Regional Spatial Statutory framework for local authorities to produce 

Strategy more detailed development plans and local transport 

plans for their areas and to provide an overview of 

many issues that have implications across the Region 


134 

Social Capital Defined as ‘the networks, norms, relationships, values 

and informal sanctions that shape the quantity and 

co-operative quality of a society’s social interactions’ 

see Aldridge, S and Halpern, D ‘Social Capital: 

A Discussion Paper’ (2002), Cabinet Office: PIU 

SHA Strategic Health SHAs were created in April 2002 Authority with the aim 

Authority of ensuring high-quality performance in local NHS services. 

There were three SHAs in the East of England: Essex; 

Bedfordshire and Hertfordshire; and Norfolk, Suffolk 

and Cambridgeshire. From 1st of July 2006 there will 

be one SHA for the East of England 

Sure Start Sure Start is a Government programme which aims 

to achieve better outcomes for children, parents and 

communities by: increasing the availability of childcare 

for all children; improving health and emotional 

development for young children; supporting parents as 

parents and in their aspirations towards employment 

Sustainable The Deputy Prime Minister launched ‘Sustainable 

Communities plan Communities: Building for the Future’ on 5 February 

2003. The Plan sets out a long-term programme of action 

for delivering sustainable communities in both urban and 

rural areas. It aims to tackle housing supply issues in the 

greater south east, low demand in other parts of the 

country, and the quality of our public spaces

Annex D: Bibliography 


135

136 

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Big Smoke Debate: Results from the East of England, 2004, ERPHO. 

Cancer Incidence in the East: INpho Briefing papers on topical public health issues Issue 10, 

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Childhood disadvantage and adult health: a life course framework, 2004, Hilary Graham 

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138 

The CHD National Service Framework: Leading the Way Progress Report, 2005, Department of Health. 

The Impact of Overcrowding on Health and Education: A Review of the Evidence and Literature, 

2004, ODPM. 

The Implications of an Ageing Population for the sustainable development of the East of England, 

2003, Population Associates, for EERA. 

The Provision of Affordable Housing in the East of England 1996-2001, 2003, Cambridge Centre 

for Housing and Planning Research for EERA. 

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Health Development Agency.



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Designed and produced for EERA in July 2005 

for the East of England 2005-2010

2 

1 Foreword 

I am very pleased to introduce the Regional Housing Strategy for the East of England 2005-2010. 

This new strategy is a significant step up from the previous version for 2003-2006, rising to the 

challenges of housing growth set out in the draft East of England Plan. 

This strategy is published at an exciting time for the regional housing agenda. The Government 

has demonstrated its commitment to delivery of affordable housing in the East of England with an 

allocation to the Single Regional Housing Pot of £431 million for 2006-08. It now falls to all the 

partners involved in the implementation of the Regional Housing Strategy to ensure that these 

public funds are used wisely: to help deliver decent homes to meet the needs of everyone in the 

East of England in a sustainable manner. 

Alongside an increase in public expenditure in the next two years are anticipated changes in the 

regional governance structures for housing. The functions and responsibilities of the Regional 

Housing Board are expected to transfer to the East of England Regional Assembly, so creating a 

closer alignment between regional housing and planning functions. Indeed it will now be EERA's 

responsibility to co-ordinate the delivery of the strategy and to monitor its progress. 

A great number of organisations have been involved in the development of the Strategy. Through 

early consultations with the sub-regions, a series of widely attended consultation events in 

November and December and then a period of more formal consultation over February, March and 

April 2005, a large number of individuals and organisations have contributed to the document. 

Input from the 9 housing sub-regions has been especially important. Each of the sub-regions has 

their own housing strategy, and they will continue to play an essential role in implementation of 

this strategy, turning regional policy into action at a local level. 

On behalf of EERA I would also like to give a special thanks to the Regional Housing Forum who 

have steered the development of the strategy since discussions first began in spring 2004, and to 

Jane Smith consultant to the Forum for her tremendous efforts in bringing everything together. 

The period up to 2010 will see the region grappling with the issues of increased housing supply 

and balancing this with issues of housing quality, environment, community cohesion and social 

inclusion. I am confident that the Regional Housing Strategy sets out a sound policy framework 

that will guide decision making and help EERA and its partners to rise to the many challenges 

ahead. 

Cllr Simon Woodbridge 

Chair 

EERA Housing and Sustainable Communities Panel

2 Executive summary 

Introduction 

This is the second Regional Housing Strategy (RHS) for the East of England, taking forward the 

objectives of the first Strategy launched in 2003. Together with other key regional strategies 

comprising the Integrated Regional Strategy (IRS), in particular the East of England Plan and the 

Regional Economic Strategy (RES), it sets an agenda for achieving change and improvement for 

the quality of life in the Region. 

The Regional Assembly (EERA) will be taking the lead in co-ordinating the implementation of the 

RHS. Delivery of the changes will be in the hands of a large number of stakeholders operating in 

the housing field across the Region. Success will depend on them following the Assembly’s lead, 

working in cooperation and partnership to pursue the common objectives and policies set out in 

the RHS. 

The RHS has therefore been formulated on the basis of wide consultation on objectives and the 

best means to achieve them. Inevitably this has required many compromises to be made between 

different views and priorities. In this spirit, all the Region’s stakeholders are urged to follow the 

provisions of the RHS as far as possible in guiding their decision-making and resource allocation. 

Crucially, it is proposed that, as far as practicable, stakeholders contribute to the planning and 

implementation of sub-regional strategies which will play a key role in translating the RHS into 

action at the local level. 

An accompanying context document 1 provides a comprehensive background of housing and 

related issues in the East of England with signposting to other sources of information. The RHS 

can be seen to be addressing these issues, based on evidence available. Over the coming years, 

more evidence should emerge which will permit its review, refinement and revision, enhancing the 

confidence with which stakeholders can act in pursuit of the common objectives as set out in 

the RHS. 

Purpose and Vision 

The Vision of the RHS is: 

‘To ensure everyone can live in a decent home which meets their needs, at a price they 

can afford and in locations that are sustainable’. 

Among other aims, this means: 

‘more, sustainable housing provision, in high quality homes and environments, creating 

inclusive communities’. 

The East of England is set to experience a large growth in the number of households resident in 

the Region. This is partly due to expansion within the existing population, and partly a result of 

in-migration. These pressures cannot be avoided, and indeed they are considered necessary to 

support the economic growth of the East of England, as set out in the RES, and to ensure the 

sustainability of the Region’s communities. While the East of England Plan has established the 

broad strategic location of where the new housing should be developed to accommodate the 

household growth, it is one purpose of this RHS to provide clear guidance on the type of housing 

to be provided. 

1 Lodged on EERA’s website at www.eera.gov.uk 

Regional Housing Strategy for the East of England: 2005–2010 

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4 

For the foreseeable future, most of the Region’s households will be living in the present housing 

stock. While the provision of new housing appears to be the most pressing issue for the Region, 

it is therefore still the case that what happens to the existing stock is likely to be of much greater 

long-term importance. For this reason, another key purpose of the RHS is to set out an approach 

to the improvement and maintenance of the existing housing stock. 

The RHS provides a framework for decision-making and other actions at sub-regional and local 

levels. The true test of its value will be the extent to which those operating at these levels find the 

framework useful in providing confidence that their actions will be complementary to others’ 

operating at different levels and in other geographical areas. Sitting between national and local 

policies, the RHS should be able to act as a link to ensure that experience at local level can feed 

upwards into national decisions. 

Similarly, through its ability to be linked directly to all other strategies for the East of England, the 

RHS also provides a means for housing to be taken fully into account in future planning of the 

Region’s economy, transport, health services, and so on. This is an area in which potential conflicts 

can be readily recognised: between additional housing and protection of open countryside; in the 

trade-off between quality and quantity of new housing; in decisions on spending limited public 

resources on either housing or infrastructure; and so on. The RHS addresses these issues 

pragmatically, on the basis of current evidence; but these are clearly areas which will need to be 

kept under constant review. 

More, sustainable housing provision 

Over the coming years, it is estimated that the East of England will require on average an 

additional 23,900 homes to be provided annually. Eleven thousand of these will probably need to 

be ‘affordable‘, i.e. benefiting from some form of subsidy to reduce their cost to the consumer to 

significantly below the market price. On the basis of current practice, the volume of subsidy 

required will certainly be much greater than what is likely to be available from public expenditure. 

Therefore the RHS sets out an approach to meet this challenge through a series of measures aimed 

at: reducing land and construction costs, reducing average subsidy requirements, and maximising 

the public investment resources available. 

Key among these are improvements in how the land-use planning system is operated to help 

provide land and subsidy for different forms of affordable housing within sustainable new 

communities of the future. Although section 106 agreements are at the centre of this, the RHS is 

looking to achieve greater cooperation between the actors in the process of negotiating these 

agreements. 

Partnership is an important theme in ensuring the required delivery of new housing, and a 

partnering approach is recommended in planning and managing the supply-chain of new housing 

schemes across the Region which will provide the volume of schemes required. Together with 

training and similar measures, this will help bring about the improvement in confidence, efficiency 

and product quality which will be needed from the Region’s future construction industry.

High quality homes and environments 


Ensuring all people in the Region can live in decent homes is crucial, and the RHS takes as its 

baseline the achievement of the Government’s ‘Decent Homes Standard’ in the existing stock. 

However, aspirations are set much higher than this. 

An approach is proposed which will use expertise available in the Region to improve radically 

the general quality of new homes and residential areas. This is very much a future agenda, and 

the RHS calls for the detailing of the approach to be an urgent action for implementation. 

Within existing residential areas, action to meet the Decent Homes Standard needs to be 

complemented by action on the quality of the environment surrounding homes: the ‘liveability‘ of 

each neighbourhood. This should include bringing empty homes back into use, reusing derelict 

land and properties and providing more green space. 

Creating inclusive communities 

The RHS places emphasis on improving the sophistication of systems designed to anticipate future 

housing needs within the Region’s communities. Avoiding homelessness is naturally a key 

objective; but stress is placed on an understanding of the housing market which will allow a better 

matching of housing provision with the anticipated future needs and household circumstances. 

The Government’s current initiative for housing Key Workers in the public sector is supported by 

the RHS, which recognises them as one of a wide range of groups not adequately served by the 

restricted traditional forms of social housing. Sustainable communities of the future will require a 

full range of different types and tenures of housing, providing choice and allowing for changing 

household circumstances. 

Housing plays a key role in issues relating to social inclusion and community cohesion in the 

Region. The RHS stresses the importance of creating balanced communities, including mixed 

housing tenure. It proposes the development of policies and practices which, when addressing 

housing issues, will also take account of health, accessibility and other factors which impact on 

residents’ quality of life. 

Housing policies relating to specific population groups are proposed, with the aim of ensuring their 

integration into the wider community of the East of England. These cover members of black 

and minority ethnic communities including Gypsies and Travellers, migrant workers, asylum 

seekers, and refugees. 

The RHS recognises that housing provision with care and support is a major issue in the East of 

England. Some proposals are made for dealing with this issue in the future; however, their main 

aim is to guide the creation of a Supporting People (SP) strategy for the Region to work within the 

framework of existing government arrangements for this policy area. 

Many communities in the East of England are rural, with their particular problems relating to small 

populations and large distances for travel. The RHS attempts to ensure that there is a rural 

dimension to the whole range of policies and other proposals addressing different aspects 

of housing. 

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Recommendations for public investment 

Possibly attracting most attention within the RHS is the set of proposals for public expenditure on 

housing. In setting an approach to this, it adopts both long- and short-term perspectives. 

In the longer term, the RHS seeks to establish a broad direction, taking a balanced view between 

competing themes for public investment, complementing the other policies aiming at change in 

the existing stock and achieving the step-change in new affordable housing provision. In the short 

term, it takes a pragmatic view with regard to the scope for investment in the next two 

programmes for investment from the Single Regional Housing Pot (2006–08 and 2008–10). 

Making best use of the available resources, a step-change in the quantity and quality of new 

housing, and ensuring progress in meeting the Decent Homes target, are clear objectives. 

The RHS seeks to ensure that sufficient investment is provided to make significant progress 

towards achieving Decent Homes. Fortunately, this is expected to require a relatively small part of 

the public resources available. For the remainder, the RHS sets target shares of funding for the 

various investment themes. Both the nature of the themes and their relative shares have been 

established on the basis of thorough consultation among stakeholders across the Region. 

Indicative share of single 

regional housing pot 

Investment theme to 2010 (%) from 2010 (%) 

Growth 20 25 

Local need / homelessness 20 20 

Regeneration 10 10 

Rural 10 10 

Key Workers 14 5 

Supported housing 8 15 

Existing stock 15 10 

Black and Minority Ethnic 3 5 

Total 100 100 

Implementation, managing and monitoring the RHS 

The RHS sets out a series of proposals to ensure that it will be implemented, and retain its 

relevance for the various stakeholders in the Region. It outlines a framework for management of 

delivery, and for the monitoring and review of the RHS itself. Finally, it lists a series of concrete 

actions which represent key elements in the RHS’s implementation. The most urgent of these 

actions is for stakeholders to work with EERA, once the new governance arrangements have been 

confirmed, to prioritise and schedule the actions, attribute responsibilities, and set targets for 

delivery, encompassing all in a comprehensive Action Plan.

2 Contents 


1 Foreword 2 

2 Executive summary 3 

Introduction 3 

Purpose and Vision 3 

More, sustainable housing provision 4 

High quality homes and environments 5 

Creating inclusive communities 5 

Recommendations for public investment 6 

Implementation, managing and monitoring the RHS 6 


4 Purpose and vision 11 

Purpose 11 

Vision 12 

The national strategic framework 12 

The regional strategic framework 14 

Housing investment sub-regions 17 

Rising to the challenge: managing conflict and delivery 18 

5 More, sustainable housing provision 20 

Bringing about the step-change in delivery 20 

Sustainable provision 29 

6 High quality homes and environments 31 

Quality deficit 31 

Quantity, quality and cost 31 

Existing housing – achieving the ‘Decent Homes Standard‘ 32 

Quality environments and regeneration 34 

Empty and unoccupied housing space 35 

Housing to improve health and well-being 37 

7 Creating inclusive communities 41 

Assessing need 41 

Inclusion and community cohesion 41 

Providing mixed communities and widening choice 46 

Rural communities 49 

Homelessness 52 

Supporting people 54 

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8 Recommendations for public investment 57 

Background to investment 57 

The balance between investment in the existing housing stock and new housing 59 

Investment in the existing housing stock. 59 

Investment in new affordable housing 62 

9 Implementation, managing and monitoring the RHS 76 

Priorities for delivery 76 

Short-term delivery 76 

Delivery at local level 77 

Managing the process of delivery 77 

Monitoring and review of the RHS 78 

Risk and contingency planning 79 

Actions to be scheduled and prioritised 81 

10 Appendix 84 

Appendix 1 – delivery agents 84 

Figure 1: Relationships between regional, sub-regional and local strategies 12 

Figure 2: Elements of the integrated regional strategy 

Figure 3: Housing investment sub-regions and planned distribution of new 

15 

housing provision to 2021 17 

Figure 4: Strategic planning framework 22 

Figure 5: Inspire East 26 

Figure 6: Policy framework: section 106 agreements 28 

Figure 7: Policy framework: quality homes and environments 36 

Figure 8: Policy framework: housing, health and well-being 38 

Figure 9: Policy framework: housing, inclusion and community cohesion 44 

Figure 10: Policy framework: providing mixed communities and widening choice 47 

Figure 11: Policy framework: housing in rural communities 51 

Figure 12: Policy framework: alleviating homelessness 53 

Figure 13: Illustration of the flow of housing capital allocations 57 

Figure 14: Potential investment interventions 58 

Figure 15: Affordable housing products 63 

Figure 16: Targets and provisional allocations against 2004–06 investment themes 65 

Figure 17: Investment themes 66 

Figure 18: Investment themes indicative targeting 69

3 Introduction 


3.1 This second Regional Housing Strategy (RHS) appears at a time of significant regional change 

as confirmation is awaited from Government of the merger of regional planning and housing 

functions. The RHS is likely to be delivered under different arrangements from those that it was 

conceived under. With the roles of the Regional Housing Board (RHB), Regional Housing Forum 

(RHF) and the EERA Housing and Sustainable Communities Panel (H&SCP), likely to change. 

3.2 The East of England Regional Assembly (EERA) has a potential new role as the regional housing 

body, taking on the functions of the existing RHB. Therefore throughout the document the 

following terms have been used 

• EERA/RHB to refer to functions currently held by the Regional Housing Board 

• Regional Housing Delivery Group (RHDG) which will build upon and replace the RHF 

3.3 A more detailed note of how new arrangements are anticipated to work in delivering and 

monitoring the RHS is contained in section 9. 

3.4 Whilst regional roles and responsibilities will be changing it is still necessary to produce a regional 

strategy for housing that both informs regional stakeholders and prioritises action 

and investment. 

3.5 The RHS moves from a consideration of key issues for housing in the East of England to identify 

the challenges and risks and how they might be overcome. In dealing with the challenges it is 

important to recognise that this RHS cannot do everything; there must be prioritisation. Likewise 

the RHS cannot work in isolation; there must be a shared agenda with other strategies 

and recognition of the role of delivery agents. Policy frameworks are proposed as a basis for 

co-ordinating activities. 

3.6 The context document, lodged on EERA’s website, gives a comprehensive picture of housing and 

related issues in The East of England. The following are some of the key issues that the RHS has 

to deal with. 

3.7 The population in the East of England grew by 5.5% between 1981 and 2001. Population 

projections 1996–2021 suggest a growth of 12.2%, and an increase in households of 24.7% 2 . 

3.8 If recent population trends continue, the major gross flows will come from London (approximately 

40% of all in-migrants) from overseas (20%) and from the South East Region (15%). There is a 

net outflow of migrants from the East of England to all British regions except London. 3 

3.9 The East of England has a close functional relationship with London. Migration from London 

to the Region has been a key driver of past population growth although the London Plan 2004 

seeks to encourage a high proportion of its expected population to remain in the capital. It is 

unlikely however, to accommodate all its population pressures and a net outflow of people from 

London to surrounding regions is likely to continue. 4 

3.10 Three of the Government designated Growth Areas impact on the Region. The East of England 

accounts for nearly a third of Growth Area housing – the biggest contribution outside London 5 . 

3.11 The number of households is increasing as household size decreases. A significant proportion of 

the growth in households and population will be as a consequence of natural growth: 59% of 

household growth will come from the formation of new households within the existing 

population, 18% of the population growth will come from the continued excess of births over 

deaths. 6 

2 ONS mid-year estimates:1996 based population projections ODPM 1996 based household projections from GO-East 

3 Draft East of England Plan, December 2004. 

4 As above 

5 GO-East 

6 Draft East of England Plan, December 2004. 

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10 

3.12 There are considerable differences in the age profiles of the population across the Region. The 

percentage of residents aged 29 and under range from a high of 47.4% (Cambridge) to a low of 

28.5% (North Norfolk). The percentage of residents aged 60 and over ranges from a high of 

32.6% (Tendring in Essex) to a low of 16.3% in Luton. 7 

3.13 The population breakdown by Ethnic Group from the 2001 Census shows that the East of England 

has a white population of 95.1% compared with 91.3% for England and Wales. The ‘Non-White‘ 

population includes all minority ethnic groups but not White Irish or Other White groups. The 

‘Non-White‘ group is 4.9% of the population in the East of England compared with 8.7% for 

England and Wales. The largest minority ethnic group in the Region is Indian at 0.9%. 

3.14 7.5% of the land area is designated as nationally important with the Broads, four Areas of 

Outstanding Natural Beauty and two Heritage Coasts. In addition 22 countryside character areas 

have been mapped by the Countryside Agency and English Nature. 

3.15 Environmental resources, particularly water, are a critical issue for the Region. The East of England 

is the driest region in England, and there are already supply-demand issues in parts of the Region. 

Climate change is likely to have a further significant impact on these resources. 

3.16 EERA and East of England Development Agency (EEDA) have jointly researched the land use 

implications of the RES and have particularly considered the alignment of housing and jobs 

growth policies. 8 

3.17 To achieve RES objectives, the RSS directs additional employment growth to deprived areas with 

weak economies (to facilitate regeneration) and to areas which have the potential for strong 

growth (to support the Region’s key economic sectors and clusters). The proposal in the RSS is for 

jobs growth across the Region for 2001–2021 of 421,000. 

3.18 The Right to Buy has had an impact on tenure across the Region. The total Right to Buy sales from 

1998–2003/04 are 139,127 across the Region 9 . 

3.19 The Region’s Annual Monitoring Report has shown that the house price to incomes ratio has been 

• 5.4:1 in 2001 

• 6.9:1 in 2002 

• 7.4:1 in 2003 

• 8.2:1 in 2004 

3.20 The consequences of increasing affordability problems are higher waiting list figures and 

homelessness acceptances. Between 1997–98 and 2002–03, homeless acceptances had increased 

by 37% across the East of England. The average rate for England was 25.9% 10 . 

3.21 The number of households in temporary accommodation at the end of 2003 was over 7,900 – an 

increase of 159% compared with December 1997. 11 

3.22 Our regional research 12 has shown the need for 23,900 net additional dwellings per year over the 

East of England Plan period 2001–2021. Affordable housing need equates to 11,000 dwellings per 

year. 

7 Cambridgeshire County Council Research Group – overview of the resident labour force from Census 2001 For Regional Partners 

8 Roger Tym and Partners research report August 2004. 

9 GO-East 

10 GO-East 

11 As above 

12 Cambridge Housing and Planning Research for the East of England Regional Assembly

4 Purpose and Vision 

Purpose 


4.1 The first regional housing strategies were developed from largely descriptive statements in order 

to deliver the Government’s Sustainable Communities Plan in a regionally sensitive manner. 

Regional Housing Boards were established in 2003 with responsibility for delivering the 

underpinning public investment in housing. 

4.2 Similarly, the Government’s five year strategy ‘Homes for All‘ announced in January 2005 must be 

a significant factor in the way the RHS moves forward. 

4.3 The RHS is part of a suite of regional strategies, and has links to other existing and emerging 

strategies. It has a particular relationship with the Regional Spatial Strategy (the East of England 

Plan) and the RES, all of which are brought together in the Integrated Regional Strategy. 

4.4 A primary function of the RHS must be to act as an instrument for delivery of the East of 

England Plan, and to support the RES. The RHS must move to a position where new provision 

reflects what is set out in the East of England Plan and this in turn reflects the Government’s 

Sustainable Communities agenda. This requires the policies and other provisions of the RHS to 

address the need for strategic guidance and support for those engaged in planning new residential 

development. 

4.5 The RHS is not a substitute for local and sub-regional housing strategies that identify localised 

needs and markets. Local housing authorities produce their housing and homelessness strategies 

within the context of their community strategies and local corporate priorities, ensuring that 

housing priorities are closely linked to economic, social and environmental needs. 

4.6 The RHS will only be acceptable to those working at local and sub-regional levels if it is seen 

to add value to what they are doing. It does not substitute for their own strategic thinking but 

must complement it, providing a regional framework to guide and support their work. Ideally, local 

strategies will nest within the respective sub-regional strategy, and sub-regional strategies within 

the RHS. 

4.7 The RHS is the ‘glue‘ that holds national and local priorities together. The relationship between 

strategies at the three levels is neither simply ‘top-down‘, nor ‘bottom-up‘: it must be both at the 

same time, with influence in the form of strategic guidance, good practice and evidence for policy 

formation, coordination, support in resolving conflicts and inconsistencies, and so on. In all these 

ways the RHS can be expected to add value. 

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12 

Figure 1. Relationships between regional, sub-regional and local strategies 

Vision 

4.8 The Vision has been developed from the original strategy, with some refinement following 

consultation: 

To ensure everyone can live in a decent home which meets their needs, at a price they 

can afford and in locations that are sustainable. 

4.9 Contributing aims: 

Regional Housing Strategy: Synthesis of Sustainable Communities 

Plan, Housing Element of East of England Plan, Regional Economic 

Strategy and sub-regional Priorities. 

Sub-regional housing strategy: Reflects housing markets and 

development sites (operating across local administrative boundaries) 

focus for the supply and delivery of affordable housing. 

Local Housing and Homelessness Strategy Analysis of local housing 

needs and related issues. Link to community planning agenda. 

• to use housing investment to support economic development 

• to provide a sustainable environment and attractive places to live 

• to promote social inclusion within sustainable communities 

• to ensure that housing serves to improve the Region’s health and well-being and reduce 

inequalities. 

4.10 The RHS will be achieved through three key objectives of delivering more, sustainable housing 

provision, in high quality homes and environments, creating inclusive communities. 

It must do this within established national and regional strategic frameworks. 

The national strategic framework 

4.11 The Government expects the RHS to deliver the Sustainable Communities Plan in a way that is 

appropriate to the East of England. In particular it should support the Office of the Deputy Prime 

Minister’s Public Service Agreement (PSA) performance targets. 

• PSA 1: tackle social exclusion and deliver neighbourhood renewal, working with 

departments to help them meet their PSA floor targets, in particular narrowing the gap in 

health, education, crime, worklessness, housing and liveability outcomes between the most 

deprived areas and the rest of England, with measurable improvement by 2010. 

• PSA 5: achieve a better balance between housing availability and the demand for housing, 

including improving affordability, in all English Regions while protecting valuable countryside 

around our towns,cities and in the green belt and the sustainability of towns and cities.

• PSA 7: by 2010, bring all social housing into a decent condition with most of this 

improvement taking place in deprived areas, and for vulnerable households in the private 

sector, including families with children, increase the proportion who live in homes that are 

in decent condition. 

• PSA 8: lead the delivery of cleaner, safer and greener public spaces and improvement of the 

quality of the built environment in deprived areas and across the country, with measurable 

improvement by 2008. 

4.12 The additional resources for housing achieved through the 2004 spending review were to achieve 

reductions in homelessness. The five year strategy ‘Homes for All‘ includes a target to reduce by 

half, the use of temporary accommodation by 2010. 

4.13 The Housing Minister expects the RHS to move towards a longer-term planning horizon that will 

ultimately bring it and the East of England Plan together. This will mean a change for housing. The 

RHS will need to adopt a ‘bi-focal‘ vision, incorporating shorter-term strategic planning and actions 

within a longer-term framework of policy choices that will shape housing provision into the future. 

4.14 Housing policy development at the regional, sub-regional and local levels will therefore become 

more significant in underpinning the selected strategic options. 

4.15 The Government expects the RHS to cover: 

• all tenures of housing, including travellers’ sites 

• all options for addressing identified housing needs, including low-cost home ownership 

and equity release products and other accommodation needs including sites 

• sub-regional strategies related to sub-regional markets 

• an assessment of need shared with the regional planning framework 

• reducing homelessness and the use of temporary accommodation 

• adequate provision of housing, especially affordable housing, to address the growth agenda 

• analysis of the need for Key Worker housing to determine the additional support that the 

Single Regional Housing Pot will need to complement the Key Worker Living Programme 

and the First Time Buyers’ Initiative 

• analysis of the need for rural housing across market towns and villages, having regard to 

the PPG3 update ‘Planning for Communities in Rural Areas‘ 

• cross linkages with other funding streams and programmes, for example Supporting People 

• identification of the needs of Black and Minority Ethnic (BME) communities including Gypsy 

and Traveller Communities 

• demonstration of consultation with regional stakeholders. 

Housing Strategy for the East of England: 2005–2010 

13

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The regional strategic framework 

4.16 The Regional Housing Strategy must be seen in the broader context of, ‘Sustainable Futures: 

The IRS for the East of England’. 

4.17 The Vision for the IRS is to improve the quality of life for everyone who lives or works in the 

East of England by delivering the following High Level Outcomes: 

• an exceptional knowledge base and a dynamic economy in the Region 

• opportunities for everyone to contribute to, and benefit from, the Region’s economic 

dynamism 

• strong, inclusive, healthy and culturally rich communities 

• a high-quality and diverse natural and built environment 

• a more resource efficient region. 

4.18 In seeking to achieve the Vision and High Level Outcomes, Priorities for the East of England 

are to: 

• achieve high quality and sustainable solutions in Growth Areas and other parts of the 

Region facing growth and regeneration pressures 

• harness fully the Region’s strengths in science, research and development and in 

surrounding commercialisation processes 

• address the causes and implications of persistent deprivation and social exclusion – 

wherever it exists in the Region 

• effect a step-change in the efficiency of resource use and management of the Region’s 

distinctive natural and built environmental assets 

• capture the benefits from, and manage the impacts of, the Region’s international gateways 

and national transport corridors. 

4.19 The IRS recognises that there are potential areas of conflict between existing strategies that 

are complex, but need to be confronted if the over-arching vision is to be achieved. These 

have been identified as ‘critical issues‘ and the first relates to housing supply, growth and 

sustainability. It raises major challenges in relation to resource use and in ensuring that new 

and expanded communities really are sustainable; with appropriate jobs, transport, greenspace, 

cultural and social infrastructure. 

4.20 The IRS proposes a decision-making hierarchy to encourage regional agencies to make positive 

decisions to help achieve the IRS vision, along with a Regional Strategy Board to pursue delivery. 

This Board would provide an overall co-ordination and reference point for regional working and 

an interface with central government. 

4.21 In particular the RHS must deliver on the challenges posed by the draft East of England Plan (also 

known as the Regional Spatial Strategy). The Plan proposes a spatial policy framework 

for the East of England over the period 2001-2021.

Figure 2. Elements of the integrated regional strategy 


strategy 

strategy 

strategy 

regional 

regional 

regional 

Integrated 

Integrated 

Integrated 

Regional housing 

strategy (EERA) 

Regional social 

strategy (EERA) 

Regional 

environment strategy 

(EERA and EEEF) 

Regional 

sustainable 

development 

framework 

(EERA and 

SDRT) 

Regional health 

strategy (EERA 

in preparation) 

Regional economic 

strategy (EEDA) 

Framework 

for regional 

employment and 

skills action (EEDA) 

Regional spatial 

strategy (including 

regional waste 

management 

strategy and 

regional transport 

strategy 

Regional cultural 

strategy (RCC) 

4.22 Policy SS13 in the East of England Plan sets the overall target for the increase in the Region’s 

dwelling stock for that period. In practice, this is a key driver in planning the release of land 

for residential development. The proposals are draft at this stage and subject to testing at the 

Examination in Public. There may need to be a process of review following EIP (see section 9 on 

delivery). The East of England Plan aims to ensure that the spatial distribution of development 

provides the most sustainable pattern with respect to employment and infrastructure. 

4.23 In the East of England as a whole, strategic and operational land-use planning will need to be 

undertaken to ensure the provision of a total of 478,000 dwellings over the period 2001–2021. 

This indicates an annual average rate of completion of 23,900 net additional dwellings each year. 

The Plan and thus the RHS acknowledges that the delivery of this scale of housing is dependent 

upon the timely delivery of infrastructure and job growth, and that the housing completions, 

infrastructure delivery, job creation and other economic and demographic factors will require close 

monitoring. Clearly, these changes will need to be monitored throughout the implementation 

period; in the meantime, the average rate offers a useful guide. As a reference point, the average 

rate of addition to the Region’s stock in the first three years of the period i.e. between 2001–2004, 

was about 19,300 p.a. 

4.24 The East of England Plan breaks down the housing provision figures geographically into 

the district council and unitary authority areas of the Region. Due to the RHS’s adoption of 

sub-regions as the basis for housing investment and policies it is necessary to aggregate district 

figures to each sub-regional area. The map at Figure 3 shows a provisional sub-regional 

breakdown of the total new housing provision to 2021. 

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16 

4.25 In preparing the East of England Plan, EERA commissioned an Affordable Housing Study in 2003. 

Information from this study informed the development of Policy SS13 on overall housing provision. 

Within the average provision for 23,900 additional dwellings each year, social rented housing 

should, based on this study, account for around 7,200 dwellings to accommodate the anticipated 

net additional need within the growing population of the Region. This amounts to some 30% of 

overall provision. 

4.26 A second Affordable Housing Study (Phase 2 – 2004) has calculated that a further 1,320 units per 

year over 10 years will be needed to deal with the backlog of unmet need for social housing which 

is currently manifest in homelessness statistics and households trapped in overcrowding 

or otherwise unacceptable conditions. This is a rolling target that is difficult to identify precisely, 

and will require ongoing monitoring. 

4.27 The Phase 2 report also attempted to quantify the volume of the Region’s ‘intermediate market‘ 

i.e. those households which would not qualify for social rented provision, but could not afford 

access to housing through the open market. The need for affordable housing provision for this 

group was estimated to be a further 2,400 dwellings per annum. A key element of this is the 

provision of 760 dwellings per year for Key Workers as defined under the Government’s Key 

Worker Living initiative; many of the others can be assumed to represent other categories of 

employee recognisable as Key Workers for local communities and economies within the Region. 

4.28 Adding all these elements of future need for affordable housing results in a volume of roughly 

11,000 13 dwellings per year. As a consequence, the East of England Plan sets an aspirational target 

that affordable housing should exceed 40% of the new housing provision in the period up to 

2015, to provide dwellings for social renting, Key Workers, and other intermediate needs, and to 

reduce the backlog of currently unmet need. 

4.29 Local targets should support the achievement of the regional targets set out in the East of 

England Plan. 

4.30 By seeking to deliver housing in line with the draft East of England Plan, the RHS will also be 

supporting the RES, in particular Goal 4, Priority One that a suitable supply of homes is key to 

a successful economy. Key actions within the RES include: 

• ensure sufficient high quality homes are developed in the right locations to support 

economic activity and regeneration 

• promote public and private partnerships and mechanisms to provide land for housing 

development 

• address affordable housing needs and the housing needs of migrant workers, refugees 

and other socially excluded groups through cross agency working 

• co-ordinate regional programmes to address skills gaps and shortages in the built 

environment professions, and develop skills to take advantage of the latest sustainable 

construction techniques 

• develop demonstrator projects that deliver high density, resource efficient affordable homes 

to maximise the use of brownfield land opportunities. 

13 7,200 social rented+2,400 intermediate+1,320 social rented backlog

Housing investment sub-regions 


4.31 The nine housing sub-regions in the East of England have been established to better reflect the 

different housing markets within the East of England. 

4.32 The map below shows the location of the sub-regions, and the local authority areas covered, as 

well as the planned new provision of housing to 2021 based on the draft East of England Plan. 

Figure 3. Housing investment sub-regions and planned distribution of new housing 

provision to 2021 




54500 


Cambridge 

Greater Norwich 

Haven Gateway 

21200 

London Commuter Belt 

Peterborough 

Rural East Anglian 

Thames Gateway 

Yarmouth and Lowestoft 

82500 

123500 

32600 

43800 

Sources: Regional Housing Forum. 

Borders are Crown copyright 2003. 

Crown copyright material is reproduced 

by the permission of the Controller of HMSO. 

HMSO click-use licence C02W0003601. 

74100 

34000 

11800 

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Each of these sub-regions has a sub-regional strategy and investment plan. These have been 

developed in tandem with the revised RHS. 

4.34 Web sites where sub-regional strategies can be found are: 

• Bedfordshire – http://www.bedford.gov.uk/bedford/housing/regional.htm 

• Cambridge – 

http://www.cambridge.gov.uk/ccm/navigation/housing/housing-strategy-research/ 

• Greater Norwich – 

http://www.norwich.gov.uk/webapps/atoz/service_page.asp?id=1395 

• Haven Gateway – www.ipswich.gov.uk 

• London Commuter Belt – 

http://www.north-herts.gov.uk/uploads/documents/lcb-strategy-final111004.pdf 

• Peterborough – http://www.peterborough.gov.uk/page-163 

• Rural East Anglia – 

http://www.breckland.gov.uk/nwia/az.nsf/BreCategories/55AED5D25D40D7E680256 

6390043B234?OpenDocument&Site=Bre&Display=Bre 

• Thames Gateway South Essex – www.tgessex.co.uk/downloads.php 

• Yarmouth and Waveney – www.great-yarmouth.gov.uk/housing/housing_policy.htm 

Rising to the challenge: managing conflict and delivery 

4.35 The RHS faces a number of potentially conflicting issues in delivering the strategy. The RHS 

must recognise these tensions and seek to deal with them. However, some either relate to the 

Region’s ‘crucial issues‘ or have other implications that are beyond the RHS to resolve alone. 

A higher level approach must be used in these cases, for example through the regional decisionmaking 

hierarchy (see above). 

4.36 If these tensions remain unresolved they pose ‘strategic‘ risks to delivery, which could undermine 

the strategy. The RHS proposes three mechanisms to deal with these tensions: 

• clearly identify the strategic risks emerging from tensions and ensure that they remain on 

higher level agendas – e.g. the IRS or national policy agendas 

• propose policy frameworks that take tensions and risks into account 

• translate the higher level ‘strategic risks‘ into those ‘operational risks‘ that the RHS can 

manage through its action planning process 

The tensions from which strategic risks emerge are described in the following sections. 

Sustainable planned new housing supply 

4.37 Tensions stem from the need to provide 478,000 new homes in sustainable locations up to 2021. 

They include the need to: 

• recognise concerns about the level of new development 

• recognise that delivery is dependent upon the operation of the housing market

• recognise the need to bring forward land for development in sustainable locations 

• ensure homes are located in the right place to meet the needs identified in the RES 

• provide infrastructure to support development 

• ensure a minimum of no net loss of environmental assets 

4.38 Risks to RHS are non-delivery of new housing supply and/or opportunity costs of environmental 

enhancement. 

New affordable housing supply 

4.39 Tensions stem from the need to provide 11,000 affordable homes each year. They include: 

• uncertainty over public investment in affordable housing 

• dependence on market housing to deliver through section 106 agreements 

• other priorities for section 106 agreements 

• opportunities to develop not in line with planned provision. 

4.40 Risks to RHS are the lack of long-term certainty to provide year on year increases in the areas 

where affordable provision is most needed, and that the ‘affordable‘ housing provided does not 

meet identified needs. 

Existing housing stock 

4.41 Tensions stem from the need to ensure that existing housing stock remains in good condition but: 

• most housing in the Region is in the private sector, the majority owner occupied. The RHS 

can have limited influence over individual decisions 

• to deal with the Region’s housing stress the main call on public investment will be for new 

housing. 

4.42 Risks to RHS are that deterioration of housing stock over the long-term will impact on the housing 

market in general, which will in turn affect the ability to produce more new affordable housing. 

Furthermore, vulnerable people are most likely to suffer from poor quality stock. 

Regional ‘governance‘ 

4.43 Tensions stem from : 

• uncertainty over roles for housing at the regional level until new arrangements can be 

confirmed 

• capacity of sub-regions to deliver and achieving ‘buy in‘ to delivery mechanisms 

Risk to the RHS is that the strategy cannot be developed and delivered. 

Conclusions 


4.44 Under each of the strategic objectives; more, sustainable housing provision, in high quality 

homes and environments and creating inclusive communities, the policy frameworks take 

these risks into account. Furthermore, section 9 dealing with implementation ensures that the 

strategic risks are translated into operational risks and actions to be managed. 

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5 More, sustainable housing provision 

Bringing about the step-change in delivery 

5.1 Probably the key challenge for the RHS is to provide an effective strategic approach to ensuring 

that there is sufficient housing of the right types, in the right places and at the right time, within 

the new stock, and that it is affordable for consumers. Faced with a continuing demand from the 

growing number of households in the Region arising from natural growth and in-migration, this 

is therefore clearly a challenge of supply. Left to themselves, commercial mechanisms would 

deliver new housing to meet market demand. The challenge to the public sector is to be able to 

intervene in the market to ensure it can help create further housing to meet all the additional 

needs which cannot be satisfied by the market i.e. what is termed ‘affordable housing‘. This needs 

to be done, moreover, without significant negative affects on the market housing position. Failure 

to achieve this will have potentially serious consequences and represents a significant risk (see 

section 9) that must be addressed in the monitoring and review of the RHS. 

5.2 As indicated in the previous chapter, it is currently estimated that regional production of affordable 

housing will be needed at an average annual level of some 11,000 dwellings over 

the period of the RHS: 

• 7,200 new households needing social rented housing 

• an additional 1,320 social rented homes to deal with the existing backlog, plus 

• 2,400 homes for low-cost home ownership or sub-market renting. 

5.3 This represents a significant step-change over current rates of production, and achieving this 

will clearly pose an enormous challenge to those involved in the housebuilding industry in the 

Region. The complexity of this challenge predetermines that there can be no single policy solution. 

The RHS therefore sets out to pursue a range of measures whose aggregate effect is aimed at 

achieving the objective. 

5.4 The measures proposed fall into four categories: 

• reducing the production costs of new affordable housing, without reducing quality 

• reducing the average need for subsidy to make decent housing affordable 

• creating more resources for subsidy to meet the need 

• raising the general quality of housing within a sustainable framework. 

5.5 Through these measures, the aim is to match the supply of affordable housing in the Region 

to the need. With all interventions in the market, it is recognised that they can only be achieved 

within overall financial arrangements that make business sense to the producers. 

Reducing production costs 

5.6 New affordable housing can be produced either by the purchase of existing properties or the 

construction of new housing. The cost of existing properties is essentially determined by market 

supply and demand, and therefore is not addressed directly by these measures.


5.7 The two key factors in determining procurement costs for new housing are land and 

construction. 

5.8 Land costs: land costs in the Region have been high and increasing for several years. Constraint 

on the supply of land which can be developed must play a role in this, having an effect on 

individual decisions by developers on how they bring houses onto the market. It is therefore 

imperative that the land-use planning system does not restrict supply more than 

necessary. 

5.9 Another factor encouraging higher land prices is the expectation of high sale prices for property 

and the related potential for profits in the development process, commonly known as ‘hope 

value‘. Whilst it is difficult to influence directly the expected sale prices there is some ability to 

influence the situation through the use of section 106 agreements in development control. 

Therefore, it is proposed that the framework of planning obligations on development 

across the Region is changed strategically to put downward pressure on hope value 

affecting prices in the land market. This must be carefully handled to ensure that, while aiming 

to constrain the prices paid for land, this does not inadvertently result in a reduction in the supply 

of land made available for development being itself constrained with the effect of maintaining 

higher prices. This is addressed in ‘Strategic planning’ Framework Figure 4 and Policy Framework 

Figure 6 below. 

5.10 Private landowners are sometimes willing to sell their land below market value where the 

affordable housing that can be produced is of direct benefit to their communities. Although this 

is most common in villages, it need not be assumed to be impossible elsewhere. Local 

authorities, parish councils and others should seek every opportunity to encourage 

local private landowners to provide suitable land for development below market value. 

This is particularly true where agricultural land or other brownfield sites are no longer viable for 

economic uses. 

5.11 Wherever land owned by public bodies in the Region is to be made available for the 

development of affordable housing, they should give serious consideration to 

transferring land at nil cost, or at most, existing use value. This policy is no longer 

compromised by the need for such organisations to achieve the highest market value, since the 

Government introduced the obligation of ‘best consideration‘. 

5.12 Public sector organisations, notably English Partnerships and EEDA, can finance the purchase and 

assembly of land for development, although this has only been used by EEDA for housing 

provision on a very small scale. Local authorities can use their own compulsory purchase powers 

for the same purpose. Wherever public bodies acquire land for the development of 

affordable housing, this should be made available at subsidised cost. 

5.13 Control through the planning system, mainly through section 106 agreements, can ensure that 

land being provided for affordable housing is a condition of development. 

5.14 Wherever the planning system requires land to be provided for affordable housing, this 

should be below market value. (See Policy Framework Figure 6 below.) 

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Strategic policy: planning frameworks 

[The Planning and Compulsory Purchase Act 2004 provides a framework for reform and 

improvement of the land-use planning system.] 

• The East of England Plan (RSS) will set targets for additional housing provision which 

will permit a balance between supply and need throughout the Region, and hence 

avoid exacerbating current affordability problems. 

• Local Development Documents must be prepared by local planning authorities with 

the same aim: ensuring the supply of sufficient land for development. 

• Both regional and local planning documents must establish clear expectations 

regarding the scale of the various types of affordable housing, related to current 

understanding of the relevant housing markets. 

• Local policies for the control of residential development must set out clear 

expectations regarding the use of section 106 agreements to secure affordable 

housing within sustainable communities. These must not only address the 

proportion of affordable housing in any housing scheme, but also both the 

mechanisms for producing it and the framework for using planning gain or other 

public subsidy. They should also address the consequences on the provision of 

private market housing. 

• The monitoring and review of regional and local plans must pay attention to the 

type of housing being produced e.g. volume and share of ‘affordable‘ housing 

when considering whether there need to be changes in strategy or policy. 

Figure 4. Strategic planning framework 

5.15 Local authorities should research and keep a register of land potentially available below market 

value to assist in long-term planning of affordable housing supply. 

5.16 Infrastructure costs: across the East of England, one of the common restrictions on housing 

development is the limited capacity of the infrastructure serving the future residents: transport 

networks, sewage treatment, water supply, primary schools etc. Controls often operate to ensure 

contributions from developers to the capital requirements for expanding capacity. The object of 

this policy is to reduce the burden on the public purse for funding the infrastructure. The level of 

contribution from developers can be related in the first instance to the additional infrastructure 

costs to meet the new development and its residents. However, these costs will sometimes appear 

disproportionately high where current infrastructure is operating near to maximum capacity, and 

major capital investment is needed to expand or replace it. 

5.17 If applied to affordable housing, this policy merely serves a) to increase the cost of grant subsidy 

required to provide the affordable housing, and/or b) reduces the volume of affordable housing by 

reducing the subsidy otherwise available for it from planning gain. In either case there is not only 

no net benefit for the public purse, but a possible loss through additional administrative costs. 

More pertinently, there would be less new affordable housing produced from the public capital 

available.


5.18 In order to keep production costs down, the development of affordable housing should 

normally be excluded from obligations of capital contribution to infrastructure 

development. This should not be taken to imply that infrastructure costs should automatically be 

passed on to commercial development of land for sale, since this itself might simply reduce the 

level of planning gain available for subsidising affordable housing. The aim of the RHS is to 

encourage decisions on the sharing of infrastructure costs which achieve appropriate balance 

between private and public contributions, and, moreover, avoid the inefficiency of one public 

source of funding subsidising another. 

5.19 Where land for affordable housing is provided at nil cost as part of a s106 agreement, 

this should normally be on ‘serviced‘ basis i.e. infrastructure costs are not indirectly 

included in the scheme costs for which public capital subsidy is paid. 

5.20 Construction costs: all developers of residential property will be seeking to reduce the costs of 

creating their products. Every reasonable opportunity should be taken to enable them to do this, 

consistent with the other objectives of the RHS. The RHS encourages all to consider the potential 

for this using Modern Methods of Construction. 

5.21 The Government is encouraging use of Modern Methods of Construction (MMC) to achieve a 

step-change in the quantity and quality of housing we need, a policy derived from ‘Rethinking 

Construction‘, the report of the Construction Task Force. The potential benefits include faster, 

more reliable construction processes, improved quality control with fewer housing defects, and 

reductions in energy use and waste. All of these point to a considerable potential to reduce 

construction costs, although evidence suggests that this applies only in associations’ programmes 

with the larger scale of operations referred to above. 

5.22 Because of the economic, social and environmental benefits of MMC, the Government has 

established initiatives to encourage its use, focusing on the social housing sector. In its 2004–06 

investment programme, the Housing Corporation required at least one quarter of new houses to 

be built using MMC. In the East of England 58% of the new housing schemes will be developed 

using some form of MMC. 

5.23 The Housing Corporation should continue to require housing associations to explore all 

possibilities to use MMC to increase the cost-effectiveness, quality and reliability of 

delivery of new affordable housing. 

5.24 Developers of market housing should be encouraged also to pursue this principle. 

5.25 This is an area that Inspire East, the Regional Centre of Excellence may be able to promote with 

regional partners. It may also be possible to link into the local authority work on public service 

excellence. New centres of procurement excellence have been established across the country, with 

Norfolk County Council hosting the centre for the East of England. 

5.26 Economies of scale: by creating a more robust framework for longer-term planning, the regional, 

sub-regional and local strategies for housing and land-use planning are facilitating housing 

development to be planned on a larger scale over a longer period. The resulting economies of 

scale should enable procurement costs to be reduced, while also creating opportunities for 

comprehensive development of new sustainable communities. 

5.27 Further economies of scale can be created by building up a ‘pipeline‘ of strategically planned 

development schemes, large or small, throughout the Region. This is possible if organisations are 

willing to work in long-term partnerships. 

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24 

5.28 Partnering: the principle of partnering is to increase cooperation between those organisations 

involved in producing the various elements of the process that results in housing products. This 

approach has been promoted for many years in the construction industry as a means of reducing 

costs through greater efficiency in operations, less waste, and reduced frictional costs at the points 

in the process where organisations interact. It should also enhance the quality of products and 

facilitate their harmonisation with needs and demands. These principles are set out in the ‘Egan 

Report.’ 

5.29 Partnering between builders and developers has been increasing in recent years, and the RHS 

proposes that the use of partnering should be extended throughout the development 

process wherever appropriate. In particular, greater partnership is urged between landowners, 

developers, local authorities and housing providers, to maximise the quality and cost-efficiency of 

new housing schemes, particularly the larger ones expected in the Region over the coming years. 

Local communities should be involved as far as appropriate. 

5.30 The partnering approach is particularly helpful when developing s106 Agreements where 

discussions involving all parties at an early stage will establish a shared understanding of what is 

to be delivered and how it will be funded. 

5.31 Partnering provides a framework for the kind of supply-chain management which has been 

common in manufacturing and retail industries for many years. 

5.32 Supply-Chain Management: during the last year the Housing Corporation has developed a 

‘supply chain management’ process aimed at identifying affordable housing schemes which could 

be delivered in the Region with or without grant resources. This has been an important 

information gathering tool and is showing that the majority of new schemes are opportunity led 

rather than reflecting a strategic process of geographical targeting. It is accepted that in the shortterm 

the Region will deliver what is currently in this supply chain of schemes but over time the 

RHS wishes to direct resources to promote development in the growth areas reflecting the East of 

England Plan and the Government’s Sustainable Communities agenda. 

5.33 There is always a strong likelihood of new sites for residential development to be generated by 

unforeseen circumstances, which means that they enter the supply-chain of potential sites at short 

notice, effectively in an unplanned, unmanaged process. The most common occurrence is for 

brownfield sites to become available when industrial or other existing uses cease. Usually referred 

to as ‘windfall sites‘, these can offer considerable potential for the creation of additional affordable 

housing, and they must be assessed for public investment within the normal framework applying 

to the rest of the supply chain. Although this might imply considerable time pressure, all the 

strategic policies recommended here for the use of s106 negotiations and other interventions in 

the development process should apply equally to windfall sites as to others in the supply chain. 

5.34 The Pipeline Project: the Pipeline Project was commissioned by the Regional Housing Board to 

report on what is required in the East of England to overcome barriers to the development of 

sufficient affordable housing. The RHS has adopted the report’s recommendations that 

improvements ought to come from: 

• a properly co-ordinated local approach – possibly at sub-regional level – that includes a clear 

vision of what is required, robust assessment of needs, an estimate of the funding likely to 

be available from all sources and a realistic approach to bridging the gap between what is 

required and what can be provided. Priority setting is vital.

• Section 106 discussions held at an early stage involving all parties (including developers, 

all relevant staff from County, District or Unitary Councils and from housing associations) 

and informed by an appreciation of the local development economics issues so that an 

appropriate mix of affordable housing tenures can be agreed. There are now several 

financial modelling tools available for this purpose, and these need to be assessed with 

a view to adoption to provide the efficiency and continuity of using a common tool across 

the Region. Development of an appropriate regional tool should be considered if none of 

the existing ones provide sufficient support in this approach. 

• longer-term certainty at regional and national level about the amount of grant available to 

support affordable housing, priorities for spending it and the likely recipients. 

• identification of ‘regional experts‘ – or exemplars of best practice – used to provide advice 

and assistance, and perhaps brokered by Inspire East, the Regional Centre of Excellence. 

5.35 There are steps being taken which are aimed at addressing some of the points made here. The 

recent introduction of local delivery vehicles (for example Cambridgeshire Horizons) is an attempt 

to get the co-ordinated approach to the development of housing and related infrastructure. Also, 

the Housing Corporation has signalled that it intends to have longer term partnering 

arrangements with some housing associations that should enable more certainty, encourage 

longer term planning and lead to efficiencies in procurement. 

5.36 The RHDG will work with regional partners, including Inspire East to evaluate available 

financial modelling tools and develop ‘regional experts‘ to take s106 work forward, 

developing a regional tool if this is appropriate. 

5.37 The report concluded that the barriers and solutions are similar to those identified in previous 

studies, the issue being to find out why identified solutions are not being applied locally. Anecdotal 

evidence suggests that achieving the ‘properly co-ordinated local approach‘ advocated is 

frustrated by: 

• different political views from District, County and Unitary authorities who may not feel they 

share an identity of interest 

• lack of clarity about the respective functions of those bodies and other regional partners 

such as delivery vehicles 

• poor quality of needs assessment obtained over a sub-region rather than District by District 

• uncertainty about funding in the long-term 

• disagreement about priorities and who is involved in setting them. 


5.38 The RHDG will take forward the Action Plan emerging from the Pipeline Project, 

reporting progress back to EERA. 

5.39 Industry capacity to deliver: the Construction Industry Training Board (CITB) reports that the 

East of England has the largest construction output outside London and the South East, and that 

output needs to grow further. Combined with an ageing workforce and an inadequate supply of 

new entrants, the East of England construction industry is likely to experience increased skills 

shortages without further action. More specifically, both the output and costs of construction 

would be adversely affected if this problem cannot be properly addressed. 

25

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5.40 EEDA, the development industry, the CITB, UCATT, the Learning and Skills Councils, 

Sector Skills Council for Construction and Inspire East should jointly consider and 

determine a policy and action plan to deliver the skills that will be needed to increase 

the quantity and quality of homes in the East of England. 

5.41 Development partners should seek to develop local labour in construction arrangements 

wherever possible. 

What is Inspire East? 

Inspire East is a regional centre for excellence to promote and encourage 

proposals for change. 

‘A regional body to drive up skills and knowledge in the related fields of regeneration 

and neighbourhood renewal. The services they will provide will be available to a wide 

range of people from the public and private sector including built environment 

professionals, regeneration practitioners, people working for local/regional government 

and community representatives‘ – Steve Crocker ODPM 

Figure 5. Inspire East 

Reducing subsidy costs 

5.42 Tenure mix and cross-subsidy: The creation of sustainable communities will normally require 

housing of various tenures and types within developments of any significant size. In the lively 

housing markets of the East of England, housing built for sale or rent on the open market will 

normally generate considerable profit for developers. Affordable housing requires different levels 

of subsidy depending on the target household type, and some if developed by non-profit-making 

organisations, can even generate small surpluses. 

5.43 By choosing different mixes of affordable housing, the average subsidy required per unit can be 

raised or lowered. More significantly, part of the profits on some tenures can be used to crosssubsidise 

others, reducing average subsidy further. This would apply equally for cross-subsidy from 

retail or other forms of commercial land use development. 

5.44 When planning the tenure mix of sustainable residential communities, every opportunity 

should be taken to exploit the possibility of cross-subsidy between tenures and so reduce 

the overall average costs of subsidy. 

5.45 Partnering: partnering was referred to in the previous section as a means of minimising housing 

construction costs. This principle can also be used, within given costs, to reduce the overall 

requirement for capital grant subsidy. 

5.46 A specific example is the piloting of longer-term partnering between the Housing Corporation and 

a select number of housing associations chosen for this purpose. This focuses funding on the 

housing associations which the Corporation considers to be the best developers in terms of the 

quality and reliability of their product delivery, but also, critically, in their ability to work 

constructively in a longer-term partnership. A review of the Investment Partner Programme is

currently underway and due to report in May 2005. The intention is to improve the capacity of the 

sector to deliver greater added development value, increase supply and secure greater long-term 

efficiencies. Partner housing associations should have more confidence to acquire sites, negotiate 

better prices, borrow private finance at lower rates and plan their operations to a greater capacity 

over a longer period. 

5.47 Providing greater certainty of programme size and duration will enable housing associations 

themselves to set up more effective partnering arrangement with contractors and others within 

the construction supply chain. This allows the opportunity of realising the potential gains possible 

through the use of MMC. 

Increasing resources for subsidy 


5.48 The East of England’s approach to affordable housing provision is that it should be part of the 

general process for residential development, with affordable housing integrated into mixed, 

sustainable developments. The resources available for public investment in the Region are also 

expected to be significantly lower than the overall volume required to ensure the necessary supply 

of affordable housing. It follows, therefore, that capital subsidy provided directly from the public 

purse should be used only to supplement subsidy from planning gain where the latter is 

insufficient, or in circumstances where planning gain is not available. 

5.49 Private subsidy derived from the development process in the form of planning gain 

should be the primary source for subsidising the affordable housing in any development, 

with public subsidy normally only used to supplement this where necessary to ensure 

financial viability. This will be reviewed should further Government guidance become 

available. 

5.50 Planning gain: national policy on planning obligations is currently under review. This may result 

in significant changes in the mechanisms for handling planning gain within the development 

process and therefore it is important strategically to establish a framework of policies which are 

designed to make best use of this resource as a source of subsidy for affordable housing. This is 

set out in Policy Framework Figure 6 below. It will need to be reviewed when national policy 

changes have been determined. 

5.51 Single Regional Housing Pot: the volume of resources provided to the Region through the 

Single Regional Housing Pot (SRHP) is at the discretion of Government. Regional action consists of 

ensuring that the Government is fully appraised of both the need for investment e.g. to fulfil the 

objectives of the designated Growth Areas, and also the capacity in the Region to deliver 

effectively and efficiently. 

5.52 The future scale of affordable housing provision in the Region predetermines that a large 

proportion will have to be created without the benefit of capital grants from the SRHP. SRHP 

funding will therefore normally be used as ‘gap funding‘ i.e. to provide a top-up where 

all other possible sources of financial support have been exhausted in setting up a 

strategically selected project. 

5.53 Housing Associations: housing associations are able to recycle capital grant from public 

investment which is released from their sale of equity in existing subsidised housing. Unless 

directed otherwise, housing associations should be encouraged to use all recycled grant 

from the sale of property in the East of England for reinvestment, directed to priorities 

identified in the relevant sub-regional strategies. 

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28 

5.54 Local Authorities: local authorities can supplement SRHP investment with capital funding of their 

own. Although such funding will typically be aimed at their own local rather than strategic needs 

e.g. funding for Key worker schemes accommodating their own employees, the effect is to reduce 

the demands on the SRHP for subsidising the overall need for affordable housing. When 

investing their own capital resources in new affordable housing, local authorities are 

expected to follow the strategic objectives and priorities they have agreed in the 

respective sub-regional strategy. 

5.55 Other public bodies: capital subsidy from public programmes which are not housing specific can 

sometimes be used where the provision of additional affordable housing also meets the objectives 

of the respective programmes e.g. regeneration schemes. 

5.56 Voluntary organisations: voluntary sector funding of affordable housing is a practicable 

proposition where this fits the charitable purposes being pursued by the organisation in question. 

This is most likely to apply where the needs being addressed require care and support 

5.57 Private sector bodies: Arrangements should be created through which private sector 

employers in areas of housing stress in the Region could ensure affordable housing for 

their key employees through the provision of capital subsidy for their housing. This would 

be attractive where other means of dealing with recruitment and retention problems are more 

expensive. Revenue funding might be a further alternative in this area. 

Figure 6. Policy Framework: section 106 agreements 

Policy Framework: section 106 agreements 

Affordable housing is typically one of a list of potential requirements under planning 

obligations that need to be considered for any proposed development. These policies 

require housing to be considered alongside transport improvements, health and 

education facilities, conservation and any other competing use for planning gain, 

not that housing should be given precedence over them. This puts a premium on local 

policies and other arrangements being in place to direct and manage the process for 

using section 106 agreements. 

• planning authorities must establish policies and/or other mechanisms for setting 

targets for the volume or proportion of affordable housing on development sites to 

be covered by s106 agreements. These should support the achievement of regional 

targets set out in the East of England Plan. Planning authorities should also consider 

securing contributions to agreed masterplans or area wide strategies where 

appropriate. 

• clearly, the use of planning gain for affordable housing must be balanced with 

the competing needs for it to be used to fund other infrastructure and amenities. 

However, the RHS requires that subsidy from the SRHP is provided for affordable 

housing only where it is demonstrably needed to supplement a reasonable use of 

planning gain. 

• given the limited availability of other capital subsidy for affordable housing, local 

authorities need to recognise that there is generally no guarantee of subsidy for the 

affordable housing required other than what they can secure through a section 106 

agreement. In considering the balance of uses for planning gain, it is therefore 

advisable for local authorities to take as the starting point a need for all subsidy 

for affordable housing to come from planning gain. If this position needs to be 

modified as a consequence of their negotiations with developers, the prospect of 

a shortfall of subsidy from this source then sets the parameters for seeking capital 

subsidy from elsewhere to make up the gap.

Sustainable provision 


• significant variations in land price, construction costs, housing needs and property 

sale prices across the Region and through time mean that there is no ‘one-size-fitsall‘ 

that would permit a simple policy for setting subsidy levels from planning gain. 

What is a reasonable contribution to affordable housing will differ in each scheme, 

and a robust use of s106 policy will need an understanding of the way the housing 

market operates locally and of site economics. 

• no ‘standard‘ levels of grant funding should be assumed to apply to investment 

from the SRHP for any particular scheme, with or without the benefit of planning 

gain subsidy. By implication, this requires the use of planning gain through s106 to 

be established before the final decision on levels of public grant subsidy (not vice 

versa, as was often the case in the past). Since investment from the SRHP will 

normally be used in schemes which have been planned as part of the evolving 

pipeline, there is every opportunity to consider and negotiate the possible use of 

grant in any particular scheme well in advance of the final commitment of 

investment, and before the s106 agreement is finalised. Except in the rare case 

where the mixes of tenures and building sizes and types is rigidly predetermined, 

adjustments can usually be made during the initial planning and design of a scheme 

to modify the overall amount of capital subsidy required due to the differential 

economics of different housing/tenure types. An ‘open-book‘ approach among 

the partners to a s106 agreement is likely to aid efforts to achieve the best balance 

among the competing demands on a scheme. 

• local planning authorities should monitor the impact of s106 agreements on the 

production of new private market housing. 

5.58 The recently developed IRS draws on the existing regional strategies to provide a joined-up 

statement of regional priorities. The Vision for the IRS is simple, to improve the quality of life 

for everyone who lives or works in the East of England. 

5.59 The IRS identifies potential areas of conflict between existing strategies. The imperative to deliver 

a step-change in housing supply and for everyone to have the chance of a decent home certainly 

raises major challenges. The IRS proposes a decision-making hierarchy that can be used to help 

deal with some of the potential conflicts. 

5.60 The IRS embraces the objectives of the Regional Sustainable Development Framework, but 

recognises that this document is in need of some updating and expansion. The IRS also takes into 

account the national debate on sustainable development, and the publication of the UK 

sustainable development strategy, ‘Securing the Future‘ in March 2005. This is the latest part of 

the national policy framework that includes the 2003 ‘Energy White Paper’ and the 2004 ‘Energy 

Efficiency Action Plan’. 

5.61 Investing in schemes to meet ‘growth‘ will obviously help to deliver the proposed level of growth 

to 2021. However, delivering this level of growth will have an impact on the environment. Within 

the IRS framework the RHS should aspire to achieving growth with a minimum of no net loss 

of environmental assets. The emphasis must be on the density, design and quality of schemes to 

minimise environmental impact. 

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5.62 EEDA has a key role to play in supporting the delivery of high quality housing and sustainable 

communities through the development of its Housing Prospectus. Particular outputs will include 

support for a number of housing demonstrator projects, master planning exercises, brownfield 

land action plans, capacity building for local delivery vehicles and the Regional Centre for 

Excellence, ‘Inspire East’. 

5.63 The ‘EcoHomes‘ 14 standard is an environmental assessment method and the Housing Corporation 

has set targets for housing associations in new developments. For current allocations none 

have yet achieved the EcoHomes ‘excellent‘ standard, but 8% are ‘very good‘, 67% ‘good‘ 

and 24% ‘pass‘. 

5.64 The term ‘affordability‘ of housing should ultimately encompass the cost in use of a property as 

well as the price of purchase or rent, striving for housing that is efficient and cost effective to 

maintain and service. 

5.65 The Government’s code for sustainable buildings is concerned with, ‘establishing excellence for 

energy and water efficiency waste and the use of materials that goes beyond the minimum 

standards in building regulations. Where we (Government) are engaged in public private 

partnership to develop sites we can ensure that these high standards are applied to all 

new homes.‘ 

5.66 The Housing Corporation should continue its progress with housing associations to 

achieve EcoHomes standards. 

5.67 Regional housing providers should work through Inspire East and the Sustainable 

Construction Forum, to develop and promote a regional perspective on the ‘Code for 

Sustainable Buildings‘. As the Region’s Planning and Housing Body, EERA should take a 

co-ordinating role that is linked to the responsibility for the Annual Monitoring Report. 

14 See the reference in the context document to quality and design.

6 High quality homes and environments 

Quality deficit 

6.1 The Sustainable Communities Plan emphasised that the step-change was not only about the 

delivery of more homes, but also about creating communities and attractive places to live and 

work. High quality design is vital. Planning Policy Guidance Note 3 ‘Designing for Quality‘ contains 

guidance for local planning authorities ‘to promote safe, attractive and energy efficient housing 

within the wider contexts of neighbourhoods, townscapes and landscapes‘. 

6.2 The recent Housing Audit 15 carried out across London, the South East and East of England found 

that compared with the overall area studied, results in the East of England were not encouraging. 

‘Fewer schemes achieved a ‘very good‘ score in the East of England region, with a higher 

proportion achieving a ‘poor‘ score. But where there were ‘very good‘ schemes, it was their 

simplicity of design in terms of imaginative handling of parking and access, and their overall 

architectural quality which appeared to be distinguishing factors; the Essex Design Guide clearly 

continues to have a strong influence on housing layout and approaches to highway design‘. 

6.3 The Government has funded the Commission for Architecture and the Built Environment (CABE) 

to provide greater support to delivering high quality housing. In the East of England CABE has 

established a post jointly with EEDA to work on housing and design across the Region. A number 

of regional initiatives are under way, including an Urban Place Supplement to the influential Essex 

Design Guide. 

6.4 EEDA has encouraged housing demonstration projects for example to encourage zero energy 

developments and deliver high density on brownfield sites. There is a need to monitor the design 

and master planning work being carried out so that lessons are learnt and disseminated quickly 

6.5 The RHF (soon to become the RHDG) will address the ‘design deficit‘ within its current 

structure. 

6.6 In order to encourage better design and quality across the Region the RHDG will engage 

with Inspire East and CABE to support the development of Quality Criteria. 

Quantity, quality and cost 

6.7 Ideally the Region would provide enough housing to meet all needs at the highest level of quality. 

Clearly that is not possible, the limiting factor is cost. 

6.8 In a region charged with making a significant step-change in provision there is a risk that quality 

may be compromised in order to deliver the numbers required. Similarly, there is a risk that if a 

large volume of poor quality housing is provided, it may cost more in the long run if homes 

become unfit and areas run down. 

6.9 Alternatively, if we do not provide housing at the planned rate we risk even greater problems 

associated with housing stress. 

15 ‘Housing Audit: Assessing the design quality of new homes‘ CABE October 2004. 


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6.10 Quality applies as much to existing housing as new provision. Where dwellings are being improved 

or renovated the use of quality products and design are essential. 

6.11 In the public sector quality is managed by providers having to adhere to clearly set out standards 

and guidelines linked to the provision of subsidy. For all new development with subsidy, housing 

associations, for example, must adhere to Scheme Development Standards (SDS). The Housing 

Corporation will, in future, be employing a ‘Value for Money’ tool to assess quality, cost and 

performance. The need for and granting of public subsidy can therefore be viewed as a ‘control 

mechanism‘. 

6.12 Where local authorities are putting in their own resources, schemes should adhere to the same 

standards as if other public subsidy were being made available. 

6.13 Where housing schemes are developed without subsidy, control is more difficult to apply. Higher 

levels of quality are difficult to achieve if they lead to increased costs, particularly if the consumer 

is reluctant to pay more. Providers are encouraged to apply quality standards, for example, as a 

condition of land supply. 

6.14 Improved methods of procurement and partnering can support aspirations to achieve year on year 

improvements in quality. 

6.15 The Housing Corporation will promote improved methods of procurement to achieve higher 

output balanced against quality of product. 

6.16 Local authority enablers and planners should ensure that quality standards are always 

addressed during discussions with developers. Standards should be considered as an 

integral part of the economics of scheme/site development, where higher standards are 

achieved by lowering the land price and/or improving efficiency, productivity and design. 

6.17 The Regional Annual Monitoring Report should incorporate quality as well as quantity 

measures, and investigate the use of appropriate indicators. 

Existing housing – achieving the ‘Decent Homes 

Standard‘ 

6.18 The existing housing stock is a significant asset at 2.3 million homes. Stock condition is therefore 

a vital issue for the RHS to address. 

6.19 Properties may be unsuitable/unavailable to live in for many different reasons, the main ones being: 

• they are in need of repair to meet ‘decency‘ standards 

• they are in need of repair or renovation to make them fit for modern day use, to better suit 

the needs of their occupiers or to change their use if ‘redundant‘ 

• they are in unattractive neighbourhoods 

• they are left empty by their owners.


6.20 Significantly, the Government requires homes to be brought up to the ‘Decent Homes Standard‘, 

with different targets for the public and private sectors. All public sector housing must reach the 

Decent Homes Standard by 2010. 

6.21 Within the public sector, housing associations are expected to attain the standard through their 

business planning processes, ensuring that needs are assessed and the necessary funds are made 

available through their own financial management. 

6.22 Local authorities are currently conducting ‘Options Appraisals‘ to identify whether they have the 

capacity to achieve the standard within their current arrangements. These options are considered 

in consultation with tenants and the outcome of the appraisals for all local housing authorities will 

be known by July 2005. Local authorities are also expected to have in their business plans, targets 

for both public and private sector decent homes. 

6.23 The Decent Homes target for private sector housing occupied by vulnerable households is to 

increase to 70% the number of such households living in decent housing by 2010. It is important 

to recognise that vulnerable households may need advice and support – the role of Home 

Improvement Agencies is significant here. 

6.24 Poor stock condition tends to be a problem around the ‘fringes‘ of the Region, particularly in some 

the coastal areas. Other areas where deteriorating condition is likely to be a particular problem are 

in the older ‘new town‘ areas such as Basildon, Harlow, Stevenage, and to some extent 

Peterborough. People may have bought the Commission for New Town stock and they, like their 

homes, are becoming increasingly vulnerable. This presents a particular problem as high numbers 

of homes reach a vulnerable stage at the same time. Finally pockets of multiple deprivation such 

as in Luton and Great Yarmouth are likely to demonstrate problems of disrepair. 

6.25 Local authorities are encouraged to carry out surveys of both their own public sector stock and 

housing in the private sector, to provide detailed information on which to base proposals for 

improvement and renewal. Local authority powers have recently been extended by the Housing 

Act 2004. Among other requirements, it has introduced the responsibility for local housing 

authorities to assess the condition of stock using the ‘Housing Health and Safety Rating System’, 

which considers the risks that occupiers face in their homes. 

6.26 Knowing the scale of the problem is one thing, having the capacity to deal with it is another. The 

Regulatory Reform Order of 2002 has provided local housing authorities with additional powers 

to tackle these issues such as by providing loans and working in partnership with others. 

6.27 One of the difficulties for local authorities is accessing alternative funding for repairs through 

loans. ‘Equity release‘ is one model that has been used, but is not universally popular because of 

the requirement for a charge on the property and the tendency to release large sums of money 

when the need might actually be for small sums. 

6.28 There are a number of other models that could be used, for example Community Investment Trusts 

or working with housing associations in their capacity as ‘social investment agents‘. 

6.29 EEDA sponsored the Suffolk Regeneration Trust, which was established in 2004. Among its aims 

is to work with partners to tackle debt and financial exclusion. 

6.30 Members of the National Housing Federation who have signed up to ‘iN business for 

neighbourhoods’ may also be active players. 

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6.31 The EERA/RHB must ensure that it supports local authorities to meet national Decent 

Homes Targets. Where a specific level of DH funding from the RHB has been assumed in 

signed off Options Appraisals this should be honoured and not undermined by funding 

below these levels. However, funding for DH should not exceed historical levels. 

6.32 The EERA/RHB must continue to provide funds for local authorities to improve the 

condition of stock in the private sector. In addition considering ‘innovation‘ funding to 

encourage new initiatives will underpin good practice. 

6.33 Regional partners should work with EEDA to evaluate the Suffolk Regeneration Trust 

and whether the approach could be replicated elsewhere in the Region. 

6.34 Regional partners should evaluate the range of private sector initiatives such as loans 

schemes to evaluate the most effective products and disseminate information and good 

practice accordingly. 

6.35 Bringing together these last two points; there is a role to engage at regional level with 

financial service providers to seek solutions to the stock condition issues in the private 

sector, where the majority of stock is owner occupied. RHDG will consider an appropriate 

lead agency as part of the action planning process. 

6.36 The RHDG will work with the National Housing Federation to promote a wider 

understanding of its members’ social investment capacity through ‘iN business for 

neighbourhoods’. 

Quality environments and regeneration 

6.37 Problems of condition and disrepair may not be limited to single dwellings, but extend into 

neighbourhoods and impact on quality of life. Local environments are important in shaping 

people’s attitudes and delivering opportunities for greater involvement and opportunity. The term 

‘Liveability‘ has been coined to encompass environmental quality, the use and management of 

public and open space, that can in turn be allied to a community safety agenda. 

6.38 A key part of creating homes within high quality environments is the use of ‘green infrastructure‘, 

‘the sub-regional network of protected sites, nature reserves, greenspaces and greenway 

linkages…it should operate at all spatial scales from urban centres through to open countryside‘. 16 

6.39 The Government has recognised the crucial role of green infrastructure in delivering sustainable 

communities. The plan for developing the Thames Gateway includes ‘Greening the Gateway‘ to 

create a ‘positive sense of place, provide environmental protection for local communities and 

enhance the quality of life for those who live and work there.‘ 

6.40 The Regional Social Strategy states that there should be ‘strategic networks of greenspace that 

benefit physical and mental well-being, particularly in areas of deprivation‘. 

16 ‘Biodiversity by design, a guide for sustainable communities‘ Town and Country Planning Association.

6.41 Policy SS11 in the East of England Plan identifies priority areas for regeneration ‘to secure 

sustainable economic, social and environmental development across the whole of the East of 

England.‘ It identifies areas with weak economic performance and high deprivation with examples. 

Priority areas are concentrated on some of the larger urban areas and on the more peripheral 

north and east of the Region. Local Development Documents will set out the local policies to deal 

with these problems. 

6.42 EEDA is supporting renewal projects via a ‘master-planning‘ process in Great Yarmouth, Lowestoft, 

Stevenage, Peterborough, King’s Lynn, Ipswich, Luton, Bedford, Harlow, Basildon, Chelmsford and 

Felixstowe. 

6.43 A final but very important point is that regeneration, particularly when it includes rehabilitation of 

existing dwellings or change of use, contributes significantly to the ‘previously developed land‘ 

target. 17 

6.44 The EERA/RHB must ensure that investment for regeneration can underpin Policy SS11 in 

the draft East of England Plan, and that housing investment can play its part alongside 

other funding for regeneration activities. 

6.45 RHS should ensure that ‘green space‘ has a place in plans to improve liveability of areas 

in developing recommendations on design and quality for existing neighbourhoods. 

Empty and unoccupied housing space 

6.46 Unoccupied household space includes second residences/ holiday accommodation as well as 

vacant household space. 

6.47 Second residences and holiday accommodation are understandably a feature of the Region’s 

coastal areas, with the heaviest concentration in North Norfolk. Whilst they may represent an 

under-use of the Region’s housing stock, they are also likely to be fundamental to the local 

economy via the tourist trade. 

6.48 Vacant household space includes ‘unoccupied household space‘ and relates to empty homes, but 

there is also an issue with ‘under-occupation‘. Very often, ‘under-occupation‘ will be a function of 

older people remaining in the family home when children have left. 

6.49 Poor quality environments are also associated with increased fear of crime. Empty and/or boarded 

up homes are a wasted resource, but can also be an ‘advertisement‘ for neighbourhood decline. 

Empty properties remaining empty for more than six months should be tackled as a priority to 

avoid declining neighbourhoods. 

6.50 Bringing empty homes back into use will not only provide homes but contribute, albeit in a small 

way, to the targets regarding previously developed land and buildings. 

6.51 The 2004 Housing Act has enabled local authorities to secure occupation of long-term empty 

private sector homes by applying to make ‘Empty Dwelling Management Orders’. The legislation 

operates alongside existing procedures by providing a back up to voluntary leasing arrangements 

and an alternative to enforcement action under other legislation. 

6.52 Local authorities should consider whether any additional income from council tax 

charges on empty homes can be recycled into bringing more empty homes into use. 

17 The Government has set a target of 60% of development to be on previously developed land. 


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6.53 The EERA/RHB will encourage the development of Empty Homes Charters and may 

consider innovative schemes to bring empty homes back into use. These should be linked 

to performance on Best Value Performance Indicator 64. 

Figure 7. Policy framework: quality homes and environments 

Policy framework: quality homes and environments 

Quality standards Quality Criteria developed by EEDA/CABE’s Quality Design 

Manager will be disseminated through the RHDG. 

Standards should be considered as an integral part of the 

economics of scheme/site development, where higher standards 

are achieved by lowering the land price and/or improving 

efficiency, productivity and design. 

Where local authorities are putting in their own resources, 

schemes should adhere to the same standards as if public subsidy 

were being made available. 

Public sector 

Decent Homes 

Local Authorities and housing associations should ensure that their 

work on options appraisals and asset management produce 

solutions that are appropriate to their area and client groups to 

meet the Decent Homes Standard, and implement them according 

to the timetable. 

Emphasis will be placed on supporting schemes which reduce 

the proportion of vulnerable people living in non-decent housing 

within the private sector, and areas where there is a clear 

appreciation of local conditions, both in terms of the built 

environment and social factors. Innovation and the use of interestfree 

loans and equity-release schemes will be encouraged. RHDG 

will work with EEDA to develop more manageable equity release 

programmes. 

The 2001 English House Condition Survey of Private Landlords 

highlights the rise in lettings by private individuals and the need 

for health and safety information from local authorities. There may 

be a co-ordinating role for the RHDG with ARLA or other private 

landlord representatives. 

Knowledge of private sector stock condition is essential. It is 

important to review the coverage of private sector stock condition 

surveys carried out by local authorities and share regional 

knowledge and good practice. Additionally, when it is acquired, 

GO-East will provide modelled data for the Region developed by 

ODPM as a targeting tool. 

Empty homes Local housing authorities should maintain an up-to-date register 

of empty homes, and develop an active approach to bringing 

empty homes back into use that includes working with housing 

associations with specialist knowledge, use of empty homes 

management orders and compulsory purchase, and developing 

empty homes charters to raise awareness of the issue. Any 

additional income from council tax changes on empty homes 

should be considered for recycling to bring more empty homes 

into use. Sub-regional/cross boundary working on empty homes 

should be encouraged where possible. 

Greenspace Housing providers should ensure that the use of greenspace is 

maximised in developments to improve ‘liveability‘.

Housing to improve health and well-being 


6.54 This should be seen within the context of the Region’s emerging health strategy, which aims to 

reduce health inequalities and encourage healthier lifestyle choices. It will focus on addressing the 

wider issues that affect the population’s health such as the environment, economy, housing and 

transport, as well as taking action to encourage and enable healthier lifestyle choices. It will seek 

to do this by raising awareness of health and promoting the notion that health is everyone’s 

concern, not just the role of the NHS. 

6.55 Poor housing has long been associated with a range of physical and mental health conditions. 

Improving people’s housing can reduce health inequality and make a significant contribution to 

their sense of health and well-being. Housing and housing services can be an effective tool in the 

prevention and control of disease and the promotion of good mental health. Furthermore there 

are significant links between ‘liveability‘ and health, both physical and mental. Children are 

disproportionately affected by the quality of the local environment since they are the ones who 

spend most time in parks and play areas. 

6.56 The Region should promote independence and housing choice for people in vulnerable groups. 

Housing developments and housing services can prevent or delay the need for costly intensive 

services and can improve quality of life and engagement with the community. Housing agencies 

make a contribution to preventing delayed transfers of care by ensuring people receive the 

equipment, repairs, adaptations and improvements their housing may need in a timely way. Home 

Improvement Agencies play a crucial role in supporting vulnerable people and enabling them to 

stay at home. Home Improvement Agencies are usually funded by local authorities and Supporting 

People budgets. 

6.57 Disabled Facilities Grants (DFGs) are ring-fenced mandatory grants with 60% coming from the 

Government and the remainder from local authorities. The 2004 Housing Act has extended DFGs 

to all those occupying caravans as their only or main residence. 

6.58 There is a universal difficulty across the Region with demand for DFGs outstripping the capacity to 

supply. At the time of writing, there is an ODPM review of DFGs (see section 8). A regional 

strategic policy framework will need to be developed following the outcome of the review. 

6.59 The design of homes is vital to enable older people to live independently. The Regional Social 

Strategy identifies both Lifetime Homes and Smart Homes as mechanisms to minimise the effects 

of social exclusion experienced by many older people. 

6.60 In addition to the increase in single person households over the past decade, there has also been 

a rise in the number of inter-generational households 18 . This underlines the need for increased 

flexibility within the housing stock in terms of design and dwelling size. 

6.61 Within society generally there is a greater prevalence of disability as more people survive an 

accident or illness they previously would have died from, and new patterns of need are emerging. 19 

6.62 There is a strong correlation between age and disability, it is estimated that nearly half the disabled 

population is over state pension age. 20 As the population ages, more people are likely to need 

housing that is accessible. 

18 Future East Partnership 

19 John Grooms Housing Association report ‘Where do you think you’re going?‘ 2003 

20 Disability Rights Commission ‘Creating Sustainable Communities‘ 

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6.63 There are three levels of accessibility; 

• moderately adapted housing, Lifetime Homes or ‘Part M‘ 21 housing 

• significantly adapted or mobility housing 

• fully wheelchair accessible housing 

6.64 Lifetime Homes Standards are also regarded as a benchmark for quality design. Further guidance 

on the Decent Homes Standard issued by the ODPM in February 2004 indicated that landlords 

might wish to consider Lifetime Homes Standards when carrying out work on properties. 22 . 

6.65 The Region’s study ‘The implications of an ageing population for the sustainable development of 

the East of England‘ recommended that further study should include a review of the available 

information concerning Lifetime Homes and an assessment of the potential of this approach in the 

East of England context for both new build and modernisation of the existing stock. 

6.66 The RHDG will work with partners to inform future guidance to housing providers on the 

assessment and provision of accessible homes in the East of England. This will include 

developing policy H2 in the draft East of England Plan. 

6.67 The RHDG will work with the Regional Public Health Group who are preparing a Regional 

Health Strategy on behalf of EERA to develop a better understanding of needs and the 

resources available to them. In addition they will improve joint working and planning 

between housing authorities, primary care trusts and strategic health authorities, 

particularly when boundary differences occur. 

6.68 The EERA/RHB will consider what additional support might be required for housing 

providers to enable people to remain in their own homes. This will need to take account 

of the ODPM review of DFGs. 

6.69 Housing providers should develop their strategic approach to adaptations through 

comprehensive Older People’s Strategies. Housing Associations should develop policies 

to ensure that they can meet requirements of their tenants for adaptations by 2015. 

6.70 RHDG, through its membership, will encourage the coverage of Home Improvement 

Agencies across the whole of the Region. 

Policy framework: housing, improving health and well-being 

The design and 

quality of new 

homes 

21 Reference to Building Regulations, part M 

New housing should be provided with the occupier’s current and 

long-term requirements in mind. Accessibility is a key design issue. 

Standards such as Lifetime Homes, or wheelchair accessible 

housing, should be considered for new housing provision with 

year on year increases where needs dictate this is appropriate. 

New housing should be accessible to key services by public 

transport, cycling and walking. 

The layout should incorporate good quality green and open spaces 

while creating a strong sense of place and community. Internal 

layout should include adequate soundproofing, for example as 

required by the Housing Corporation’s Scheme Development 

Standards. 

22 A Decent Home – the definition and guidance for implementation ODPM 2004


Policy framework – housing, improving health and well-being 

The design and 

quality of new 

homes 

Improving existing 

homes and 

environments 

Local people, and potential new residents should be consulted and 

involved in design issues. 

Materials should minimise risk to health both in construction and 

use. 

Joint working between housing, health and social care agencies is 

essential in the planning and development of new and emerging 

communities. 

Housing authorities should use the Housing Health and Safety 

Rating to target the most vulnerable properties and occupants and 

achieve the Decent Homes target. Improvements should extend 

beyond the home to the surrounding environment wherever 

possible, involving occupants in the process. 

Community safety The layout should design out crime using for example ‘Secured by 

Design‘ standards to foster community safety. 

RHDG will support the development of the accommodation 

pathway of the East of England Strategy for the Rehabilitation 

of Offenders. Reduction in re-offending can contribute towards 

secure and vibrant communities by reducing the incidence and 

fear of crime. 

Affordable warmth Housing authorities should continue to promote initiatives such 

as ‘warm front‘ to reduce the current regional incidence of fuel 

poverty from 6%. In particular they should achieve the target of 

raising the energy efficiency of residential housing stock by 20% 

by 2010 compared with 2000, and achieve affordable warmth 

programmes across the Region by 2006. 

Disabled Facilities 

Grants 

Disabled Facilities Grants should be seen in the wider context of 

National Service Framework for Older People, and the regional 

research on Active Ageing. Housing providers should review their 

accommodation provision as part of the development of Older 

People Strategies. Within this they should develop policies for 

more efficient use of adaptations arrangements by 2015. This 

will include needs research, the use of disabled property registers, 

home improvement agencies, relationships between housing and 

health professionals especially occupational therapists. 

As ODPM is reviewing Disabled Facilities Grants at the time of 

writing, RHDG and EERA/RHB will need to develop a strategic 

framework with partners following the conclusion of this work. 

Overcrowding Housing and health professionals should be aware of the 

consequences of overcrowding, and participate in joint activities 

to alleviate the situation. They should ensure that needs are taken 

into account for new provision, including evidence based need 

for larger accommodation for some BME groups. In particular 

a review is required of the incidence of overcrowding as a 

consequence of provisions in 2004 Housing Act. 

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Figure 8. Policy framework: housing, health and well-being 

Policy framework: housing, improving health and well-being 

Allocations and 

lettings 

Access to health 

care for homeless 

people 

Co-ordinating 

resources 

Health and social care agencies should join housing professionals 

in the development of any prioritisation system for Choice Based 

Lettings (CBL). It is recognised that vulnerable groups often find it 

difficult to access CBL systems and health professionals may be 

able to act as ‘advocates‘ on behalf of clients. 

Agencies should recognise that provision includes sites for Gypsy 

and Traveller communities as well as built housing. 

Wherever possible, the use of temporary accommodation and 

length of stay should be minimised, to achieve the target of 

halving the number of people in temporary accommodation by 

2010. Where temporary accommodation is used, ensure that it 

meets standards of safety, security and warmth. Ensure that 

homeless people have continued access to health services and 

support. 

This extends beyond financial resources for staffing. Joint training 

will enable better referral for specific services. Protocols for 

referrals and sharing information will support better prevention 

and intervention. 

NHS Trusts and their partners should systematically review their 

property and landholdings for opportunities to increase the 

provision of affordable housing.

7 Creating inclusive communities 

Assessing need 

7.1 Housing need is assessed by local housing authorities using Housing Needs Surveys that follow a 

standard methodology set out in Government guidance. More recent guidance considers both 

need and demand across housing market areas that may cross administrative boundaries. 

7.2 The Local Housing Assessment Guide 23 sets out how authorities (both urban and rural) can assess 

the housing demands of their communities. The guide accompanied the consultation paper 

‘Planning for mixed communities‘ as part of the Government’s objectives to meet the housing 

requirements of the whole community and creating sustainable communities that offer a wide 

range of housing and are socially inclusive. 

7.3 Some local housing authorities and housing associations have adopted sophisticated ‘data mining‘ 

techniques incorporating geographic modelling of variables to inform their strategic decisions. 

7.4 The needs of small minority and/or difficult to reach groups have so far been difficult to assess, 

and have usually been the subject of separate studies. A number of localised surveys have been 

carried out across the Region into the housing needs of BME communities. 

7.5 Some housing authorities and sub-regions have also commissioned work to explore the needs 

of Gypsy and Traveller communities locally, and subsequently developed a strategic response. 

7.6 The RHDG has a role in disseminating Good Practice from these studies. 

Inclusion and community cohesion 


7.7 Whilst gaps do exist, some research is available to inform policy development. This is a 

combination of national and regional work. 

7.8 Research shows that housing is a ‘major determinant of the shape of communities and has 

profound implications on the relationship between different races and cultures‘ 24 This is reflected 

in the way that communities are often physically segregated as well as the separation that can 

occur in terms of schools, social networks, languages, employment and voluntary organisations. 

In the context of the growth agenda, there are important lessons to be learned from the Region’s 

past experiences of planned new settlements, some of which are now characterised by decline and 

deprivation, and fragmented communities. 

7.9 Housing can play an active role in community development and capacity building. For example 

through members of the National Housing Federation’s ‘iN business for neighbourhoods 

programme’. 

23 Draft Practice Guidance from the Centre for Housing and Planning Research at the University of Cambridge for the ODPM 

issued March 2005 

24 Cantle Review, Home Office, 2001 cited in Offering Communities Real Choice, Lettings and Community Cohesion, CIH, 

2003). 

41

42 

7.10 Barriers to achieving more cohesive communities include: 

• social housing lettings policies 

• conditions, practices and attitudes affecting private sector housing 

• lack of suitable housing, specifically houses with four or more bedrooms suitable for large 

or extended families 

• lack of understanding and tolerance of cultural differences. 

7.11 Clearly, many of these issues cut across other policy areas such as alleviating homelessness and 

health and well-being. Nationally, BME households comprise 7% of all households but represent 

53% of those who are the most severely overcrowded 25 . Regionally homeless acceptances for BME 

groups are higher than would be expected from their incidence in the general population. 

7.12 While BME communities including asylum seekers and refugees, migrant workers and Gypsies and 

Travellers are distinct groups with many differences, there are also some common issues such as 

the lack of information on the diverse needs of these groups as well as the extent and nature of 

involvement in consultation exercises. 

7.13 EEDA commissioned a piece of research from the Ormiston Children and Families Trust in 2005 to 

undertake a literature review, postal survey of service providers and direct consultation with Gypsy 

and Traveller communities to inform recommendations for future research and improvements. 

7.14 According to Government figures, 25% of England’s Gypsy and Traveller communities living in 

caravans and trailers live in the East of England. Despite this the Region accommodates only 19% 

of the country’s local authority site provision. The lack of secure accommodation represents the 

biggest issue facing Gypsy and Traveller communities in the East of England. Currently, 34% of 

Gypsies and Travellers in the Region live on unauthorised sites and are therefore homeless. Yet, not 

all are seeking a settled lifestyle, which means their housing options are limited as traditional 

housing is the most common type of accommodation provided. 

7.15 The Housing Act 2004 requires local authorities to assess the need for Gypsy and Traveller sites in 

their areas and develop strategies to meet that need. Furthermore the new planning policy circular 

(Planning Circular 1/94) will require local authorities to allocate land for sites. The circular also 

states that the Regional Planning Body should have a firm understanding of accommodation needs 

across the Region to inform policies in the RHS and RSS. 

7.16 The ODPM five year strategy ‘Homes for All‘ also states that RHBs will have a role in allocating 

funding for sites from 2006. 

7.17 The RHDG will work with EERA, EEDA and the Government Office for the East of England 

to develop regional policies based on further research into the accommodation needs of 

Gypsy and Traveller communities. 

7.18 The EERA/ RHB’s investment plan will include proposals on recommendations for funding 

for Gypsy and Traveller sites. 

7.19 EEDA also commissioned research into the contribution of migrant workers into the Region’s 

economy. This work was incomplete at the time of writing. It was not aimed specifically at the 

accommodation needs of migrant workers. It does, however, contain some recommendations for 

accommodation in the emerging findings. 

25 CIH (2003) Offering Real Choice, Lettings and Community Cohesion, p.6

7.20 The report reveals that there are issues relating to inadequate and inappropriate accommodation 

for migrant workers in the Region, whilst many issues faced by migrant workers apply to all 

citizens there are some specific issues around orientation, culture and language that must be taken 

into account when considering accommodation for migrant workers. 

7.21 EEDA, as a member of the RHDG, will share findings of the research once complete and 

work with partners to develop good practice. 

7.22 EERA, together with regional partners, commissioned research into the accommodation needs of 

refugees. Refugees have rights to apply as homeless and to seek permanent social housing when 

they obtain permission to settle in the UK. Prior to this stage adult asylum seekers can seek 

accommodation and support arranged by the National Asylum Support Service (NASS) which, 

since 2000, has been dispersing new asylum seekers away from London and the South East to 

other regions, including the East of England. 

7.23 Discussions with NASS are on-going with a new round of NASS contracts for the provision of 

asylum seeker accommodation and support, to take effect from April 2006. 

7.24 The asylum seeker population in the Region is located in three types of areas: 

• the current active cluster areas (Ipswich, Norwich and Peterborough) 


• areas used by other local authorities to make out of area placements of interim case [i.e. 

pre-2000] asylum seekers (e.g. Great Yarmouth) and 

• areas where the local authority has supported interim case asylum seekers who have made 

direct applications to them (e.g. Southend-on-Sea, Thurrock, Luton, Watford, Bedford and, 

to a lesser extent, Clacton/Colchester). 

7.25 Homeless refugees will be assisted if they are considered to be in priority need, unintentionally 

homeless and if, in the case of those leaving NASS accommodation, the local authority to which 

they apply as homeless is the last area to which they were dispersed. However, if applying to 

another area, the local connection requirement may also be satisfied by means of employment or 

family association, for example. If not, the authority can, if it chooses, refer the application back 

to the local authority in the dispersal area. 

7.26 Since April 2002, local authorities in the Region have recorded cases where refugees were 

accepted as homeless due to loss of NASS accommodation. These show 31 acceptances in 

2003/04, half of which were in Bedford and Peterborough. Given the number of asylum seekers 

in the Region, this level of homelessness acceptances would appear to be low. This may reflect 

difficulties encountered by refugees in accessing homelessness services. 

7.27 The study also found minimal evidence of homeless refugees being allocated social housing 

properties; only three authorities reported making any such lettings in 2003/4 and just two 

nominations to housing associations. Although many authorities do not record all cases these 

figures suggest that little access to permanent social housing is being gained by homeless refugee 

households. 

7.28 The study found that single refugees, predominantly single men, are often not considered to be 

in priority need. As a consequence, they are surviving largely ‘under the radar’ relying on informal 

friendship networks and only sporadically coming into contact with service providers or 

information, advice and guidance agencies. 

7.29 The study provides a number of recommendations for the RHS. These include developing and 

sharing good practice. Others are aimed at targeting investment to areas accessible to refugees; 

43

44 

raising awareness of refugees as ‘vulnerable‘ within the decent homes target for private sector 

housing; making use of any established private sector accommodation that may no longer be 

required as part of the new NASS accommodation strategy; ensuring links with other strategies in 

terms of policy development. 

7.30 The RHDG will ensure that the good practice emerging from this report is disseminated 

among its membership. 

7.31 The EERA/RHB will ensure that it is aware of the housing needs of refugees in targeting 

investment for new housing and also for private sector housing, where refugees are a 

vulnerable group. This will particularly apply to dispersal areas and other areas with 

significant numbers of asylum seekers. 

7.32 Furthermore, the EERA/RHB will consider whether capital investment is required 

alongside revenue funding for specific schemes in conjunction with SPERG. 

7.33 Local housing authorities in areas where NASS private sector accommodation is no 

longer required should consider whether properties are of suitable standard and location 

to contribute to supply, for example to meet temporary accommodation needs. 

7.34 Furthermore the RHDG has established a task group to identify BME housing needs 

across the Region in order to underpin future investment. The aim is to identify existing 

studies, the gaps in our collective knowledge and commission research to develop the 

regional and sub-regional evidence base. 

7.35 This work should be linked to developing future services. For example SP want to fund 

culturally sensitive services and raise the understanding of the needs of certain groups. 

This may need direct communication with the BME communities. 

Figure 9. Policy framework: housing, inclusion and community cohesion 

Policy framework: housing, inclusion and community cohesion 

Planning for future 

inclusion 

The East of England Plan prioritises health, education and social 

inclusion needs, seeking early provision in SCP growth areas and 

Priority Areas for Regeneration, encouraging provision for land use 

needs in Local Development Frameworks. The East of England Plan 

will include a policy to support local authorities allocating land for 

sites for Gypsy and Traveller Communities. Further research will 

underpin policy development. 

The Regional Social Strategy identifies social disconnectedness, 

together with poverty and poor skills, as one of the complex mix 

of factors that contribute to social exclusion. Therefore, in creating 

new communities, as well as regenerating existing ones, it is vital 

that provision is made for the both the social and physical 

infrastructure. There is a need to identify and plan the community 

infrastructure and engagement mechanisms necessary to promote 

social inclusion, ensuring that future development in the Region 

creates healthy, vibrant and sustainable communities. 

Opportunities for social and cultural interaction can be fostered 

through the provision of multi-use community facilities integrated 

within housing developments as community infrastructure. 

Tackling deprivation and lack of skills among offenders and 

providing support and advice on settled housing, will contribute 

to more inclusive communities by reducing the incidence and fear 

of crime.


Policy framework: housing, inclusion and community cohesion 

Housing options Housing options research by Care and Repair England anticipates 

that as the number of BME older people grows ‘there will be a 

need for suitable and culturally appropriate housing options, 

including suitable supported housing and home adaptations, given 

the low income low equity home ownership among some BME 

groups‘. Local housing authorities should take account of the 

changing demographics and likely impact on services. 

Housing delivery The framework for delivery of housing will address the diverse 

needs of communities in the Region based on evidence of need. 

Housing investment in BME Schemes for 2006–08 will be targeted 

on Primary Areas where needs surveys already exist and plans are 

in place to support BME housing; and on secondary areas where 

CORE lettings/ census data identifies high populations. 

For 2008–10 investment will be determined by reference to 

regionally commissioned research. 

Delivery will (from 2006) include sites for Gypsy and Traveller 

communities. 

Housing delivery will also take into account the need for protocols, 

for example with the regional resettlement of offenders pathways 

approach, and the RHDG has a role to play in exchanging good 

practice. 

Capacity building Housing providers should consider the opportunities for 

community development and capacity building, as part of 

community involvement in developing schemes. 

Housing design There is clearly a need to take account of a community’s cultural 

expectations and norms when designing and planning new 

developments, e.g. the size and type of accommodation needed. 

In addition to design for the increase in the number of intergenerational 

households. 

Information and 

knowledge 

Building on existing examples of research and good practice in 

the Region (for example research into the needs of Gypsies and 

Travellers, refugees and migrant workers). The RHDG will promote 

diversity issues through the sub-regional agenda with the 

implementation of more sophisticated monitoring arrangements to 

identify the range of needs. RHDG will support the development 

of further research into the housing needs of migrant workers via 

the social strategy, and BME research into identified areas. 

45

46 

Providing mixed communities and widening choice 

7.36 Mixed income communities are the key to the long-term sustainability of the community and the 

local economy. Single tenure estates are vulnerable and unsustainable over the long-term. Physical 

regeneration alone does not work in the main. People whose economic situation improves usually 

move away to fulfil their housing aspirations unless there is local choice. Mixing tenure is the most 

direct way to achieve mixed income communities. A feature of housing in the East of England over 

recent years has been the ‘intermediate‘ housing market. There is an increasing number of people 

who cannot afford to buy yet whose incomes would make them ineligible for social 

rented housing. 

7.37 One in twenty people in the Region is employed in creative occupations, and many creative 

industries are small businesses often with people working from home. There is a shortage of 

accommodation with studio places. Achieving an increase in live/work spaces would support the 

development of the creative and knowledge-based economy. 26 

7.38 The impact of student demand on local housing markets has not been researched at regional level. 

National research 27 has shown that intensive demand for investment properties from student 

market landlords in some locations can have knock-on effects on the local housing market. It is 

also likely to change local demographic profiles within communities, in turn affecting 

sustainability. Given the potential for new or expanded further or higher education institutions in 

some parts of the Region, RHDG will work with the regional organisations for higher and further 

education (AUEE and ACER) to determine the potential effect of future new expansion and plan 

for provision within the framework of the RHS and RES. 

7.39 A range of ‘products‘ is required to meet these needs. Products for rent include social renting 

(from the local authority or housing association), private sector renting, buy-to-let renting and 

‘specialist‘ renting, for example student or nurses’ accommodation. Home ownership options 

include not only outright ownership but shared ownership, rent to mortgage, cash incentive 

schemes, home-buy and self-build. 

7.40 The East of England, as part of the Greater South-East, has experienced a Government focus on 

the needs of public sector employees who cannot afford to buy accommodation in the area where 

they work. The resulting recruitment and retention difficulties put public services at risk. The 

Government has responded with housing schemes aimed at a specific group known as ‘Key 

Workers’. The national Key Worker Living Programme is aimed at supporting recruitment and 

retention of staff working in health, education and community safety. 

7.41 The ODPM’s five year strategy ‘Homes for All‘ set within the broader context of the Sustainable 

Communities Plan, has widened the approach by establishing a low cost home ownership 

programme (HomeBuy) for First Time Buyers, aimed at people on lower incomes who cannot 

afford to buy without this support. Half of these new homes would be for Key Workers, with the 

remainder for priority groups established by the EERA/RHB. The programme will be run by English 

Partnerships and will start from 2006/07. 

7.42 ‘Homes for All‘ also extends low cost home ownership to social housing tenants who cannot 

afford the ‘Right to Buy’ or ‘Right to Acquire’ schemes, or are not eligible. Social landlords will 

participate in the scheme (Social HomeBuy) on a voluntary basis, but both local authorities and 

housing associations will be able to use the money raised to re-invest in housing and will have the 

right of first refusal on re-sale. 

26 ‘Space for Creativity‘ a report from Living East, EEDA, Arts Council England (East), and Screen East. 

27 Centre for Housing Policy at the University of York, published by Joseph Rowntree Foundation December 2000

7.43 The scheme is not about setting tenants up to fail by enticing them into unsustainable home 

ownership, it is seen as a means of introducing more mixed tenure on single tenure estates. 

7.44 Furthermore, choice-based lettings schemes (CBLs) are to be taken up by all local authorities by 

2010, so that tenants can choose where to live rather than having a home ‘allocated‘ to them. 

As CBL becomes more widely adopted it has implications for the RHS: 

• potential for movement regionally through sub-regional CBL development 


• potential for movement inter-regionally – probably most significantly with the South-East 

and London regions. 

7.45 Taking the pilot CBL programme as a whole, the development of support for vulnerable groups 

was an area of weakness. The dominant approach to supporting vulnerable and excluded groups 

was to use a representative organisation to provide support. Problems with this were that with a 

decentralised approach, not all vulnerable groups had a representative organisation to support 

them. There may be regional or sub-regional initiatives that could help. 

7.46 ’Supporting People’ (SP) has a role to play in developing CBL with vulnerable groups in mind. 

The release of interim accommodation should have a positive weighting. There should be a referral 

mechanism and it should link into CBLs and be tied up with support packages. There needs to be 

a SP perspective on how these schemes can be fair and equitable as SP is part of the solution. 

7.47 The ‘balance‘ of housing tenure types will be monitored through the Annual Monitoring 

Report. 

7.48 The RHDG will support the development of CBL through the sub-regions by providing 

information exchange on good practice and links to regional representative agencies for 

vulnerable groups. 

7.49 The RHDG will ensure that its membership encompasses private sector landlords to 

ensure that issues can be properly addressed. 

7.50 The RHDG will ensure that significant plans for expansion in higher education and the 

potential impact on the housing market are monitored through the relationship with 

EEDA. 

7.51 Those developing Local Development Frameworks should take the potential need for 

live/work space into account during consultations with local communities. 

Policy framework: providing mixed communities and widening 

choice 

Mixed tenure Mixed tenure is an important mechanism for creating mixed 

communities that in turn can help enhance social connectedness 

and networks. The EERA/RHB will use investment to promote 

mixed tenure on all new developments, pepper-potting low cost 

home-ownership and rented homes in new developments with no 

segregation in location or design, including reducing the visible 

differences between private and social housing. Similarly, the 

EERA/ RHB will support interventions to change the tenure mix on 

existing social housing developments where there is an imbalance 

of household types. 

47

48 

Figure 10. Policy framework: providing mixed communities and widening choice 


choice 

Mixed tenure RHDG and other regional partners will consider ‘Social HomeBuy’ 

in the context of delivering both more opportunity to social 

tenants, and changing the tenancy mix on single tenure estates. 

Key Worker housing Government policy on Key Workers has been driven by the need 

to address recruitment and retention difficulties amongst a 

particular group of workers in professions essential to the local 

community. As the areas with most significant problems are areas 

of high house prices, this has led to initiatives to address the 

problem through subsidised housing such as the ‘Starter Home 

Initiative’ and more recently ‘Key Worker Living’. 

Research commissioned by EERA in 2004 has used region-wide 

data on vacancy rates to estimate the total annual requirement 

to meet Key Worker housing needs. Based on these 

recommendations, the draft East of England Plan proposes that 

at least 760 net units per year should be provided for Key Worker 

housing. This is monitored through the regular KWL updates the 

Housing Corporation provides. 

These figures are based on an estimate of housing need amongst 

occupational groups that are included within the Government’s 

KWL criteria i.e. not the exact geographical distribution identified 

by Government, but same occupational groups i.e. health workers, 

teachers, police and certain categories of local government staff. 

Clearly, other public sector workers and staff contracted out from 

the public sector contribute to local economy and sustainable 

communities and may have similar problems accessing adequate 

housing. An assessment of this need will inform the new 

programme for First Time Buyers, whereby half the homes will 

be for Key Workers identified by the national definition, and 

the remainder to go to priority groups identified by RHBs. 

The sub-regions will identify the further localised need for Key 

Worker housing provision, using guidance from the Affordable 

Housing Study (phase 2). 

Private rented sector The private rented sector has a significant role to play in 

providing products to meet a range of needs, such as temporary 

accommodation for homeless families and accommodation for 

people in the ‘intermediate‘ housing market. The RHDG will 

extend its membership to include a representative from this sector. 

Private landlords, will be encouraged to develop their role in 

meeting housing need. For private rented sector landlords Housing 

Benefit administration is a major issue and therefore a barrier 

to greater participation. Housing strategies should take benefit 

administration into account. Additionally, rent deposit schemes 

may fill gaps left by benefit issues. Authorities should work 

towards accreditation schemes with private landlords.

Rural communities 

Need for housing 



choice 

Choice Based 

lettings 

Policies to achieve greater tenure diversification go hand in hand 

with more flexible lettings policies that promote choice. The 

Advisory Group on BME Social Housing, established in autumn 

2004 is exploring how the new choice-based lettings schemes 

affect BME groups, undertaking a full Race Equality Impact 

Assessment of the policy. There is scope for the Region to inform 

the work of this group. The RHDG will encourage sub-regions to 

develop CBL to foster mobility and choice for tenants across the 

Region. The RHDG will provide the catalyst for information 

exchange between sub-regions as progress develops. 

Housing options The approach to housing advice developed in ‘Should I stay or 

should I go‘ pilot housing options for older people recognises the 

value of external help at transition points in people’s lives. Local 

housing authorities are encouraged to use a housing options 

approach when giving housing advice. 

Live/work space Local development frameworks should take account of the need 

and opportunity to create live/work environments. 

7.52 Under the new urban-rural classification 69% of the Region’s population lives in urban settlements 

above 10,000 population (the national figure is 81%). 

7.53 The East of England is characterised 28 as having a higher than average proportion of the 

population living rurally, and a greater than average rural population growth rate. Rural areas in 

the Region have proportionately fewer people under the age of 24 and more people aged 45 years 

and older than urban areas. 

7.54 A key issue affecting communities in rural areas of the East of England is access to good quality, 

affordable housing. Local people, particularly young adults, find it increasingly difficult to stay in 

their own communities which impacts on local employment. 

7.55 The Region is blessed with natural beauty in the countryside and coastal areas, having a National 

Park in the Broads and four Areas of Outstanding Natural Beauty in the Norfolk Coast; Suffolk 

Coast and Heaths; Dedham Vale; and part of the Chilterns. Whilst this attracts welcome visitors 

and income, it also means that second and holiday home ownership places additional pressures 

on the housing market. 

7.56 In order to form a regional picture of need and delivery, the Countryside Agency commissioned 

a data collection project, which is now being taken forward through the Housing Sub Group of 

the Regional Rural Affairs Forum. 

28 The Countryside Agency ‘The state of the countryside in the East of England 2004‘ 

49

50 

Supply of affordable housing 

7.57 In order to meet the demand for affordable housing, local councils work with national and local 

housing and planning policies to achieve the development of affordable housing in partnership 

with housing providers. 

7.58 Development is distributed to contribute to sustainable patterns, concentrated rather than 

dispersed. The draft East of England Plan focuses development in market towns and key service 

centres, to be identified in local development documents. In all other rural settlements and 

communities, the continued viability of agriculture and other rural economic activities are 

important, along with the provision of housing for local needs and support for the sustainability 

of local services 29 . The Plan also identifies how dwellings will be distributed throughout the Region, 

by local authority. 

7.59 Following the need to concentrate rather than distribute development, local authorities conduct 

urban capacity assessments to inform the allocation of sites for development. Rural areas may have 

few sites allocated within the overall district total. 

7.60 Village development may be on sites that would not normally be granted planning permission for 

open market housing. Such ‘exception sites‘ are to meet the needs of local people, based on local 

surveys and needs information. 

7.61 In January 2005 ODPM published a replacement for paragraph 18 of PPG3 – Planning for 

Sustainable Communities in Rural Areas. Paragraph 18 emphasises the need to make adequate 

housing provision in rural areas to meet the needs of local people and to contribute to the delivery 

of sustainable communities. Paragraph 18 also introduces the concept of allocated exception sites 

(identified in local development frameworks) to sit alongside windfall exception sites. Exception 

sites generally should be small sites, solely for affordable housing and on land adjoining existing 

small rural communities which would otherwise not be released for general market housing. The 

affordable housing provided on such sites should meet local needs in perpetuity. 

7.62 Cross subsidy is a means of securing additional housing completely without grant or with a lower 

input of grant by producing homes for sale or shared ownership in addition to rent. Such schemes 

would be based on clear assessment of a local community’s need for different forms of housing 

tenure and local housing and planning policies. 

7.63 Cross subsidy from other forms of tenure is currently not normally achievable on exception sites 

(see above). However, the issue should be kept under review in the event the situation changes 

during the lifetime of the RHS. 

7.64 Over recent years, funding for affordable rural schemes has been through the Housing 

Corporation’s ring-fenced rural programme that has targeted small villages (below 3,000 

population) as well as more recently larger settlements such as market towns and larger rural 

settlements in the 3,000 - 10,000 population range. Between the year 1998/99 and 2003/04 1985 

rural homes have been completed in the East of England. The effectiveness of partnership working 

has seen a jump from 194 homes completed in 2001/02 to 386 in the year 2003/04. 

7.65 Providing new housing in settlements above 3,000 population does, however, mean that eligible 

schemes and tenants would qualify for the Right to Acquire. 

7.66 Housing is a key element in rural community regeneration and rural renaissance. Rural housing 

provision should be integrated with access to skills, employment and service provision. 

29 Policy SS9 Development in Rural Areas, in the draft East of England Plan.

7.67 The RHDG will ensure that the dialogue established with the Region’s Rural Affairs 

Forum in developing the RHS is continued through the links with the Rural Housing 

Enabling Network and the Rural Affairs Forum. 

7.68 EERA/RHB will use the outputs of the regional rural data collection project to develop 

a more systematic approach to regional investment allocations from 2006. This will 

specifically address the balance of funding between communities of under 3,000 

population and 3,001–10,000 population. 

Figure 11. Policy framework: housing in rural communities 

Policy framework: housing for rural communities 


Housing needs Local authorities, housing associations and Local Strategic 

Partnerships should respond to the housing needs identified in 

Parish Plans, Market Town Health Checks and by Rural Housing 

Enablers. They should acknowledge that sustainability in rural 

areas includes informal support networks and services provided by 

the voluntary and community social sectors and encourage the 

development of suitable projects including those that provide 

supported housing and access to related services. 

Local authorities should ensure that the rural dimension is fully 

taken into account in developing housing market assessments. 

Planning Local Development Documents should promote the adoption of 

positive planning policies that improve the supply and quality of 

affordable housing in sustainable villages and market towns, in 

response to identified housing and support needs. 

Planning authorities should seek to increase the number of sites 

on which affordable housing can be sought by reducing thresholds 

and considering the use of ‘allocated‘ exception sites in small 

settlements in addition to windfall sites. 

Funding The Regional Rural Data Collection report provides the basis for a 

more systematic approach to investment in rural schemes, and will 

be developed through the RHDG’s links with the Rural Affairs 

Forum’s Housing Task Group. 

The EERA/RHB will keep the rural pipeline under review, 

particularly to identify funding commitments for exception sites. In 

line with the principle of ‘gap funding‘ EERA/RHB will encourage 

the potential for cross subsidy in areas where the demand and site 

profiles mean this would be an appropriate and effective response. 

Sustainability Those developing housing in rural areas should maximise the 

contribution that such development can make to meeting social, 

economic and environmental needs. Housing in rural areas should 

also seek to be well designed, to fit the locality and to meet good 

standards of environmental sustainability. 

Partnerships RHDG will maintain effective links with the Rural Affairs Forum’s 

Housing Sub Group in order to achieve effective integration and 

policy development. 

51

52 

Homelessness 

7.69 Rising levels of homelessness and the associated use of temporary accommodation is a feature 

across the East of England. Local housing authorities have all produced homelessness strategies, 

with the emphasis on prevention. Many local housing authorities have changed their teams to 

focus on ‘housing options‘ and advice. 

7.70 ’Supporting People’ funded tenancy support and floating support have a vital role in early 

interventions to support vulnerable tenants and reduce risk of tenancy breakdowns. SP funding 

also supports accommodation services for single homeless people, many of whom have complex 

needs, in direct access hostels. 

7.71 ‘Homelessness‘ is often the end result of other problems, financial, health or social. It is important 

that these other problems are tackled if homelessness is not to be repeated. 

7.72 It is here that the RHS can be effective in linking up with other regional strategies and initiatives 

to tackle the range of needs. The Regional Health Strategy is an obvious link, but others are the 

Regional Social Strategy, the Regional Rehabilitation and Resettlement Strategy, the Regional 

network of Drug Action Teams, the National Asylum Support Service Accommodation Strategy, the 

Regional initiative on Domestic Violence through the Supporting People regional group (SPERG). 

7.73 The East of England Strategy for the Rehabilitation of Offenders contains ‘pathways to 

accommodation‘ for which an action plan is being developed. The accommodation pathway is 

vital to the Rehabilitation Strategy as accommodation is crucial to sustaining work and family life. 

There will be major gains for crime reduction and community safety if offenders can be 

successfully resettled. An element of this work may be to pilot a needs assessment tool. 

7.74 An emerging issue is the housing and homeless problems experienced by younger people, 

particularly the 16–17 year old age group. Such groups benefit from mediation schemes to 

reconcile young people with their families. 

7.75 Local authority and housing association lettings policies need to balance the needs of homeless 

households with others in housing need. For some authorities ‘homelessness‘ is the main route 

into social housing. This imbalance particularly disadvantages single, homeless people. 

7.76 RHDG will review the knowledge from the Region’s homelessness strategies for good 

practice and research the incidence of youth homelessness through its membership. 

7.77 RHDG will review the links with other strategies to ensure that action on homelessness 

and its causes are co-ordinated at the regional level. 

7.78 In particular, RHDG will build on its existing links with the East of England Strategy for 

the Rehabilitation of Offenders to co-ordinate the accommodation pathway action plan, 

and consider piloting the needs assessment tool through its membership. 

7.79 RHDG will review SP Strategies as they are published and ascertain the implications from 

any changes to floating support.

7.80 The RHDG will ensure that the sub-regions make the link with Drug Action Teams in their 

strategies. The RHDG should pilot a sub-regional approach to tackling homelessness and 

the use of temporary accommodation. 

7.81 EERA/ RHB will provide investment for new housing to enable the accommodation needs 

of homeless households to be met through an overall increase in stock. 

Figure 12. Policy framework: alleviating homelessness 

Policy framework: alleviating homelessness 


Role of RHDG The RHDG cannot prescribe what local authorities should do in 

discharging their duties. It has an advisory and co-ordinating role 

and, via the RHS, it makes recommendations for investment. An 

investment theme for Local Housing Need and Homelessness is 

proposed in this RHS and investment (2006–08) and future spend 

across this theme will require monitoring. 

An important outcome of investment in housing will be additions 

to the housing stock overall, which will help to alleviate difficulties 

experienced with ‘move-on‘ accommodation. 

Preventing and 

responding to 

homelessness 

All local housing authorities have produced homelessness 

strategies. These have been subject to a review at national level. 

It is important to take the good practice learning and ensure that 

the Region’s authorities and their partners have access to this, 

along with appropriate regional practice. 

The RHDG aims to support local housing authorities make the shift 

from crisis management to prevention. 

Identifying needs There remain some causes of homelessness that are not yet 

properly researched and understood. Recent research includes the 

needs of refugees and Gypsies and Travellers. Future requirements 

such as the incidence of youth homelessness should be identified 

within the RHDG and taken forward with regional partners in a 

forward plan of research proposals. This might include piloting a 

needs assessment model for ex offenders as part of the pathways 

to accommodation. 

Allocations and 

lettings 

Sub-regional 

approach to 

tackling 

homelessness 

Synergy with other 

strategies 

RHDG is in a position to co-ordinate information exchange on 

local lettings plans to achieve balanced communities in new 

schemes. 

RHDG will promote a sub-regional pilot on homelessness and the 

use of temporary accommodation to ‘test‘ the viability of this 

approach. Sub-regions should ensure that links with Drug Action 

Teams are made. 

The RHS must take account of other regional strategies in 

developing future policy proposals. In particular to review the SP 

Strategies, finalising of the Region’s Health Strategy and the East 

of England Strategy for the Rehabilitation of Offenders to coordinate 

the accommodation pathway action plan. 

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Supporting people 

7.82 ’Supporting People’ is the term the ODPM gave to a diverse programme that encapsulates the 

requirements of various partners/stakeholders including social care and health. The primary aim of 

the programme is to help vulnerable people to improve their quality of life and to gain and 

maintain greater independent living. In 2005/06 the Region received a total Supporting People 

grant allocation of £123,000,000 from the ODPM. The individual SP administering authorities, 

based at county and unitary level, co-ordinate the investment in supported housing. 

7.83 Significant work has already been done in the Region to identify shared needs and priorities. 

A jointly funded Regional Coordinator has been appointed to support the Supporting People East 

Region Group (SPERG). Cross-authority working has been established and sub-groups have been 

set up to investigate the needs of three key groups – Gypsies and Travellers, victims of domestic 

violence and ex-offenders. Task groups have been set up to investigate whether regional ways of 

working can be established, for example, there has been regional agreement to elements of the 

steady state contracts given to providers. SPERG have also jointly commissioned research on 

domestic violence services in the Region, which has now been completed, and are linked in to the 

sub-regional housing strategies. Key themes that are common to the Region are set out in the 

following paragraphs. 

Older people 

7.84 Supporting People service reviews are revealing the need to change the use of some schemes. This 

is especially true for the sheltered housing schemes which are likely to be needed to be remodelled 

in order to meet changing aspirations. Many local authorities are already examining their sheltered 

housing stock to assess whether they will meet future needs. There is a clear requirement to ensure 

that any changes to the need for capital or revenue funding are co-ordinated. 

7.85 Research has shown that there will be a large increase in the numbers of older people in the next 

few years, ‘Between 1995 and 2025 the number of over 80s will increase by almost 50% and over 

90s will double.‘ 30 The Region has identified a need for additional ‘Extra Care Sheltered’ 

housing which could come from a mixture of remodelling existing sheltered accommodation and 

new build. 

7.86 There are also issues around older people’s changing housing aspirations. Over seventy percent of 

dwellings are now owner occupied in the east region 31 and with the change in tenure comes a 

change in attitude. Existing home-owners may choose not to go into rented accommodation 

therefore there may be a need for remodelling sheltered accommodation either for other groups 

or for use as a community resource. This could be especially useful in rural areas and there would 

be the potential for using the accommodation as a base for floating support but this would be 

dependent on transport and the sustainability of the scheme. Schemes should reflect cultural 

diversity issues. 

Vulnerable groups 

7.87 Early Government guidance on SP strategies focused the attention of the administering authorities 

(County and Unitary) on the needs of groups whose needs have historically not been well met: 

people who misuse substances, offenders, and ex-offenders, victims of domestic violence, young 

people at risk, teenagers who become pregnant, Gypsies and Travellers and refugees. Improving 

and extending services for these groups continues to be a priority. 

30 Department of Health, The NHS Plan: The Government’s response to the Royal Commission on long-term Care, July 2000. 

31 Office of the Deputy Prime Minister, English House Condition Survey 2001 Regional Report, July 2003

7.88 Visiting or floating support, where support is provided in people’s homes, has expanded recently. 

It has shown to be a very effective method of support as it is tailored, flexible and cost effective. 

It can also help to ensure that service users are more dispersed, therefore moving away from a 

ghetto culture which can cause hostilities. Floating support is very successful in maintaining 

independence and most SP teams would like to extend services further. 

7.89 SPERG has identified the lack of move-on accommodation, particularly for families, as an issue in 

the Region. The Region’s Voluntary Hostels Group echoes this, identifying the need to free up 

spaces in hostels by ensuring swift and effective move-on via nominations to permanent housing 

for people who are ready to move. A lack of move-on accommodation can lead to hostels and 

other temporary accommodation silting-up. This arises from a shortage of new lettings, 

particularly of smaller accommodation, resulting in people with low support needs remaining in 

hostels longer than necessary and running the danger of becoming institutionalised or having their 

long-term independence compromised. It also means that earlier investment in schemes is not 

being used efficiently to meet higher levels of need. 

Learning disabilities 

7.90 There has been a shift away from institutional care towards group-living in supported tenancies. 

In the past there has been an over reliance on ‘shared accommodation‘. There is a continuing need 

to expand the housing options for the increasing numbers of people with a learning disability who 

are expecting to live in the community. SPERG argues that there should be a range of 

accommodation available to cover the diverse needs of this group and the need to look at more 

innovative models of housing as well as group homes, for example, cluster units, using assisted 

technology, remodelling of sheltered housing or sharing sheltered provision with the elderly 

(double usage). It should also be noted that service users with long-term mental health issues have 

similar housing issues. 

Developing services in the future 


7.91 There are structural issues over equity and access to services. The budgets which were merged into 

the SP programme were nearly all budgets for tenants of social housing. The needs of people in 

other tenures must now be included in the programme. 

7.92 In some areas the pattern of support services has developed from the initiatives of individual 

providers with a greater or lesser degree of overall planning. This has led to unevenness of service 

availability, which SP teams wish to redress. New services will now be commissioned to meet gaps 

in service identified in SP strategies, normally using competitive procurement processes. 

7.93 It is essential to have effective engagement with a developing sub-regional agenda, and SPERG 

will work with sub-regional housing groups in identifying ‘local‘ investment within the investment 

themes. Sub-regional engagement is especially important in relation to ensuring that future needs 

brought about by demographic changes and an ageing population are properly considered. 

7.94 Other issues for the East of England are the housing needs of homeless families, refugees, teenage 

parents and especially the victims of domestic violence. The main areas of concern are the 

inappropriateness of accommodation, lack of move on accommodation for families and lack of 

provision for differing ethnic needs. Work is in progress to consider a regional strategy for 

domestic violence over the next six months and the priorities will be included in the 2007/08 

allocation request. 

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7.95 There is a lack of detailed information regarding the needs of the BME communities in the Region. 

The national themes are well known but need varies locally. BME needs are important for all 

administering authorities but the percentage of BME population varies widely across the Region 

posing different problems. SP want to fund culturally sensitive services and raise the understanding 

of the needs of certain groups. This needs direct communication with the BME communities. 

7.96 Furthermore there are opportunities for other public funding to be more effectively targeted 

through links with SP. For example, the national Capacity Building Infrastructure Strategy for the 

Voluntary and Community Sector ‘Change-Up‘ 32 has funding available for Voluntary and 

Community Sector Infrastructure Organisations until 2006. In the East of England, funding is 

co-ordinated through 6 County Consortia of infrastructure organisations, and a Regional 

Voluntary Sector Partnership. As a number of SP service providers are also front line Voluntary and 

Community Sector Organisations there is scope to consider a more strategic use of resources 

and make links to these consortia at county and regional level. 

7.97 EERA/RHB will ensure that it works with SPERG to ensure the capital/revenue 

implications are clearly demonstrated in investment for supported housing schemes. 

In particular EERA/RHB will be aware of any remodelling proposals which might have 

implications for investment. 

7.98 RHDG will ensure that the dialogue with SPERG is maintained and good practice is shared 

along with the knowledge and development of future research along with a Regional SP 

Strategy. 

32 Published June 2004 and supported by the Home Office Active Communities Unit

8 Recommendations for public investment 

Background to investment 

8.1 As indicated elsewhere, most investment to fulfil the objectives of the RHS will need to come from 

private individuals and organisations. The purpose of public funding is to address needs which cannot 

– or can only partially – be met through private investment. 

8.2 There are several sources of public funding for housing in the East of England, some provided on a 

mandatory basis and/or distributed formulaically. This chapter addresses those which are distributed 

on a discretionary basis, and for which strategic guidance is therefore of significant value. One 

important role for discretionary funding is to complement mandatory uses. The intention is to ensure 

that public investment is used to maximum effect to achieve the objectives of the RHS. 

8.3 The following diagram shows how the funding flows from central Government to deliver new 

affordable housing and improve the existing stock in both the public and private sectors. 

Figure 13. Illustration of the flow of housing capital allocations 

Regional 

Housing 

Delivery Group 

The flow of Housing Capital Allocations to the East of England 

New Affordable Housing 

Housing Corporation 

RSLs 

Schemes 

HM Treasury 

ODPM 

EERA/Regional 

Housing Board 

Decent 

Homes 


Improving Existing Stock 

Local Authorities 

Private 

Sector 

Renewal 

This diagram shows the flow of housing capital allocations, 

funded by Central Government, which the Regional Housing 

Board has responsibility for. 

Key Regional 

Strategies, e.g. 

RHS 

RES 

RSS 

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58 

8.4 The most significant source of capital investment from the public purse is the Single Regional 

Housing Pot (SRHP), which combines a number of previously separate funding streams. It can be 

used for improvement of the existing housing stock, through investment by local authorities, or 

for the creation of new affordable housing through Housing Corporation investment. 

8.5 Once funding is awarded to the Region, EERA/RHB is responsible for recommending to Ministers 

the strategic use of the SRHP, and the delivery of the programme of investment. The EERA/RHB’s 

2-year investment strategies are intended to be a key element in the implementation of the RHS. 

If they are to make best use of the limited resources available, it is essential that the RHS provides 

guidance on the outcomes needed over the life of the RHS, the intended means of achieving 

them, and the prioritisation to be followed where difficult choices have to be made between 

competing objectives, geographical areas or types of investment. This is the purpose of 

this chapter. 

8.6 The diagram below illustrates how the RHS could shape the future housing in the East of England 

through its recommendations. 

Figure 14. Potential investment interventions 

Existing 

housing provision 

New 


Consider – Location and distribution 

through East of England Plan; resources 

through single regional housing pot 

KEY – Choice between: 

Public 

Private 

Tenure 

a) Investment in existing stock 

Local authorities (LA), housing associations (HA), private sector renewal (PSR), empty homes 

(EH), Disabled Facilities Grants (DFG). 

b) Investment in new housing provision 

Market (MKT) or sub-market (subMKT) tenures. 

Targeting different outcomes – strategic growth, meeting local housing need and 

homelessness (HNeed), regeneration (Regen), supporting rural areas, accommodating people 

with support and care needs (SP), addressing needs in BME communities, or Key Workers 

(KW). 

Type 

HA 

LA 

PSR 

EH 

DFG 

MKT 

SubMKT 

Growth 

HNeed 

Regen 

Rural 

SP 

BME 

KW

The balance between investment in existing housing 

stock and new housing 

8.7 The key objective of the RHS is that everyone in the East of England will be able to live in a decent 

home in the future. The implication is that the RHS must consider both the housing stock that 

exists now and the planned new future provision. In terms of numbers, the vast majority of the 

2021 stock will be that which exists right now. The condition of the existing housing stock, and 

the suitability of properties for accommodating the needs of the households living in them in the 

future must therefore be very important. 

8.8 Given the fact that most homes are owner-occupied, most of the measures to ensure a 

sustainable future for the Region’s existing stock will need to be aimed at facilitating 

whatever private investment is necessary. In other words, giving priority to the existing stock 

means primarily a priority for policy and action to facilitate private investment, rather than for the 

use of public investment, although clearly this will be an important consideration where it is publicsector 

stock involved (see Decent Homes below). 

8.9 In contrast, public investment needs to be focused on the area in which the private sector is least 

able to meet need: providing subsidy for new affordable housing. Therefore, where public 

investment is needed for investment in the existing stock, the RHS proposes careful targeting 

to ensure that it is used only where it is necessitated by an inability of private funding to provide 

a solution. 

8.10 The RHS proposes that in the short-term, 15% of regional resources for public capital expenditure 

in the East of England should be used for investment in the existing stock. Its use will be targeted 

carefully on non-decent private and public-sector stock for which there is no realistic source of 

private investment, and on bringing empty homes back into use. The level of funding will have to 

be reviewed over time as circumstances change. 

8.11 Carefully targeting public investment in existing stock at this level means that the RHS is able to 

release a maximum of public resources for investment in new homes. Thus giving priority 

to the challenge of bringing the supply of new affordable housing in line with the anticipated high 

demand. 

Investment in the existing housing stock 

8.12 The targeting of public investment in the existing stock should be according to the following 

framework of polices and proposals. 

Decent Homes in the public sector 


8.13 On the basis of the options appraisals undertaken during 2003–05 by the stock-holding local 

housing authorities in the Region, plans will be in place in the latter half of 2005 for ensuring that 

each authority’s stock can meet the Government’s Decent Homes Standard by 2010. In some 

cases, it is anticipated that the agreed option will be retention in the public sector, with an 

acceptable level of further capital investment from public resources. Where it has been agreed 

that a local authority should retain its housing stock, the highest priority for public 

investment will be provision of whatever has been accepted as necessary to meet the 

Decent Homes Standard in that stock. 

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8.14 The Decent Homes Standard is a minimum standard, and the aspirations for housing in the East 

of England to be of a significantly higher standard remains an important objective for the RHS. 

For this reason, all local authorities with housing stock in the East of England are 

encouraged to improve their stock to the highest practicable standard within their 

available revenue resources. 

8.15 Public capital investment from regional resources should not be used to improve publicly 

owned housing above the Decent Homes Standard unless and until sufficient new 

affordable housing has been secured, which should otherwise be given priority. 

Decent homes in the housing association sector 

8.16 All housing associations are required by their regulatory body, the Housing Corporation, to bring 

their deficient housing stock up to the Government’s Decent Homes Standard by 2010. The RHS 

looks to the Housing Corporation to ensure that this is achieved. 

8.17 It is accepted that some, particularly very small, housing associations may not have the financial 

capacity to make the necessary investment from their own resources. The Housing Corporation, 

as housing association regulator, should work with any housing association in this situation to 

discuss the options for creating sufficient resources to meet the Decent Homes Standard in its 

stock by 2010. Public investment should only be made available on an exceptions basis where the 

solution cannot be implemented in time. 

Decent homes in the private sector 

8.18 The degree and scale of private-sector housing unfitness in the East of England is relatively lower 

than other regions, and is concentrated in some of the older industrial and port towns, and the 

Region’s New Towns. The need and demand for housing in the Region are so high that private 

investment can be expected to deal with much of the unfitness through market mechanisms. 

However, planning and other controls should be applied sensitively to ensure that they do not 

become obstacles to private investment being used to address problems of unfitness in the 

private sector. 

8.19 Where private investment is not forthcoming to deal with unfitness, there is a case for considering 

strategic use of public investment. Where this relates to the detrimental effect on neighbourhoods, 

it is addressed through the approach to empty homes and/or regeneration in the sections below. 

Sometimes, however, it is more an issue of the circumstances of individual households. 

8.20 In the private sector, unfitness is just as important for the residents as for those in the public or 

housing association sectors; it is more difficult, however, directly to address this challenge. Within 

the Region’s private sector stock, households living in unfit properties have different abilities to 

address the problem. Many may be exercising choice, others may be ‘trapped‘ in their homes, 

unable to find alternative solutions because of their financial or other vulnerability. 

8.21 Public investment should be used to bring up to the Decent Homes Standard, residential 

properties in the private sector whose occupants’ vulnerability makes it impracticable for 

them to find their own solution. Such investment should only be provided where there 

is a sound local strategy operating to identify and prioritise the need for investment, and 

to ensure that the residents will continue to benefit from it. On this basis, funding should 

be given priority over investment in new affordable homes.

Empty homes 

8.22 There will always be properties empty as households move from one dwelling to another, or as 

properties await building works. However, in the East of England there are many residential 

properties standing unused for other reasons, and many of these are owned by public bodies. This 

is a wasted resource which is unacceptable in a region experiencing a shortage of available 

housing, and therefore the RHS seeks to bring these empty properties back into residential use. 

8.23 The strategy for addressing empty homes requires the following: 

• local authorities which have not compiled a database of empty residential properties should 

do so. All authorities should keep their database up to date. 

• individually and in collaboration, housing authorities should develop their housing strategies 

to embrace concrete action to bring empty properties back into use. In the first instance, 

this should be pursued on the basis of continuity of ownership. 

• in each area, housing associations with specialist experience should be identified for 

working within empty homes strategies. Public resources from the SRHP should be made 

available where subsidy is required because the properties are to be used for affordable 

housing. Where appropriate, the associations should rehabilitate properties for resale to 

owner-occupiers, using surpluses to subsidise those used for affordable housing. 

• compulsory purchase of properties should be used where negotiation with property 

owners or the threat of compulsory purchase have failed. Local authorities should consider 

borrowing to capitalise the initial phases of purchase programmes resulting in the sale of 

properties, allowing the resource to be recycled thereafter. 

8.24 Research into empty homes in the East of England is currently underway. Once results are 

available, this will permit the strategy to be reviewed, and a more detailed set of policies and 

proposals generated. 

Private sector renewal 


8.25 Private sector renewal implies a more strategic approach to improving properties in the private 

sector, rather than relying on market led demand to improve individual properties. Renewal may, 

for example, be targeted on individual types of properties or geographical areas perceived to be 

in need of renewal. Initiatives may also be part of wider area regeneration strategies. 

8.26 Such an approach will be informed by effective knowledge of the condition of the housing stock 

gained from data collection or local surveys. 

8.27 All local authorities have Private Sector Renewal strategies in place. Many authorities are making 

use of the powers granted under the Regulatory Reform Order to make loans available to 

applicants rather than grants. In section 6 this strategy refers to the need for co-ordinated action 

on information and brokering at regional level as this can be difficult at localised level. 

8.28 Public investment for renewal from the SRHP will be targeted at meeting the decent homes target, 

and thus focused on vulnerable stock occupied by vulnerable groups. Anything beyond this should 

include innovative approaches to renewal that are based on sound evidence and robust data. 

8.29 Future public investment in private sector renewal and decent homes will be 

underpinned by an enhanced stock condition evidence base. 

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Disabled Facilities Grants 

8.30 At present, the use of DFGs is not strategic, since resources are distributed essentially on the basis 

of formulae, and the mandatory provision of grants is demand-led. Given that demand far exceeds 

resources, the use of grants follows rationing processes, rather than prioritisation. This needs to 

be addressed; however the development of a more strategic approach will have to await the 

outcome of a Government review of the system. 

8.31 Aids and adaptations discretionary funding for housing association stock was signalled in the last 

RHS as requiring a more strategic approach to investment with a move away from block 

allocations of grant effectively drawn down at a housing associations discretion. This policy 

approach remains and while ‘in principle’ aids and adaptation funding can still be made by the 

Housing Corporation, this will be continue to be on an individual aids and adaptations project 

basis only where the housing association can demonstrate that all other sources of funding have 

been exhausted, including the housing association’s own internal resources. Those associations 

formed as a result of a local authority transferring its housing after 31 March 1996 remain 

ineligible for funding for this purpose and should already have accounted for these needs in their 

business plans. The Housing Corporation expects all housing associations to be moving towards a 

longer-term strategy on how the needs for those tenants requiring adaptations to their homes will 

be met. 

8.32 Figure 8, ‘Policy Framework: housing, improving health and well-being‘ illustrates the areas that 

contribute to a long-term strategy on adaptations (see section 6). 

Investment in new affordable housing 

Products 

8.33 There is a range of optional forms of new affordable housing currently available through housing 

associations as products of Social Housing Grant (SHG) invested from the SRHP: 

• social renting – rents are set significantly below market levels within the Government’s 

rent restructuring framework 

• sub-market renting – rents are set between social and market levels, using less subsidy, 

reflecting the needs of households in the ‘intermediate market‘ 

• shared ownership – households purchase a part of the equity in their home, paying a 

rent on the remainder to the housing association for the part of their equity not subsidised 

through SHG 

• equity loans – households are provided with SHG in the form of an interest-free loan to 

cover part of the cost of purchasing a home, as currently offered under HomeBuy and the 

Government’s Key Worker Living initiative. 

8.34 In pursuing its aim to extend opportunities to for home ownership, the Government was, at the 

time of writing, consulting on proposals to streamline shared ownership and equity loans into a 

range of three HomeBuy products: Social HomeBuy – equity sharing for social tenants in the 

homes they currently occupy; New Build HomeBuy – equity sharing in a new home built for this 

purpose; and Open Market HomeBuy – purchasing a share of a property on the open market. The 

latter two types are aimed at Key Workers and other first time buyers. EERA/RHB will be identifying 

target groups in its investment proposals to Ministers. Households receiving grant assistance will

normally be able to move to full ownership over time by increasing their share in the equity of their 

homes. This is also known as ‘staircasing‘. 

8.35 All the above involve the combination of Social Housing Grant with private finance to obtain the 

greatest output from the former, using it as ‘gap-funding‘ to make the housing affordable to the 

resident. 

Figure 15. Affordable housing products 

Affordable 

rent 


Affordable housing ‘products’ ëprodu cts’ 

Rented Expanded opportunity to own 

Sub market 

rent 

Rights to buy 

and acquire 

HomeBuy 

Social 

HomeBuy 

New build 

HomeBuy 

Open market 

HomeBuy 

8.36 The various products on offer have different financial arrangements that match households’ 

needs. The cover is not complete, and efforts are being made to develop other products. Local 

authorities and other public bodies can already invest capital in alternative products which do not 

have to fit within the statutory SHG regime. 

8.37 Some private developers have created financial arrangements to permit new homes to be sold 

significantly below market prices, i.e. as a form of ‘affordable housing,‘ and are typically aimed at 

first-time buyers. This is to be welcomed in as much as it satisfies some of the need for housing 

supplied below market price; however, it is of very limited value for overall supply in the Region if 

the price subsidy cannot continue as a benefit for the second and subsequent purchasers. The 

RHS supports the provision of homes for outright purchase at sub-market prices set in 

the context of local affordability information, but only where there are arrangements to 

maintain the properties affordability in perpetuity. 

8.38 It is also of limited value when housing products are made affordable by lowering their quality in 

terms of space standards, or in other respects. The new affordable housing required in the 

East of England should be universally of a minimum standard commensurate with the 

Housing Corporation’s Scheme Development Standards. 

8.39 The RHS cannot prescribe the balance between supply of the different products in the years to 

come, or even in different parts of the Region in the immediate future, since it is impossible to 

anticipate precisely the range of needs to be addressed. The RHS requires local authorities to 

work with housing associations, other housing providers and relevant bodies as 

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64 

recommended in national guidance, to undertake local housing market assessments, and 

to maintain a regular monitoring of markets so that local provision of different 

affordable products can be matched closely with anticipated requirements. 

8.40 Most affordable housing products can be created through both new construction and the 

purchase of existing properties. However, while the latter may help in supplying need for 

affordable housing, it does not normally add to the overall supply of properties in the Region. 

Investment for new affordable housing in the East of England should generally follow sub-regional 

and local housing strategies. Where strategies target rehabilitation of existing stock to 

bring empty properties into use and generally contributing to regeneration, as a means 

of addressing unfitness, or as a means of making communities more sustainable through 

tenure diversification, public investment should follow this prioritisation, even if it 

implies higher capital grant costs. Other than these very specific circumstances, capital 

funding should normally only be used for affordable housing schemes that will add to 

the overall stock of the Region. 

Targeting investment products 

8.41 For the longer-term, the East of England Plan provides a useful framework for considering 

long-term need for different products. 

8.42 As indicated earlier, the long-term requirement in the East of England for additional affordable 

housing is around 11,000 homes per annum. Of this, around 8,500 are forecast to be required for 

social rented housing, including the need to deal with the current backlog. The remainder would 

be required to meet various needs in the intermediate market: some sub-market renting, but 

mainly various forms of shared ownership. 

8.43 In the short-term, other factors need to be taken into account, and the respective requirements 

for different products need to be set out in sub-regional and local housing strategies. One key 

factor in doing this will be the opportunities for investment already emerging from the work on 

the supply-chain of housing schemes coming through the development pipeline. Another factor, 

possibly influencing the choice of schemes for investment, will need to be Government initiatives 

aimed at increasing the supply of intermediate housing products to help address recruitment and 

retention problems among public-sector Key Workers. 

Investment themes 

8.44 All new affordable housing will meet the immediate housing needs of some of the Region’s 

households. The potential schemes for investment are likely always to be more numerous than the 

resources available for investment, and therefore often difficult decisions over the use of limited 

resources will be required. The RHS aims to assist decision-makers in this task by helping 

to structure their decision-making, and to set priorities. At the same time the intention is also to 

provide a strong guide to those considering or designing schemes with the intention of 

implementing the RHS and hence attracting public investment. 

8.45 The approach adopted in the RHS is to relate all potential schemes for investment back to the 

overall aims of the RHS, in terms of the outcomes they should help to bring about. In other words, 

this approach looks beyond simply providing accommodation for people in need, and seeks to 

achieve the broader goals being pursued within the East of England. For this purpose, outcomes 

are considered in relation to several over-arching investment themes: this provides a structure for 

organising and assessing them for possible inclusion in investment programmes.

8.46 Housing schemes which do not address outcomes under the strategic investment themes 

should not be considered for funding from public resources. 

8.47 It is important to recognise that the categorisation under themes applies to the schemes 

themselves. The categories are defined by the nature of their outcomes and not the areas in which 

they are located. For example, not every housing scheme in a regeneration area is necessarily 

geared to regeneration; nor will every scheme addressing rural need be located in a village. 

8.48 The first RHS for the East of England (2003–2006) adopted the five themes previously used for 

targeting investment in the Region: growth, regeneration, supported housing, rural need, and 

housing for people from the Region’s BME communities. Targets and provisional allocations for the 

2004–06 investment period were as set out in figure 16. 

Figure 16. Targets and provisional allocations against 2004–06 investment themes 

East of England: strategic theme allocations (SHG) 

Supported 

Rural 

Regen 

Growth 

BME 

(%) 

0.05% 

5% 

12.2% 

10% 

15% 

19.6% 

0 5 10 15 20 25 30 35 40 45 


26% 

30% 

42.1% 

40% 

Provisional 

allocations 

Regional 

target 

8.49 To the existing themes, an additional theme of Key Workers was added, reflecting the growing 

concern in the Region and within Government of the potential impact of housing affordability 

issues on public services and economic development. The RHS prioritised the themes broadly 

through indicative levels of investment for the short-term, with very general direction on the 

geographical targeting. 

8.50 Consultation for this revised RHS led to the identification of further themes: homelessness, other 

local needs, asylum seekers and refugees, and Gypsies and Travellers. The investment themes for 

the present RHS are set out on the following page. 

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Figure 17. Investment themes 

Theme Strategic outcome Typical schemes 

Growth 

Local need and 

homelessness 

Regeneration 

Where growth in housing numbers is 

planned to be significantly in excess of 

natural household growth in the area, 

measures are needed to ensure that an 

appropriate element of affordable 

housing is facilitated and properly 

utilised. By implication, the affordable 

housing must be providing 

accommodation for need over a larger 

area than what would be considered 

‘local need‘. 

In contrast to the growth theme, this 

relates directly to need arising within 

the locality of the scheme, and hence 

serves the existing population. 

Here, the strategic outcome is typically 

not couched in terms of housing itself. 

What is required is the physical 

regeneration of land or buildings now 

redundant, and/or the social or 

economic regeneration of areas and 

communities which are unable to 

achieve this themselves. Investment in 

new affordable housing can be 

through rehabilitation or new 

properties on brownfield sites. Its 

provision is, however, a means to an 

end, being normally one of a bundle of 

integrated measures required to 

achieve the desired regeneration. 

Housing development may be the only 

measure, where it is a run-down 

residential area that needs to be 

regenerated. 

Schemes will typically be part of 

strategic release of allocations for 

housing land required by regional or 

sub-regional plans. Consequently of 

mixed tenure and housing type, they 

will provide for the range of needs 

anticipated in the incoming population 

from an area larger than the town or 

district in which they are located. This 

can be demonstrated either through 

arrangements for utilising a scheme’s 

capacity across administrative 

boundaries, or in the origin of 

households accommodated on an 

on-going basis by the host authority. 

The extent to which provision for Key 

Workers and others in the intermediate 

market will be made will depend upon 

local employment circumstances and 

expected commuting patterns. 

In terms of creating sustainable 

communities, there will need to be a 

mix of type and tenure to complement 

existing provision. Schemes should not 

normally be aimed at simply 

accommodating homeless households, 

but, if so labelled, be more a part of a 

local strategy to avoid homelessness 

occurring in the first place. 

Schemes on ‘brownfield‘ sites will be 

recognised as regeneration only where 

there is a clear and beneficial outcome 

in these terms. Where the regeneration 

is of an area extending beyond the 

development site, a strategy is needed 

to demonstrate their interrelationship. 

For this reason, the detailed nature of 

the scheme will be designed in direct 

relationship with its local circumstances 

within the surrounding area.

Theme Strategic outcome Typical schemes 

Rural needs 

Key Workers 

Supported 

housing 

Needs from 

black and 

minority 

communities. 

The objective here is the appropriate 

accommodation of needs arising in 

rural areas – i.e. where settlements are 

small, population density low, travel 

difficult, and opportunities of access to 

housing restricted. Although the needs 

to be addressed are typically from 

people wishing to remain in an area, 

they will also include those wishing to 

take up employment (including unpaid 

care) in rural areas, and hence to move 

to live there. 

Where the sustainability of existing or 

future communities is endangered by 

difficulties in recruitment or retention 

of employees in essential activities, 

these can be recognised as Key 

Workers. If accessibility or affordability 

of housing is a factor in these 

difficulties, the RHS supports measures 

to find a housing solution. 

A substantial and growing proportion 

of the population is in need of housing 

support. Revenue funding of this 

activity should be strategically targeted 

to help provide this under the SP 

arrangements. Where future provision 

will require capital investment in new 

housing schemes, this will be a 

strategic objective for use of the SRHP. 

Strategically, in the promotion of 

community cohesion, it is important 

that members of BME communities 

should have the same access to 

housing as members of the mainstream 

community, and hence that they 

benefit equally from provision under all 

the other themes. However, the RHS 

recognises that, for a wide variety of 

reasons, that this is not everywhere or 

always the case. Also, there are 

instances where linguistic, cultural or 

other factors lead to a need for 

specialist schemes to provide suitable 

accommodation. 


Schemes can be in suitable villages, or 

in larger settlements where the 

location is determined in an evidence 

based strategy as being appropriate. 

This reflects the need to ensure the 

sustainability of the housing schemes 

and settlements. Schemes also need to 

be located with a view to the quality of 

life of the future residents, given their 

need for access to amenities and 

facilities. The design of schemes in 

villages needs to be carefully managed 

to ensure the physical and social 

integration with the host community. 

Key Worker schemes will require the 

identification of Key Worker groups 

experiencing housing needs, the design 

of projects able to meet these in terms 

of type, location and cost, and 

arrangements to ensure the scheme will 

be viable and in demand for the future. 

In terms of sustainable communities, 

they are best integrated into housing 

schemes serving wider needs. 

Supported housing schemes will need 

to be developed on the basis of 

planned provision of appropriate 

support and its revenue underpinning. 

They will therefore normally need 

to be planned as an element in the 

implementation of the emerging SP 

strategies. Care needs to be taken also 

in terms of their design and location, 

relating to physical appropriateness 

and the need for integration into 

surrounding communities. 

Schemes will need to demonstrate that 

they have been planned and designed 

with the specific and special needs of 

members of a community in mind – 

typically this will require close 

collaboration with that community. 

Schemes not offering specialist 

accommodation would not normally 

receive support, unless it could be 

demonstrated that there are no other 

means of enabling normal access for 

members of the BME community into 

housing otherwise available to the 

mainstream community. In all cases, a 

strategic approach to BME housing will 

be needed. 

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Thematic targeting of investment 

8.51 To aid those taking future funding decisions, it is essential for the RHS to provide direction and 

prioritisation for targeting the different investment themes. For practical convenience, it is 

advisable to consider this on both longer and short-term scales. 

8.52 The East of England Plan and central Government policy provide little guidance on thematic 

targeting – essentially only on Key Workers (see below). Equally, the evidence base on housing 

need and related factors is also not sufficiently well developed to provide clear guidance. For these 

reasons, the long-term prioritisation underlying targeting in this RHS is essentially a reflection of 

views emerging from the initial development of the sub-regional strategies. For this longer-term 

perspective, this is presently sufficient, given that there will be opportunities to refine the picture 

on the basis of future research. 

8.53 Short-term targeting is also sufficiently robust, but for different reasons. As is set out in the next 

section, there are so many factors dictating what should or can be achieved in the short-term, that 

thematic targeting has proven to be relatively straightforward. 

8.54 The RHS is addressing all public investment in new affordable housing. As a consequence, 

provision through investment of resources outside the SRHP is also covered, although the decisions 

on targeting of this will be in the hands of organisations other than the RHB or EERA. This is 

anticipated to apply principally to capital investment by local authorities and English Partnerships 

(EP), although others may emerge during the period of the RHS. The low cost home ownership 

programme for First Time Buyers and announced in ‘Homes for All,‘ is being run by English 

Partnerships and is programmed to start in 2006–07. It is important that all such bodies work in 

cooperation to ensure that their investments complement one another, and are coordinated within 

the framework of the RHS to address common objectives. This applies particularly where the 

investment, such as EP’s in low-cost home ownership, is geared to specific products or sectors of 

the market. 

8.55 The table below sets out the thematic targeting proposed in the RHS. It should be remembered 

that its purpose is to set the emphasis or focus of key outcomes being targeted through the public 

investment. A large proportion of the schemes benefiting from investment will inevitably produce 

outcomes under more than one theme, so that the overall benefit under each theme will tend to 

be considerably greater than implied by the figures in the table. In other words they would appear 

to add to more than 100%, because the outcomes of investment are not simply a division of a 

total benefit. 

8.56 However, for practical reasons, it is important for the RHS to provide clear guidance. Therefore the 

table does divide up the overall pot of funding in simple terms, and it should be remembered that 

this establishes the primary outcome targeted, but not all the beneficial outcomes taken into 

consideration when selecting schemes for investment. In other words, the percentage figures 

should be seen to represent a minimum share of investment targeted on each theme. 

8.57 The Government has confirmed that arising from the 2004 Spending Review and in recognition 

of the housing pressures in the Region, the East of England will see a substantial increase in 

resources for housing for the investment period 2006–08. 

8.58 The process to develop an allocations methodology to direct this investment has been subject to 

separate regional consultation and has had to take account of both what the Government expects 

to see from its increased investment to the Region (particularly for the Key Worker Living 

Programme) and what stockholding local authorities need to deliver the outcomes of their

Options Appraisals and achieve the decent homes standard. These two factors and the resulting 

investment required have to be considered as absolute. Proportions of investment for the other 

themes have to be set in relation to these. 

8.59 The draft RHS was unable to take account of the total amount of regional funding and the 

proportion of total investment needed for Key Workers and Local Authority Decent Homes as they 

were uncertain at the time of writing. Subsequently the RHS has been able to take account of 

both stakeholder views and these absolute requirements to arrive at a longer-term view of the 

proportions of investment for each theme. It has established indicative percentage shares of the 

Single Regional Housing Pot, thereby setting the direction of travel. The exact percentages in any 

investment cycle will be completed by EERA/RHB within the investment plan to be presented to 

Ministers. 

Figure 18. Investment themes indicative targeting 

* Includes refugees, migrant workers, Gypsies and Travellers 

** Subject to review as the Region’s Supporting People Strategy evolves 


Indicative share of Single 

Regional Housing Pot 

Theme to 2010 (%) from 2010 (%) 

Growth 20 25 

Local need/homelessness 20 20 

Regeneration 10 10 

Rural 10 10 

Key Workers 14 5 

Supported housing 8 15** 

Existing stock 15 10 

BME* 3 5 

Total 100 100 

8.60 Targeting and policy within the individual themes are handled in the sections below. They also 

provide an indication of the basis for target levels of investment. The figures are aspirational, and 

will be achieved only if sufficient numbers of appropriate schemes can be developed. The longerterm 

figures from 2010 will also be subject to testing and review as experience develops and the 

results of further research provide evidence on the Region’s emerging needs and priorities. 

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Growth 

8.61 Three of the Growth Areas designated by the Government lie wholly or partly in the East of 

England. In reality, this has merely added planned growth to the massive growth occurring across 

almost the whole region as a consequence of economic and demographic pressures. 

8.62 Most of this growth will be in the form of housing provided by the market for direct purchase and 

owner occupation; and a substantial proportion will be accommodating households migrating into 

or within the Region. It is anticipated that relatively few migrants will be seeking social rented 

housing, although there should be more demand from the intermediate market. 

8.63 The East of England Plan sets out the spatial distribution of new housing to accommodate growth. 

A substantial proportion of affordable housing will be required as part of this new housing growth, 

as per policy in the East of England Plan. Although this suggests a large volume of capital subsidy 

to support this volume of affordable housing, the proposed policy with regard to planning 

obligations should lead to relatively less subsidy required from the SRHP. 

8.64 On this basis, the long-term target level for funding under the growth theme is set at 25%. In the 

short-term, it is set even lower, reflecting the expected delay in major planned growth 

developments coming through the pipeline 

8.65 Affordable housing under the growth agenda is essentially aiming to accommodate need that is 

not generated from within the locality. It is also to be generally concentrated in strategically 

selected locations in specific local authority areas. In practice this will mean that a scheme coded 

‘growth’ will be expected to demonstrate that future occupants will be coming from a larger area 

than the local authority which hosts the scheme. This can be either through inter-authority 

nomination agreements and/or evidence that there is in-migration of households into the area of 

allocation i.e. the local authority who need affordable housing. 

8.66 The geographical distribution of investment under the growth theme should be tied 

directly with the phased development of strategic housing schemes in accordance with 

the East of England Plan. 

Local need and homelessness 

8.67 Local need is defined as need arising within the existing population of an area. It includes the 

enhanced need for affordable housing generated by house prices increases, as a consequence of 

unsatisfied demand from external growth pressures. The reason for this strategically is that it can 

be addressed directly by the respective housing authority, and does not require the cross-boundary 

cooperation inherent in the growth theme. This does not preclude the development of cross 

boundary working and good practice. 

8.68 Rather than being addressed separately, as sometimes in the past, homelessness is included in this 

theme, partly because it is part of local need, and partly because, in order to enhance their 

sustainability, investment should never be in housing schemes wholly dedicated to homeless 

households. 

8.69 The primary means to deal with homelessness in the Region is through the range of measures able 

to prevent households becoming homeless through homelessness prevention strategies. This is 

particularly relevant for vulnerable people leaving institutions. Secondly, lettings should be 

managed to accommodate homeless households in well-functioning communities, whilst also 

helping to achieve mixed communities.

8.70 Investment under this theme should be targeted geographically on the basis of the distribution of 

need, but only when the evidence base in the Region has been improved to the point that needs 

in different areas can be assessed on a common basis. This is a longer-term priority for action. In 

the short-term, investment should be targeted on those areas that can demonstrate the most 

pressing problems and have effective delivery arrangements in place. 

Regeneration 

8.71 Across the East of England there are many areas with pressing needs for physical, social and/or 

economic regeneration including; the new towns, declining industrial centres and the ports. 

Undoubtedly they need substantial volumes of capital investment, and often public investment to 

help kick-start and support the regeneration processes. It is not, however, a policy in this RHS 

simply to target investment in housing on all areas requiring regeneration. 

8.72 Investment under the regeneration theme requires several criteria to be fulfilled: 

• evidence that housing has a role to play in the regeneration process 

• evidence that affordable housing is actually needed and would contribute positively to 

regeneration outcomes (i.e. would not simply be meeting general local needs) 

• evidence that public investment is needed for the affordable housing 

• a clear strategy demonstrating how the housing scheme is integrated into a comprehensive 

plan for the area; this will require clarity on the respective roles of rehabilitation and 

provision of new housing on brownfield sites. 

8.73 Targeting investment for regeneration will need to follow the distribution of schemes fulfilling 

these criteria at any one time. The initial target of 10% of investment under this theme will need 

to be kept under review as regeneration schemes emerge. 

Rural 


8.74 Housing needs arising in rural areas cannot be addressed simply by providing new affordable 

housing where they occur. This is because the long-term sustainability of rural communities is not 

guaranteed. For example, there may be questions over the quality of life of financially vulnerable 

households living in remote villages with difficulties in accessing essential facilities that are 

provided only in larger settlements. 

8.75 The RHS requires the targeting of investment under the rural theme to be entirely on 

housing schemes where the sustainability of the community and the residents’ lives 

within it can be demonstrated. This may mean that increasingly, some rural housing need is 

met in market towns. Eligible schemes should only arise from evidenced-based strategic 

approaches to finding the best solution to the needs. 

8.76 It is difficult to form a regional view of rural housing need. It is not possible to aggregate local 

housing authority surveys due to differences in timing, methodology and the fact that ‘rural‘ need 

may not be separately identified. The very local surveys carried out by Rural Housing Enablers are 

done to support local priorities, and are not conducted systematically across the Region. A rural 

data collection project was funded by the Countryside Agency in early 2005, which is now being 

developed through the Region’s Rural Affairs Forum. The findings from this are included within the 

context document. 

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8.77 Similarly, although much progress has been made in recent years to build up a development 

pipeline of rural schemes coming forward for investment, it is unclear how much the capacity for 

investment can be increased, regardless of need. In the meantime, the RHS proposes the targeting 

of 10% of investment under this theme, which is believed to ensure a volume of output in keeping 

with that achieved in recent years. 

8.78 The rural target will be to provide a minimum amount of 600 units to be produced in 

2006–08, to be focused 75% in settlements of below 3,000 population and 25% in 

settlements from 3,001 up to 10,000 population. This distribution takes account of the 

distribution of rural settlements, the pattern of previous allocations and the predicted future 

pipeline. 

Key Workers 

8.79 The Government’s current Key Worker Living initiative has challenged the East of England to invest 

substantial sums of public money in new affordable housing for designated groups of public 

workers. Regional research has indicated a long-term need for housing for these groups, some 

760 new homes annually, which is lower than the current programme. Nonetheless, there is 

evidence that employers are experiencing recruitment and retention problems with a much wider 

spectrum of workers in the public sector, and similar problems are threatening the workforce base 

for economic development in the Region’s ‘hot spots‘. 

8.80 Although this broader definition of Key Workers should in theory cover those picked up by 

assessments and accommodation of ‘local needs‘ or ‘growth‘ (see above), failure to provide 

housing for them could have far-reaching consequences for economic development and service 

provision across the Region, and hence for the sustainability of many of its communities. The RHS 

therefore proposes a more rigorous investigation at local, sub-regional and regional levels of the 

Key Workers in housing need and of the best means to address these. 

8.81 The target figures in the table for Key Worker investment relate to the Government’s definition of 

this group. The figures will need revising as the results of this proposed investigation emerge. 

8.82 The planning of all housing schemes benefiting from public investment should consider local and 

wider needs for Key Worker housing, using whatever definition is recognised locally as 

appropriate. Where private sector workers are concerned, employers should be involved, with a 

view to contributing financially to employee housing schemes. 

Supported housing 

8.83 Most supported housing will require revenue support in the form of SP grant. However, this will 

not always be the case, and the potential for tying investment to other forms of revenue support 

should always be taken into account in targeting and investing public capital. In as much as 

investment will depend on the availability of SP resources, this imposes a restriction on the extent 

to which targeting can take place under this theme. 

8.84 It is essential to ensure that the capital and revenue (via SP) spending plans are properly coordinated. 

This is especially so in relation to ensuring that future needs brought about by 

demographic changes, and an ageing population are properly considered. There are other sources 

of revenue to consider such as the recycling/remodelling of existing accommodation.

8.85 In the longer-term, the limited possibilities of recycling SP resources into new schemes will tend to 

impose an upper limit on capital investment. At this point in time however, it is impossible to 

estimate what this might be and therefore the target level has been set at a nominal 15%. In the 

short-term, the target has been set at 8%, reflecting the extent to which uncertainty over revenue 

funding is preventing schemes needing SP grant from being prepared. 

8.86 It is of urgent importance that the SPERG develops a regional strategy for use of SP resources, tied 

to a development plan into which capital investment could be targeted. No geographical targeting 

can be undertaken without such a strategy. 

8.87 Initial indications point to a central role for investment in the remodelling of existing supported 

housing schemes. Properly anchored in an over-arching strategy, remodelling has the potential for 

making best use of existing properties and revenue resources, and also for creating 

accommodation best tailored to the residents’ needs. 

Housing for Black and Minority Ethnic communities 

8.88 Households from BME communities should have the same level of access to housing as the wider 

community in the East of England. However, research in a few areas of the Region has 

demonstrated that this is not always the case. Part of the problem is the variety of factors which 

lead to members of BME communities effectively not being able to exercise the same choice in 

housing. Other culturally specific factors can lead to special housing needs for which there is 

simply insufficient provision. 

8.89 Since the RHS aims to ensure that all people in the East of England have access to good 

housing, it proposes that, wherever appropriate, specific investment should be targeted 

on BME needs where these would not otherwise be addressed. 

8.90 The implementation of this policy will be challenging, given the poor quality of information 

generally available on this issue; it also demands that housing providers and enablers develop 

better channels of communication with the communities whose needs are not being heard. This 

is evidenced in the poor response of recent years to regional initiatives inviting bids for schemes 

to be funded under this theme. 

8.91 Until a better regional evidence base has been developed, it is proposed that up to 3% 

of investment is allocated under this theme, and that it should be targeted on 

Bedfordshire and Essex, where recent research work has created a basis for enabling 

appropriate schemes to be brought forward. 

Housing for refugees 


8.92 SRHP investment provision for refugees is informed by the regionally commissioned research into 

the accommodation needs of refugees. Any specific provision for refugees would be encompassed 

within the BME community theme as detailed above. 

8.93 The research has highlighted the types of areas where the asylum seeker population is located. 

Once permission to settle has been received refugees may seek social housing, and may be more 

likely to do so in these areas. Access to social housing in suitable types and locations in these areas 

must be kept under review, with EERA/RHB considering how investment should be targeted, 

particularly in the dispersal areas and other areas with significant numbers of asylum seekers. This 

should be linked to the emerging NASS accommodation strategy. 

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8.94 This is not necessarily about specific ‘separate‘ provision in social housing, but about access to 

provision in the existing social housing stock and the private sector. In particular in relation to the 

private sector, where refugees may be likely to populate ‘vulnerable‘ groups in poor quality private 

sector housing and thus become linked to the decent homes target. 

8.95 The link with SP funding must also be managed, as many refugees will require additional support 

to take up and maintain a tenancy. 

Housing for migrant workers 

8.96 The EEDA sponsored research into the contribution of migrant workers to the Region’s economy, 

although unfinished at the time of writing, has highlighted accommodation issues in the emerging 

findings. 

8.97 Whilst these are weighted towards working with employers of temporary migrant workers there 

may be a need to pick up emerging issues through RHDG (of which EEDA is a member). 

Gypsies and Travellers 

8.98 The needs of members of the travelling community who choose to settle and live in permanent 

housing should be addressed under policies for the BME communities to which they belong. As a 

subset of the BME investment theme, the RHS proposes a coherent approach being applied to 

public provision of sites for travellers’ mobile homes. 

8.99 The Government is committed to ensuring that adequate provision is made for the housing needs 

of Gypsies and Travellers, and legislation will now enable SHG to be used for capital funding of 

sites for mobile homes. However, the paucity of evidence of demand in the Region, combined with 

a lack of detailed information on the funding framework, mean that it is very difficult to establish 

a basis for targeting investment. Specific measures to address the issue are set out in the Housing 

Act 2004 and new draft planning circular requiring local authorities to assess the accommodation 

needs of Gypsies and Travellers in their area, and to produce a strategy detailing how those needs 

can be met. 

8.100 The EEDA commissioned research that looked at the general accommodation needs and 

aspirations of Gypsies and Travellers. This research has provided a framework for future research 

and policy making in the Region. Several local authorities within the Region have completed or 

commissioned accommodation needs assessments of local Gypsy and Traveller communities, 

although the results of only a few were available at the time of writing. Incorporation of policies 

and proposals for Gypsy and Traveller provision into the RHS will have to await a review based on 

comprehensive evidence from across the Region. 

8.101 The ODPM has added funding previously allocated through the Gypsy Site Refurbishment Grant 

to the Single Regional Housing Pot to support the provision and maintenance of sites for Gypsies 

and Travellers. Although the RHS can be expected to focus investment in areas of high need, this 

funding must also fit alongside investment in other services in order to create a complete package 

for meeting the wider needs of Gypsies and Travellers in a sustainable manner.

Geographical targeting of investment 


8.102 The RHS proposes no overall levels of investment targeted on individual geographic areas. 

It acknowledges the significance of the Growth Areas designated by the Government, and that 

strategic planning in these areas is likely to increase the opportunities for investment there. 

8.103 However, as demonstrated in consideration of the various investment themes above, the drivers 

for their geographical targeting vary considerably. This would make any distribution of funding 

independent of the individual themes, somewhat spurious. 

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9 Implementation, managing and 

monitoring the RHS 

Priorities for delivery 

9.1 Publication of this document is merely the beginning of a process. The value of the RHS will be 

judged entirely on the basis of its implementation. This is encapsulated in two questions: were its 

objectives achieved, and did it provide the appropriate framework for those charged with 

delivering against objectives? 

9.2 A series of actions and recommendations for the implementation of this RHS are proposed in each 

section, and a full list can be found at the end of this section. In terms of prioritisation of these 

actions, the most pressing need is for the creation of a detailed Action Plan to set out the agenda 

over the next few years. This will require a process of careful prioritisation, attribution of 

responsibility, identification of targets and milestones, and setting timescales. 

9.3 This action planning process should be completed by December 2005. This will allow for the 

following matters to be taken into consideration: 

• the arrangements for governance, management, monitoring and review of the RHS are 

subject to change pending confirmation from Government on the merger of regional 

planning and housing functions. Although we fully anticipate a positive announcement, 

confirmation is required before new arrangements can be put in place. 

• the action planning timescale should allow full involvement of all those critical to the 

implementation of this RHS. This timescale will allow for communication to facilitate 

understanding and co-operation amongst these delivery partners. 

9.4 Given the potential new roles for EERA in regional housing, this action planning process should be 

led by EERA, working in conjunction with regional partners involved in the preparation of the RHS 

and with wider networks of key stakeholders. 

9.5 The sub-regions are an integral part of this structure and have been instrumental in shaping both 

the RHS. They will also be significant delivery agents through their own sub-regional strategies and 

the investment planning process. 

9.6 The implication is that sub-regions will need to monitor the progress of their own strategies and 

ensure that effective linkages with the RHDG are maintained. 

Short-term delivery 

9.7 At any time in the future, interest in pursuit of the RHS will be lost if it is not perceived to be 

making a significant difference to what is happening in the Region. It is imperative that those 

responsible for delivering strategic objectives are seen to be doing so in the early years. This will 

apply to all of the Action Plan, but the most significant or visible success which is 

required is to make progress towards the delivery of the step-change in increasing the 

supply of affordable housing in the Region.

Delivery at local level 

9.8 The broad-brush approach of a strategy covering the whole of the East of England does not permit 

the degree of specification in terms of outputs and outcomes that is required by those charged 

with delivery on the ground. This is the role of the sub-regional strategies which have been created 

and developed in parallel with the RHS itself. 

9.9 Although short-term delivery may be achieved on the basis of the pipeline of development 

schemes in place when the RHS was first formulated, successful delivery from then on will depend 

on the extent to which the sub-regional strategies can create an effective bridge between regional 

policies and local action. 

Managing the process of delivery 

9.10 The RHS has been prepared in anticipation of a positive announcement from the Government 

during Summer 2005, on its proposal to merge the Regional Planning Body (EERA) with the 

Regional Housing Board. 

9.11 Implementation of this change will be led by the EERA. In the East of England, EERA already has 

been very closely involved in the development of the RHS and has managed the development of 

the draft East of England Plan. Implementation of the merger will build on this, with EERA taking 

full responsibility for the development and management of the RHS and securing stronger links 

between planning and housing delivery. 

9.12 The following changes are proposed by EERA, to support this new function: 


• EERA itself will take on the role of Regional Housing Board alongside its existing role as 

regional planning body. 

• the existing EERA Housing and Sustainable Communities Panel will be increased in size and 

breadth of representation. The Panel will be responsible for providing leadership, prioritising 

investment and scrutinising performance, on behalf of EERA. 

• a technical advisory group, to be known as the Regional Housing Delivery Group (RHDG), 

will be set up to support EERA. The RHDG will draw on expertise from practitioners drawn 

from a range of organisations involved in delivery. This group will build on and replace the 

existing Regional Housing Forum, and will be very closely involved in the management of 

the Action Plan, working through ‘task and finish‘ sub-groups to deliver specific projects. 

• an increased resource within EERA’s secretariat will support the above groupings and 

manage the day-to-day work of implementation and monitoring, securing greater 

consistency between planning and housing delivery. 

9.13 The detail of how these revised structures will work is subject to confirmation of the Government’s 

intention to proceed along these lines. Despite the lack of this operational detail at the time of 

writing, we can anticipate that EERA’s new role will require the continued involvement of the 

widest possible grouping of housing stakeholders, respecting their individual interests while 

imposing expectations regarding adherence to the guidelines of the over-arching RHS. 

9.14 Similarly, EERA’s new role will also involve acting as custodian of the interrelationship between 

regional planning and housing strategies and the manner in which the former works through 

smaller geographical levels into the delivery of housing objectives. A key function in this respect 

will be the task of ensuring that the various delivery figures relating to future housing provision 

are harmonised, using a shared evidence and monitoring base. 

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Monitoring and review of the RHS 

Monitoring 

9.15 Monitoring of the RHS is essential to test the effectiveness of implementation of the strategy. The 

key measures of success to be monitored need to relate to the RHS’s overall vision, and appropriate 

indicators will need to be developed that will help monitor strategy implementation in the 

following key areas: 

• balancing housing supply with need and demand 

• bringing the Region’s housing stock up to decent standards 

• ensuring that communities are sustainable. 

9.16 As part of its new responsibilities as Regional Housing Body, EERA will need to have an up to date 

knowledge of trends in terms of house prices, household incomes, interest rates, demographic 

changes and other economic, social and cultural changes that may affect housing need, supply 

and demand. This will inform the process of monitoring. 

9.17 EERA is required to submit an Annual Monitoring Report (AMR) to the Secretary of State by the 

end of February each year as part of its role as Regional Planning Body. The main purpose of the 

AMR is to monitor the implementation of the RSS (known as the East of England Plan). Given the 

linkages between RSS and RHS, there is merit in a joint approach to monitoring specifically in 

relation to affordable housing delivery. Similarly the RES, also developed alongside the RSS, will 

have many shared monitoring requirements in terms of the regional economy and labour markets. 

9.18 Further work is needed to identify more exactly the shared monitoring requirements of 

the RSS, RHS and RES. EERA is planning a short study to this effect which will identify a set of 

common indicators. Data relating to these indicators can then be drawn together annually, and 

reported on in an extended AMR. This will form a fundamental part of the monitoring of the RHS. 

9.19 The RHS Action Plan, will inform the exact timing and nature of monitoring activity beyond that 

covered in the AMR. This should also be completed on an annual basis by EERA in conjunction 

with the technical advisory group, RHDG. 

Review 

9.20 The East of England RHS will be subject to review at an appropriate medium-term planning 

horizon before the end of the period of this strategy 2005–2010. An earlier review may be 

triggered by: 

• any changes in the East of England Plan or other complementary strategies which alter the 

basis for the RHS 

• unanticipated changes in the housing market, economy or other external environment of 

the RHS 

• significant changes in national housing policy. 

9.21 There is also the possibility for a more targeted review and/or update of specific sections or policies 

in the RHS as and when required. This may also be triggered by changes to the East of England 

Plan, changes to the external context for the RHS, or improvements to the evidence base for the 

RHS which change the basis for a specific policy.

9.22 The responsibility for managing the review will be EERA’s, with implementation support from the 

technical advisory group (RHDG). 

Risk and contingency planning 

9.23 In advance of monitoring the implementation of the RHS, it is possible to identify a series of 

significant risks to success. These are set out in the table below. Actions are taken forward to the 

following section. 

9.24 In prioritising actions it will be necessary to assess both the likelihood of the risk occurring and the 

potential impact on the RHS. 

Strategic risk Operational risk Action 

Non delivery of total 

planned new 


Opportunity costs of 

environmental 

enhancement 

Lack of climate of 

certainty for 

affordable housing 

provision 

Public resistance to regional 


Resistance to development 

restricts local land supply in 

general 

Lack of infrastructure 

development 

Inappropriate planning 

applications 

Environmental changes e.g. 

flood risk 

Quality requirements impact on 

cost overall 

Rise in market prices making 

housing even less affordable 


Review consultation 

arrangements post the East of 

England Plan, Examination in 

Public 

As above 

Seek resolution regionally 

through the East of England 

Plan and locally through Local 

Development Frameworks 

Shortage of construction labour Determine a policy and action 

plan to deliver the skills that will 

be needed to increase the 

quantity and quality of homes 

in the East of England (see 

action plan) 

Seek clarity within local 

development frameworks 

To be taken forward through 

regional work on the Code for 

Sustainable Buildings 

As above 

Monitoring role through the 

Annual Monitoring Report and 

adjustments to regional policy 

79

80 

Strategic risk Operational risk Action 

Lack of climate of 

certainty for affordable 


‘Affordable‘ housing does 

not meet identified needs 

Deteriorating condition of 

existing stock 

Lack of management and 

monitoring of the RHS at 

regional level 

Delivery problems at subregional 

level 

Rise in market prices making 

housing even less affordable 

Fall in market prices impacting on 

delivery of market housing, and 

thus affordable housing through 

section 106 

Section 106 policy does not work 

effectively 

Inadequate public resources 

including SRHP funds for capital 

investment 

Long-term shortage of SP revenue 

funding 

Risks inherent in decisions on 

investment themes, for example 

decisions on percentages, low for 

regeneration and impact on areas 

requiring regeneration 

Risk associated with not investing 

in new affordable 

housing/homelessness and 

economic stagnation 

Balance between social rented 

and intermediate housing tenures 

is inappropriate 

Failure to meet decent homes 

targets by 2010 

Failure to identify renewal areas Development of regional data and 

information tools to support local 

targeting of more detailed surveys 

RHDG fails to ensure actions are 

carried out 

One or more sub-regions fail to 

develop a common agenda 

Local authorities do not follow 

sub-regional or regional strategies 

Monitoring role through the 

Annual Monitoring Report and 

adjustments to regional policy 

As above 

Promote examples of Good 

Practice 

Improved evidence base to inform 

subsequent spending reviews 

Review alternative sources of 

funding 

Review delivery outcomes as part 

of the Annual Monitoring Report 

Continued investment in new 

affordable housing provision 

Review delivery outcomes as part 

of Annual Monitoring Report 

Public investment in existing 

stock, encouragement of the 

private sector, development and 

use of new loan products 

Robust monitoring framework 

with identified responsibilities 

and reporting mechanisms 

Early awareness through RHDG 

and appropriate support within 

resources available 

Dialogue through RHDG 

Political changes to policy Dialogue through RHDG

Actions to be scheduled and prioritised 

9.25 A series of actions arise from the RHS which will need to be carried out in order to ensure the 

success of the RHS’s implementation. The first action of all will be to turn this list into an action 

plan, with all tasks scheduled in terms of prioritisation and roles and responsibilities determined. 

9.26 It will be vitally important to identify resources for these actions. In particular actions may require 

resources to be combined with those from other agencies. Funding from partner public sector 

bodies may be limited, variable or subject to different timescales throughout the life of the RHS. 

It will be necessary to make such linkages explicit with clear timescales attached. The Action Plan 

must also recognise the limitations of funding from other sources – regional agencies can only 

act within their remit. It will be particularly important to align funding with sources such as EERA 

and EEDA. 

9.27 Actions will need to be given a priority rating and be assessed for risk. 

The Plan will need to adhere to the format required to achieve ‘Fit for Purpose‘ as is used for local 

authority strategies. 

Action 


Develop a strategic policy framework for achieving decent homes and renewal in the 

private sector. 

Develop a strategic policy framework for use of Disabled Facilities Grants. 

Develop a strategic policy framework for balancing quantity and quality in new 

developments. 

Develop a strategic policy framework for a common approaches to planning obligations 

Develop a strategic policy framework for scheme financing and cross-subsidy 

Develop a strategic policy framework for using modern methods of construction 

Develop a strategic policy framework for sustainability in rural areas 

Develop a strategic policy framework for engaging BME communities 

Develop a strategic policy framework for supported housing 

Develop a strategic policy framework for site provision for Gypsies and Travellers 

Local authorities should research and keep a register of land potentially available below 

market value to assist in long-term planning of affordable housing supply. 

Local planning frameworks need to develop explicit policies regarding the use of s106 

agreements to reflect housing sector needs. Good practice from the sub-regional 

development of the pipeline project action plan will be shared through the RHDG. 

EEDA, the development industry, the CITB, Learning and Skills Councils, Sector Skills 

Council for Construction, Inspire East and UCATT should determine a policy and action 

plan to deliver the skills that will be needed to increase the quantity and quality of 

homes in the East of England. 

81

82 

Action 

Regional housing providers should work through Inspire East and the Sustainable 

Construction Forum, to develop a regional perspective on the ‘Code for Sustainable 

Buildings‘. As the Region’s Planning and Housing Body, EERA should take a co-ordinating 

role that is linked to the responsibility for the Annual Monitoring Report 

Arrangements should be created through which private sector employers in areas of 

housing stress in the Region could ensure affordable housing for key employees through 

the provision of capital subsidy for their housing 

The RHDG will work with regional partners, including Inspire East to develop and 

promote a financial appraisal tool and ‘regional experts‘ to develop more effective 

use of s106. 

The RHDG will address the ‘design deficit‘ within its current structure, and RHDG will 

engage with Inspire East and CABE to support the development of Quality Criteria 

Housing enablers, providers and planners should ensure that quality standards are an 

integral part of discussions on the economics of scheme development 

The Housing Corporation will use improved methods of procurement to achieve higher 

output balanced against quality of product, and continue its work with housing 

associations to achieve EcoHomes standards 

The regional Annual Monitoring Report will incorporate quality as well as quantity 

measures, and investigate the use of appropriate indicators. Market intelligence gathered 

will inform regional policy on housing as well as planning. The report will also include 

progress against EERA/RHB investment targets. 

Regional partners should work with EEDA to evaluate the Suffolk Regeneration Trust and 

whether the approach could be replicated elsewhere in the Region. Furthermore should 

evaluate other loan products and good practice and engage at regional level with 

financial service providers to seek solutions to private sector stock condition issues. 

RHDG will consider the appropriate lead agency 

The RHDG will work with the National Housing Federation to promote a wider 

understanding of its members’ social investment capacity through iN business for 

neighbourhoods. 

Local authorities should consider whether any additional income from council tax 

charges on empty homes can be recycled into bringing empty homes back into use. The 

EERA/RHB will encourage the development of Empty Homes Charters and may consider 

innovative schemes to bring empty homes back into use. These should be linked to 

performance on Best Value Performance Indicator BVPFI64. 

The RHDG will work with partners to inform future guidance to housing providers 

on the assessment and provision of accessible homes in the East of England. This will 

include developing policy H2 in the draft East of England Plan. 

The RHDG will work with Health Professionals developing the Regional Health Strategy 

to develop a better understanding of needs and the resources available to meet them. 

In addition, improved joint working and planning between housing authorities, primary 

care trusts and strategic health authorities is needed, particularly when boundary 

differences occur.

Action 


RHDG through its membership will encourage the coverage of Home Improvement 

Agencies across the whole of the Region. 

The RHDG has established a task group to identify BME housing needs across the Region 

in order to underpin future investment. The aim is to identify existing studies, the gaps 

in our collective knowledge and commission research to develop the regional and 

sub-regional evidence base. The task group will report regularly to RHDG and research 

findings will inform future investment decisions. 

RHDG will promote good practice from regional research. 

The RHDG will work with EERA to develop regional policies based on further research 

into the accommodation needs of Gypsy and Traveller communities. 

The ‘balance‘ of housing tenure types will be monitored through the Annual Monitoring 

Report. 

Local housing authorities should consider whether private sector housing no longer 

required by NASS is appropriate for use as temporary accommodation 

RHDG will support the development of choice based lettings through sub-regions by 

exchanging good practice advice 

RHDG will ensure that its membership encompasses private sector landlords to ensure 

that issues in that sector can be properly addressed 

RHDG will ensure that significant plans for expansion in higher education and the 

potential impact on the housing market are monitored through the relationship with 

EEDA 

The RHDG will ensure that the dialogue established with the Region’s Rural Affairs 

Forum in developing the RHS is continued through the links with the Rural Housing 

Enabling Network and the Rural Affairs Forum. 

RHDG will review the knowledge from the Region’s homelessness strategies for good 

practice and research the incidence of youth homelessness through its membership. 

RHDG will review links with other strategies to ensure co-ordination of action on 

homelessness at regional level. This will include work on the housing pathways for the 

strategy on Rehabilitation of offenders. RHDG will pilot sub-regional approaches to 

tackling homelessness and the use of temporary accommodation 

RHDG will ensure that the dialogue with SPERG is maintained and good practice is 

shared along with the knowledge and development of future research. 

The development of a regional evidence base should incorporate housing market 

intelligence and stock condition data 

RHDG will review the effectiveness of its consultation arrangements, and address any 

weaknesses identified. 

RHDG will ensure that dialogue with sub-regions is maintained, in particular to advise 

of any difficulties in delivering sub-regional strategies and investment plans. 

83

84 

10 Appendix 

Appendix 1 – delivery agents 

Delivery of the RHS on the ground will be in the hands of a multitude of organisations active in 

the housing field: 

• Translation of the RHS into more detailed strategies, plans and policies 

- sub-regional steering groups (housing sub-regions and the Government’s Growth 

Areas) 

- local housing authorities 

- local planning authorities 

• Management of housing: 

- local authorities 

- housing associations 

- private landlords 

• Housing maintenance and improvement: 



- private landlords 

- private households 

• Public investment: 


- the Housing Corporation 

- English Partnerships 

- EEDA 

- GO-East 

- local delivery vehicles in growth areas 

• Land assembly for development: 

- English Partnerships 

- EEDA 


- commercial developers 


• New housing production: 

- commercial developers 

- housing associations.

List of Abbreviations 

ACER Association of Colleges Eastern Region 

AMR Annual Monitoring Report 

ARLA Association of Residential Letting Agents 

AUEE Association of Universities in the East of England 

BME Black and Minority Ethnic 

BVPI Best Value Performance Indicator 

CABE Commission for Architecture and the Built Environment 

CBL Choice Based Lettings 

CIH Chartered Institute of Housing 

CITB Construction Industry Training Board 

DFG Disabled Facilities Grant 

DH Decent Homes 



EiP Examination in Public 


HA Housing Association 

IRS Integrated Regional Strategy 

KWL Key Worker Living 

LDD Local Development Document 

LDF Local Development Frameworks 

LSP Local Strategic Partnership 

MMC Modern Methods of Construction 

NASS National Asylum Support Service 

ODPM Office of the Deputy Prime Minister 

PPG3 Planning Policy Guidance Note 3 

PSA Public Service Agreement 

PSR Private Sector Renewal 

RCC Regional Cultural Consortium 

RES Regional Economic Strategy 

RHB Regional Housing Board 

RHDG Regional Housing Delivery Group 

RHS Regional Housing Strategy 

RSS Regional Spatial Strategy (the East of England Plan) 

SCP Sustainable Communities Plan 

SDS Scheme Development Standards 

SHG Social Housing Grant 

SP Supporting People 

SPERG Supporting People East Region Group 

SRHP Single Regional Housing Pot 

UCATT Union of Construction, Allied Trades and Technicians 

VHG Voluntary Hostels Group 


85

Regional Social Strategy 

the strategy to achieve social inclusion throughout the East of England 



Flempton 


Suffolk 

IP28 6EG 

(01284) 728 151 

www.eera.gov.uk 

2nd Edition 2007

2 

Foreword 5 

Achievements of the strategy to date 6 

Chapter 1 – Vision, aims and objectives 10 

Introduction 10 

Document structure 11 

Who is this document for? 11 

Vision 12 

Aims 12 

Strategic objectives 12 

The regional context 13 

The Regional Social Strategy development process 14 

Timescales 14 

Chapter 2 – An overview of social exclusion 15 

Profile of the region 15 

Definitions 18 

Social exclusion in the East of England, its main causes and impacts 19 

Strategic Objective 1 (SO1): To tackle poverty and reduce income inequalities 19 

i) Who experiences poverty in the East of England? 19 

ii) Main influencing factors 20 

SO2: To promote access to work, tackle low pay and improve conditions of work 21 

i) Barriers to escaping poverty and social exclusion through work 

SO3: To improve the life chances of children from disadvantaged backgrounds and support 

22 

vulnerable young people in the transition to adulthood 25 

i) Child poverty 25 

ii) Parenting 25 

iii) Transition points 26 

iv) Transition to adulthood 26 

v) Education 26 

vi) Health 27 

SO4: To improve the life chances of adults through earning and skills development 28 

SO5: To promote active ageing and reduce social exclusion of older people 32 

i) Housing 32 

ii) Health 33 

iii) Services 33 

iv) Income and the labour market 34 

v) Communities and social networks 34 

SO6: To support the development of sustainable communities 34 

i) Housing 34 

ii) Neighbourhoods and the environment 38 

iii) Cultural opportunities 39 

iv) Crime 39 

v) Health 40

Regional Social Strategy – the strategy to achieve social inclusion throughout the East of England 

SO7: To improve access to services, especially for disadvantaged groups 43 

i) Financial services 43 

ii) Information and advice services 43 

iii) Transport services 44 

SO8: To develop social networks, community assets and promote community cohesion 45 

i) Social networks 45 

ii) Community assets 46 

iii) Community cohesion 46 

Chapter 3 – Effective interventions 47 

SO1: To tackle poverty and reduce income inequalities 48 

SO2: To promote access to work, tackle low pay and improve conditions of work 49 

i) Labour market interventions 49 

ii) Corporate social responsibility 

SO3: To improve the life chances of children from disadvantaged families and support 

53 

vulnerable young people in the transition to adulthood 53 

i) Education 58 

ii) Child poverty 61 

iii) Parenting 61 

iv) Health 62 

SO4: To improve the life chances of adults through learning and skills development 63 

i) Skills for Life 63 

ii) The East of England Skills and Competitiveness Partnership 64 

SO5: To promote active ageing and reduce social exclusion of older people 66 

i) Housing and health 66 

ii) Income 69 

iii) Communities 70 

SO6: To support the development of sustainable communities 73 

i) Housing 73 

ii) Neighbourhoods and the environment 78 

iii) Cultural opportunities 83 

iv) Crime 83 

v) Health 84 

SO7: To improve access to services, especially for disadvantaged groups 86 

i) Financial services 87 

ii) Information and advice services 88 

iii) Transport services 90 

SO8: To develop social networks, community assets and promote community cohesion 91 

i) Social networks 91 

ii) Community assets 93 

iii) Community cohesion 94 

Action plan 95 

Glossary 96 

3

Foreword 


I am pleased to introduce this second edition of the Regional Social Strategy, which builds on the vision 

of its predecessor ‘to achieve social inclusion throughout the East of England’. 

This vision, shared by the Assembly and its partners, recognises that achieving a fair and inclusive society 

is essential to ensuring the balance of economic, social and environmental interests in the region. A socially 

inclusive society is more likely to prosper, thrive and develop sustainably, than one where exclusion and 

inequalities in life chances are left unchecked. 

I am immensely grateful to all those who contributed to the strategic review which produced this document 

and its accompanying action plan. The review was led by members of the Assembly’s Social Inclusion Panel, 

in partnership with a multi-agency project group, with expertise from the statutory, community, voluntary and 

private sectors. Indeed, the diversity of contributors is reflected in the range of activities outlined in the action 

plan, which aims to extend the success of the first Regional Social Strategy to a sub-regional and local level. 

Those first successes have been significant and are addressed in more detail below. The Social Inclusion 

Panel will continue to keep the strategy under review, to ensure that further progress is made against its 

objectives and that its activities continue to respect diversity and promote equality; principles which are 

fundamental to social inclusion. 

The regional landscape within which we must realise our vision is constantly changing and there are many 

challenges ahead. I have confidence, however, in the enthusiasm, dedication and ability of those who have 

contributed to this strategy, and look forward to our continued working together to achieve its objectives. 

Keith Bennett 

Chair, Social Inclusion Panel 


October 2007 

5

6 

Achievements of the strategy to date 


Since this strategy was first published in 2004, stakeholders in social inclusion around the region have 

reported significant improvements in inter-agency networking and co-operation, with organisations 

initially brought together to develop the strategy now working together on its implementation. 

In particular, the following are some of the strategy’s achievements over the last three years. 

A successful bid to the Financial Inclusion Fund 

As part of the £45 million Financial Inclusion Fund announced in the 2004 Pre-Budget Report, a sum was 

allocated to increase the provision of free face-to-face debt advice in England and Wales over the period 

2006-2008. 

Advice UK and Citizens Advice – East Region jointly submitted a bid, drawing heavily on evidence contained 

within the Regional Social Strategy and successfully securing two separate contracts for the East of England. 

Citizens Advice was allocated just under £1 million for the recruitment and employment of 10.5 full-time 

equivalent (fte) debt advisors and Advice UK was allocated just over £0.5 million for recruitment and 

employment of 6 fte debt advisors. This equated to 3 fte advisors for Norfolk, 4 for Suffolk, 2.5 for Essex, 

3 for Bedfordshire and 3 for Cambridgeshire. 

The funding has been used to recruit individuals with no previous advice experience and to provide them 

with comprehensive, fully-funded and nationally-recognised training, thereby leading to a net increase in 

trained advisors in the region rather than displacement of advisors from other funding streams. 

Demand for debt advice remains high in the region with typical waiting times of three-five weeks. Together, 

however, these two advice projects anticipate being able to provide advice to over 4,000 clients over a 

two-year period. 

Development of a regional centre of excellence for sustainable communities 

The Regional Social Strategy was one of the key drivers for the development of Inspire East, the region’s 

centre of excellence for sustainable communities. Established in 2005, Inspire East champions the creation 

of high quality places to live, work and visit. 

It does this by promoting better community and physical development in regeneration areas and areas of 

growth; enhancing skills in sustainable development by sharing knowledge, information and experience, 

and working closely with training providers; improving the quality of projects through benchmarking and 

sharing best practice; and, influencing and guiding policy for sustainable communities. 

Over the last 12 months Inspire East’s achievements include successfully delivering over 2,000 learning 

opportunities, signing an accord with the Construction Industry Council to deliver cross-disciplinary learning, 

supporting a range of professional networks and two regional award schemes and setting up the first regional 

enabling service. The enabling service consists of a panel of experts in sustainable communities who provide 

independent advice and support to projects around the region.


Publication of a Regional Health Strategy 

The East of England is set to experience a period of rapid and substantial growth during the next twenty 

years, which will require a healthy, skilled and economically active population if it is to be sustainable. 

Although people living in the East of England enjoy relatively good health when compared with the rest of 

the country, the Regional Social Strategy highlights pockets of rural and urban deprivation that have costly 

implications for the economy and society – in terms of ill health, fragmented communities, wasted potential, 

lost income and pressure on services. 

One of the Regional Social Strategy's original actions to support sustainable communities was the 

development of Healthy Futures, the Regional Health Strategy. Published in 2005, Healthy Futures 

provides a regional framework of priorities, policies and actions that can support local activity to 

improve health and reduce health inequalities for people living and working in the East of England. 

Access to good quality health services is important to protect and improve the health of the region's 

population. However, some of the most important determinants of health such as education, 

employment, income and housing lie outside the direct influence of health and social care services. 

The Regional Health Strategy, therefore, is less about what the National Health Service (NHS) is doing to 

promote health and treat illness in the region, and more about what can be achieved when the NHS works 

in partnership to address the key determinants of health and health inequalities. It is designed to enable 

policy makers, practitioners and partnerships alike to tackle the determinants of ill health and health 

inequalities to effect long-term change. 

Development of a Single Information Portal for migrant workers 

In 2005 The East of England Development Agency (EEDA) published Migrant Workers in the East 

of England, a piece of research supported by the Regional Social Strategy. Building on this survey 

of migrant worker employment in the region, EEDA have recently developed an innovative package 

of support and advice for migrant workers. The £200,000, 18-month pilot Single Information Portal 

project will help workers from countries such as Portugal and Poland to settle into the East of England 

community quickly and actively contribute to the region's economy. 

The first element of the project to be launched was the Mobile Europeans Taking Action (META) Hotline, 

a telephone service providing information, support and guidance to empower migrant workers and make 

a real difference to their lives in the UK. The META Hotline is being delivered by Keystone Development 

Trust in partnership with Advice for Life, the organisation leading on the wider information portal project. 

Callers to the hotline are connected to advisors who speak Czech, Lithuanian, Polish, Portuguese, 

Russian or English. Advisors are trained to provide information about rights to live and work in the 

UK, accommodation, public services, driving, language training and adult education providers and 

welfare benefits. 

Since its launch, the majority of calls to the hotline have come from the Portuguese, Polish and Lithuanian 

communities and from the counties of Norfolk, Suffolk and Cambridgeshire. Further efforts are being made 

to encourage callers from across the region and negotiations with other regions are in progress to expand 

the service to other parts of the country. 

7

8 


In July an advice line for employers and other people working with migrants was also launched. This offers 

free professional advice on employment and other matters affecting migrants, and the law and procedures 

employers need to follow. Both these services will be supported by a website to be launched in the autumn 

of 2007. 

The Investing in Communities programme 

EEDA’s Investing in Communities (IiC) programme is an example of a long-term regeneration programme 

which seeks to achieve effective co-ordination of funding and interventions. Its key aim is to encourage a 

holistic partnership approach to tackling disadvantage, encouraging the alignment of all available public 

sector resources to deliver agreed strategic priorities. 

Set up in 2004, IiC has helped to deliver the goals of the Regional Social Strategy at two levels – one 

delivering programmes of work across the region, the other providing funding through nine sub-regional 

partnerships. 

As well as taking a national lead on migrant worker issues, as described above, encouraging new business 

and social enterprise is another priority for IiC. In 2005 IiC funded Social Enterprise East of England to 

develop a regional strategy for social enterprise, and is now funding it to act as the co-ordinator for social 

enterprises across the region. Between 2005 and 2007 IiC has been promoting women’s enterprise, 

developing the East of England's first ever women's enterprise strategy, creating the first business support 

directory for women in the East of England and investing £1.2 million with co-funding from the European 

Social Fund in the region-wide Enterprising Women initiative. 

IiC has also funded a range of Community Development Finance Institutions (CDFIs) that offer small-scale 

loans to start-up and growing businesses that are viable but pose too great a risk to secure a bank loan. 

IiC has recently commissioned research into the most sustainable model of providing such funding and 

as a result is preparing to tender for a contract with a single CDFI for a £1 million loan portfolio across 

the region. 

One of the most recent projects from IiC is the Building Communities Fund, a £3 million-a-year regional 

programme that will provide support to communities who want to cultivate assets and take an enterprising 

approach to local regeneration. 

At the sub-regional level IiC works with nine partnerships to ensure that funding is tailored to local needs. 

Each sub-region has its own business plan, and EEDA has committed to investing over £100 million through 

the partnerships between 2007 and 2011. A principal focus is to help people into employment, with £25 million 

going into projects such as skills training, business coaching and tackling work-limiting illness. 

Engaging young people in the governance of the region 

Actions stemming from the Regional Social Strategy have led to the successful involvement of more young 

people in the development of interventions which support their well-being. Following the positive contribution 

made by the UK Youth Parliament (UKYP) representative in 2006/7, the UKYP has again been invited to 

nominate a representative onto the East of England Regional Assembly (EERA) as part of the Community 

Stakeholder group for 2007/8. As well as participating in meetings of the full Assembly, the UKYP member 

will sit on EERA’s Europe and International Affairs Panel.


The Social Strategy has also provided the framework for EERA to support the regional youth participation 

group, YIPPEE, with a number of initiatives to increase its membership and raise its profile. YIPPEE 

is a growing network of professionals crossing sectors and age groups and has been established to 

share good practice and to promote the involvement of children and young people in decision making. 

EERA is also finalising proposals with the Government Office for the East of England (GO-East) to use 

advisors to give a young people’s perspective on regional policy and strategy development. These young 

advisors will provide GO-East and EERA with a ‘youth-proofing’ service to ensure that the views of young 

people are understood and reflected in the work of both organisations. 

9

10 

Chapter 1 – Vision, aims & objectives 

1.1 Introduction 

This strategy sets out the vision, objectives and means for achieving a fair and inclusive society in the 

East of England. In spite of this region’s considerable economic growth and improving levels of prosperity 

for the majority of its population, many areas and people have been left behind. For example, there are 

hundreds of thousands of people living in poverty or experiencing economic difficulty – 25% of pensioners, 

22% of children and 14% of working age adults are in households with incomes below the poverty 

threshold (Households Below Average Income, 1994/5-2004/5, Department for Work and Pensions – 

DWP). Poverty and social exclusion have costly implications for the economy and society – in terms of 

ill health, fragmented communities, wasted potential, lost income and pressure on services. Society has 

a duty to ensure a decent standard of living for everyone and to prevent damaging inequalities in health 

and life chances in general. 

Many local people, together with the statutory and voluntary and community sectors, are already working 

hard to reduce social exclusion in their communities. Local partnerships and community strategies have a 

key role to play in this. This strategy is about regional priorities, policies and actions that can support local 

activity and provide a regional framework for tackling social exclusion across the East of England.


1.2 Document structure 

This second edition of the Regional Social Strategy is structured as follows: 

• Chapter Two provides an overview of social exclusion, its causes and how it is experienced across 

the region, taking into account relevant developments since this strategy was first published. Where 

possible, statistical references first provided in 2004 have been updated 

• Chapter Three explores the ways in which we can intervene most effectively and provides exemplar 

case studies from around the region 

• an accompanying three-year action plan sets out how social exclusion in the East of England can 

be tackled, based on the preceding analysis. 

1.3 Who is this document for? 

Everyone who is concerned with addressing social exclusion has an interest in reading this strategy. 

In particular, it is designed to enable policy makers, practitioners and partnerships alike to tackle social 

exclusion and effect long-term change. It is especially relevant to those who will determine its successful 

delivery through local strategic partnerships (LSPs), local area agreements (LAAs) and sub-regional and 

regional networks, including: 

• Advice Alliance East 

• Commission for Equalities and Human Rights 

• COVER (Community and Voluntary Forum for the Eastern Region) and the wider voluntary 

and community sector 

• criminal justice agencies 

• Disability East (regional disability partnership) 

• EEDA 

• EERA 

• EERA’s LSP Network 

• EERA’s Strategic Migration Partnership 

• employers’ organisations 

• Environment Agency, Forestry Commission, Natural England and other environmental organisations 

• Future East (the regional forum on ageing) 

• GO-East 

• Health and Safety Executive 

• Health Service and Care Services Improvement Partnership – Eastern Region 

• Highways Agency 

• Inspire East (regional centre of excellence for sustainable communities) 

• Investing in Communities partnerships 

11

12 


• Jobcentre Plus 

• Learning and Skills Council 

• Legal Services Commission 

• local authorities 

• MENTER (Minority Ethnic Network for The Eastern Region) 

• Rural Action East and its network of rural community councils 

• sub-regional economic partnerships. 

1.4 Vision 

To achieve social inclusion throughout the East of England. 

1.5 Aims 

• To continue to analyse the causes of social exclusion and describe how it is experienced in this region, 

using the definition established in the first edition of this strategy. 

• To bring together as good practice guidance the evidence for effective intervention at a regional and 

local level, including case studies of positive interventions around the region. 

• To provide a framework for concerted action in tackling social exclusion around the region. 

• To bridge the gap between regional strategy and local action, encouraging ‘ownership’ of the strategy 

by its delivery partners. 

1.6 Strategic objectives 

The following comprise the strategy’s key objectives, many of which are supported by the region’s LAAs 

and the Regional Economic Strategy: 

1. to tackle poverty and reduce income inequalities (SO1) 

2. to promote access to work, tackle low pay and improve conditions of work (SO2) 

3. to improve the life chances of children from disadvantaged families and support vulnerable 

young people in the transition to adulthood (SO3) 

4. to improve the life chances of adults through learning and skills development (SO4) 

5. to promote active ageing and reduce social exclusion of older people (SO5) 

6. to support the development of sustainable communities (SO6) 

7. to improve access to services, especially for disadvantaged groups (SO7) 

8. to develop social networks, community assets and promote community cohesion (SO8).


1.7 The regional context 

The role of the East of England Regional Assembly is to promote the social, economic and environmental 

well-being of the region. Within this context, the Regional Social Strategy is one of a suite of strategies that 

together form the Integrated Regional Strategy (IRS). The IRS provides a clear statement of EERA’s regional 

priorities and an overarching context for the development of regional strategies in the future, including an 

assurance that they will be based on principles of sustainable development. 

As key regional strategies, including the IRS itself, are developed and reviewed, alignment of their parallel 

review processes helps ensure that they remain complementary to each other. The critical importance of 

social inclusion for the economic development of the region, for example, is acknowledged in the Regional 

Economic Strategy which has ‘inclusion’ as one of its strategic goals. 

A new factor in delivering the Regional Social Strategy is the increasing emphasis in the social economy 

on commissioning out social services from the public sector to the private and ‘Third’ sectors. This is a shift 

in government role, at national, regional and local level, from a direct provider of services to an enabler of 

services. Agencies such as the Regional Offender Management Service, the Legal Services Commission, 

the Learning and Skills Council, Jobcentre Plus, EEDA, GO-East, the Strategic Health Authority and local 

area agreement bodies are preparing plans to commission services rather than directly provide services. 

This will increase the number of agencies involved in delivering the outcomes of the Regional Social Strategy. 

Another factor to take into account is the potential impact of the London 2012 Olympics. EEDA’s Economic 

Impact Study of the London 2012 Olympic Games and Paralympic Games (July 2006) suggests that, with 

intervention in key areas, the gross benefits to the East of England from the London 2012 Olympic Games 

and Paralympic Games could exceed £600 million. 

The Olympics represent significant opportunities for the social, cultural and economic development of the 

region, as well as a potential catalyst to focus minds and generate action. If the region is truly to benefit from 

tourism and other business activity related to the Olympics, however, it is essential to have a cross-regional 

and co-ordinated approach to maximising these benefits through key interventions. 

Without such an approach the 2012 

Games could have a potentially negative 

impact on the sustainable development of 

the region. This is due in part to resources 

flowing from the region, and the loss of 

lottery monies – the East of England's 

proximity to the 2012 Games alone will 

not guarantee benefits. There will also 

be some risks for the East of England to 

manage, including a drain of skills from 

the region and competition for funding 

and other resources. 

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1.8 The Regional Social Strategy development process 

A multi-agency project team, drawn from the statutory, voluntary and community sectors developed the 

strategy and carried out the subsequent triennial review resulting in this second edition. Throughout 

the development and review of the strategy the project team has been committed to an inclusive process 

in which a significant and representative number of stakeholders have helped to shape the document in 

partnership with members of EERA’s Social Inclusion Panel. 

The review has drawn widely on questionnaire responses gathered from around the region and on feedback 

from two days’ of action planning sessions. During these sessions participants were invited to comment on 

strengths and weaknesses of the strategy, highlight relevant recent developments for consideration and 

contribute to the strategy’s refreshed action plan. 

The evidence base of the strategy has also been refreshed, with the inclusion of updated statistical 

references, where comparable sources have been identified. 

The following key themes, originally identified by stakeholders as adding value to sub-regional and local 

social inclusion work, remain pertinent and have informed the on-going development of the strategy: 

• raising awareness, engaging in advocacy and ensuring regional commitment to social inclusion 

• clarifying the regional policy agenda and working to achieve coherence 

• working to ensure a concerted approach by regional agencies 

• supporting local action 

• facilitating learning, identifying and promoting good practice and encouraging both evidence-based 

practice and innovation. 

The penultimate theme, in particular, has been a focus of the review, which has sought to engage LSPs, 

the voluntary and community and private sectors, and other local delivery partners, in joint ‘ownership’ of 

an action plan which genuinely reflects local and sub-regional priorities as well as regional and national ones. 

1.9 Timescales 

This strategy is concerned with effecting change over the long-term and as such is looking at a ten-year 

period from its initial publication in 2004. EERA is committed to reviewing and refreshing the strategy at 

three-year intervals, this edition representing the first of those refreshes.


Chapter 2 – An overview of social exclusion 

2.1 Profile of the region 

Communities 

The East of England is a diverse region that covers over 19,000 km 2 and is home to over 5.4 

million people, 43% of whom live in rural local authorities (as defined by the Office of National 

Statistics’ classification of urban and rural local authorities). It consists of medium-sized urban 

areas, many adjacent to Greater London, intermixed with market towns and smaller rural 

settlements; 25% of all England’s market towns are in the East of England region. 

Affluence and deprivation 

The region is commonly assumed to be affluent because it lacks major conurbations or postindustrial 

areas experiencing intense deprivation and poverty. It is in parts subject to growth 

pressures particularly around London and Cambridge, with implications for affordable housing, 

infrastructure and social cohesion. Yet other parts, particularly Norfolk and Suffolk, face 

problems associated with remote, peripheral areas that have limited employment opportunities, 

low wages and lack access to services. There are also significant pockets of urban deprivation. 

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Population growth 

The region has the fastest growing population in England, fuelled by a combination of indigenous growth 

and net in-migration from London. The age structure is typical of England, although there are intra-regional 

variations, with Tendring and North Norfolk ranking in the top ten local authority districts for people aged 65 

and over (Census 2001). 

Ageing 

The population is ageing, with wide ranging socio-economic implications for the region that has the second 

highest number of pensioner households living in poverty. 50% of the regional population is expected to be 

over 50 by 2020 (The Implications of an Ageing Population for the Sustainable Development of the East of 

England, Population Ageing Associates, 2003). Of these it is estimated that 60% will either be disabled or 

a carer for a disabled person before retirement age. Effectively this equates to one third of the region’s 

population (1.8 million people). The Eastern Region Public Health Observatory (ERPHO) estimates that 

60% of all local authorities in the region will experience an increase of up to 4% in their dependency ratio 

between 1998 and 2008. The dependency ratio quantifies the relationship between the economically 

active part of the population and the non-economically active, or ‘dependent’, part of the population. 

Population frailty 

The 2001 census indicated that some 23% of the regional population either has ill health or long-term 

medical conditions. As the population ages that trend is likely to increase. 

Living alone 

The census also indicated that in 2001 38% of the adult population in the region lived alone. This is an 

increasing long-term social trend and has implications in terms of health, housing, well-being and social 

inclusion and the long-term provision of social care in the increasing absence of family support structures. 

Diversity 

While the Black and minority ethnic (BME) population is relatively low, it is concentrated in particular areas, 

eg Luton with a BME population of 28%. There are also significant numbers of isolated groups in rural areas. 

There may be undercounting of minority ethnic communities, eg a large number of migrant workers, primarily 

connected with the agricultural industry, who do not appear on census or other official statistical data. A recent 

Gypsy Caravan Count showed the East of England region to have the highest number of caravans at 3,889, 

representing 24% of the England total (Gypsy Caravan Count, Office of the Deputy Prime Minister – ODPM, 2006). 

Poverty 

There are as many households living in poverty in the region as are to be found in other ‘deprived’ parts of 

the country, indeed as many as in the North East region. In addition, the social and economic features of the 

region have contributed to a rise in over-indebtedness. Pockets of deprivation exist in some rural, coastal and 

urban areas. Structural changes including the loss of an estimated 60,000 jobs in agriculture, the closure 

of important industries and the decline of seaside towns are all contributing factors. The problems are often 

obscured by averaged district level data and it is therefore important to look beyond the headline statistics 

in any analysis of social exclusion.


Some population groups are particularly at risk of social exclusion. These include: BME groups, people with 

disabilities or mental health needs, lone parents, older people, carers, asylum seekers, refugees, migrant 

workers, Gypsies and Travellers and ex-offenders. 

In May 2007 the Government’s Welfare Reform Act received royal assent. It reinforced the commitment to 

achieving an 80% employment rate and proposals relating to people claiming incapacity benefits, lone parents 

and older workers became law. Achieving an 80% employment rate in the East of England would mean over 

the next ten years reducing the number of people claiming incapacity benefits by 66,000 and the number of 

lone parents claiming Income Support by 8,000. The Act also includes the introduction of a new benefit called 

the Employment and Support Allowance, which will eventually replace Incapacity Benefit, and a simplified 

form of Housing Benefit called the Local Housing Allowance. 

An independent report to the DWP by David Freud, Reducing Dependency, Increasing Opportunity: options 

for the future of welfare to work, was published in January 2007. It looks at the Government’s challenge over 

the next decade to meet their 80% employment aspiration, alongside delivering other social goals, including 

most importantly the further reduction of child poverty, and sets out a number of recommendations regarding 

those on Jobseeker’s Allowance, lone parents, those who are sick or disabled and how back-to-work support 

is delivered. In July 2007 the DWP published its green paper In Work, Better Off: next steps to full 

employment, which builds on the measures in the Welfare Reform Act, sets out the Government’s response 

to David Freud’s report and reinforces the principle of rights matched to responsibilities, with work for those 

who can and security for those who can’t. 

For more detailed information regarding the region, visit the Regional Observatory at 

www.eastofenglandobservatory.org.uk. 

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2.2 Definitions 

Social exclusion is about more than income poverty. It is a broad concept that can mean different things 

to different people. The dominant definition in national policy is that of the Social Exclusion Unit (SEU): 

Social exclusion is a shorthand term for what can happen when people or areas suffer from a 

combination of linked problems such as unemployment, poor skills, low incomes, poor housing, 

high crime environments, bad health, poverty and family breakdown. 

(National Strategy for Neighbourhood Renewal, SEU, 2001, updated 2005) 

These problems are mutually reinforcing, and social exclusion is an extreme consequence of what can 

happen when people are exposed to them throughout their lives, often because of disadvantage they 

face at birth. This disadvantage can be transmitted from one generation to the next. 

The SEU (under the Cabinet Office of central Government) preceded the current Social Exclusion Taskforce, 

and was created by the Government in 1997 to reflect its determination to take a cross–government approach 

to improving the life chances of the most disadvantaged in our society. 

In September 2006 the Taskforce published Reaching Out: an action plan on social exclusion, which outlined 

what actions across central Government would be taken to improve the life chances of those who suffer from, 

or may suffer in the future, from disadvantage. 

Social inclusion is the long-term outcome which this strategy is working towards: 

Social inclusion is not quite the mirror image of social exclusion. Social inclusion is sometimes described 

as citizenship, but it also incorporates the idea that people are not only able to make choices, but feel that 

what they choose to do will make a difference to themselves, their families and their communities, ie a 

sense of control. 

(National Strategy for Neighbourhood Renewal, SEU, 2001, updated 2005)


2.3 Social exclusion in the East of England, its main causes and impacts 

A central feature of social exclusion is low income. Poverty is defined as 60% median income after housing 

costs and is associated with many disadvantages that are perpetuated across generations. For example, 

children in low-income households have a higher risk of experiencing unemployment, ill health and low 

income in later life (Households Below Average Income 1994/5-2004/5, DWP). Poverty can carry through 

to old age because people cannot save for their retirement. 

Discrimination is also considered to be a major cause of social exclusion. For example, individuals may face 

discrimination in the work place or in accessing training opportunities. 

Communities can also be discriminated against, not because of who they are but because of where they live or 

what they look like. This in turn can affect access to services and increase social isolation for people already at 

risk of social exclusion, often people with mental health needs, older people, BME communities and lone parents. 

Cultural differences and misunderstanding can create tensions, very often racial, within a community. In 

addition, the common use of the medical model of disability, which focuses on the individual’s condition, 

reinforces negative images and attitudes. In contrast, the social model more helpfully views disability as a 

potential limitation of opportunities to fully participate in society because of society’s barriers. The 2005 report, 

Improving the Life Chances of Disabled People (Prime Minister’s Strategy Unit), has the aspiration that within 

20 years ‘disabled people in Britain should have full opportunities and choices to improve their quality of life 

and will be respected and included as equal members of society.’ 

While some discrimination may occur as a result of individual prejudice and/or ill-informed personal opinion 

affecting the judgement of those who control access to resources, services or work, it can also happen 

at an institutional level, as a result of policies and practices that unintentionally have the effect of treating 

some people less fairly than others. Statutory agencies, whether national, regional or local have a particular 

responsibility to ensure that all people have equity of access. While all public agencies are required to collect 

equal opportunities data across a range of services, we need to better understand how that data is being used 

to effectively intervene and tackle discrimination. 

2.3 – SO1: To tackle poverty and reduce income inequalities 

Income differentials have increased over the past 20 years and the number living in relative poverty 

as increased. Poverty can affect anyone but some groups are particularly at risk. These include some 

pensioners, lone parent families, workless households, people with low qualifications, people who live 

in particular areas and types of housing, some BME groups and disabled people. 

i) Who experiences poverty in the East of England? 

• 34% of all households in the region have an income of £15,000 or less per annum (Paycheck, 

CACI Limited, 2003). 

• People who are working, but who are in poverty, represent a larger group than the unemployed or 

pensioners in poverty (nearly 30% of those living in poverty live in working households) (Households 

Below Average Income 1994/5-2004/5, DWP). 

• An estimated 17% of individuals, 22% of children and 25% of pensioners are in low-income households. 

Overall, an estimated 884,000 individuals in the region are below the poverty threshold (Households 

Below Average Income 1994/5-2004/5, DWP). 

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• It is estimated that one million people in the region cannot afford essential household items (Monitoring 

Poverty & Social Exclusion, Rahman et al, York, Joseph Rowntree Foundation – JRF, 2000). 

• It is estimated there are 118,081 lone-parent households in the region (Census 2001). 

• The number of people claiming Incapacity Benefit in the region, as of June 2007, was 176,778 

(Jobcentre Plus, Office of the Director). 

• On average, benefits represent 35% of the income of lone-parent households, compared to 6% for 

two-parent families and 5% for the population as a whole (Family Resources Survey, DWP, 2006). 

• Unemployment rates for some minority ethnic communities and people with disabilities are over twice 

the regional average rate. 

• Refugees face many challenges such as language, recognition of qualifications and access to training, 

which in turn can impact on employment opportunities. 

• There are pockets of poverty throughout the region, but there is a concentration of low-income wards 

in the coastal areas, the north of the region and some urban areas. 

• Research shows that benefit take-up is lower in rural areas, among home-owners and for certain types 

of benefit, particularly Minimum Income Guarantee/Pension Credit and Working Families Tax Credit 

(Poverty & Social Inclusion in Rural Areas, New Policy Institute for Observatories Social Exclusion 

Partnership – OSEP, 2004). 

• Over-indebtedness and personal insolvency are rapidly increasing in the region. Stevenage, for example, 

has the eighth highest number of individual voluntary arrangements in the country, while Colchester, Great 

Yarmouth and Basildon all appear within the top 20 ranked towns for levels of personal bankruptcy (Town 

Territory Ranking for Bankruptcy, Experian, 2006). 

ii) Main influencing factors 

There are three main factors associated with entry into, or escape from, poverty: 

• labour market events 

Employment and/or change in earnings are the most important events associated with entry into and escape 

from low income. Lack of work is an important risk factor for short-term and persistent low income. Nationally, 

among those of working age on persistently low incomes, 60% are in workless households. Income 

differentials are generally increasing, and there is little earnings mobility for people on low incomes. 

• family-related events 

Divorce and childbirth are also associated with changes in income and/or loss of home. Sometimes work 

events and family-related events are connected: for example a divorce may lead to a loss of work if a lone 

parent cannot make adequate childcare arrangements. 

• civil justice problems 

People who are already vulnerable to social exclusion are also more likely to encounter problems relating 

to rented accommodation, homelessness, welfare benefits, crime, mental health and other ‘civil justice’ 

issues which can exacerbate poverty (Causes of Action: civil law and social justice, 2nd Edition, Legal 

Services Research Centre, 2006).


2.3 – SO2: To promote access to work, tackle low pay and improve conditions of work 

The SEU’s Policy Action Team report, Jobs for All (2000), argued that providing employment opportunities for 

all was the single most effective means of tackling poverty and social exclusion. It showed that when people in 

the bottom fifth of income distribution gained work the chance of them increasing their income was very high: 

almost eight out of ten who had moved from joblessness into work between 1991 and 1995 had moved 

up the income distribution out of the bottom fifth. 

The opportunities to access jobs are unequal. They depend significantly on where people live, their health, 

age, family circumstances and ethnic background. 

• The International Labour Organisation unemployment rate for ethnic minority groups in the East of 

England is twice the regional average. 

• Unemployment rates for disabled people are also much higher than the regional average. Of those 

who become disabled while in work, one in six lose their employment during the first year after 

becoming disabled. 

• In terms of scale, economic inactivity is more significant than unemployment and while the region’s 

overall activity rate is high, only 22.79% of female lone parents are in full-time employment. Overall, 

just 54.15% of all lone parents are either in full-time or part-time employment (Census 2001). Being a 

lone-parent increases the risk of non-employment by 45% with the risk higher in this region than in the 

rest of the country (Disadvantage and Multiple Disadvantage in the East of England, Jäckle on behalf 

of OSEP, 2004). 

• In addition, users of social care services, most notably people with mental health problems, currently 

make up more than half of the recipients of Incapacity Benefit (Reaching Out: an action plan on social 

exclusion, Social Exclusion Taskforce, 2006). The average employment rate for the average UK working 

age population is 74%, which compares with 47% for all people with a disability, but only 21% of people 

with long-term mental illness are in work and this is as low as 12% for people with severe mental illness 

(Labour Force Survey, Nomis, 2006). 

• Employment rates for older workers are also relatively low compared with other age groups. In the past 

20 years, the proportion of men aged between 50 and state pension age who are not working has 

doubled. A third of people in this age group are not working (Winning the Generation Game, Performance 

& Innovation Unit – PIU, 2000). Early exits from work have significant costs to society, in terms of lost 

gross domestic product, taxes and extra benefits. Most of the people who leave work early are not rich: 

almost half receive most of their income from state benefits. They are not in general replacing paid 

work with community activities and can experience growing disillusionment and exclusion (Winning 

the Generation Game, PIU, 2000). In the East of England, economic activity rate among people aged 

over 50 is 38.3% compared with 84% for 25-49 year olds (Labour Force Survey, Nomis, 2006). 

• Over recent years there has been a steady increase in the number of migrant workers coming to the 

East of England, with migrants originating from all over the world making an essential contribution to the 

region’s ongoing economic success. Research has uncovered some appalling stories about the number of 

hours many of them work, the level of pay they receive and the less than equal treatment they experience 

at work. In addition, most migrant workers in the region are working below their skill level, even though the 

skills they possess can be in areas where there are major skill shortages (Migrant Workers in the East of 

England, EEDA, 2005). 

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i) Barriers to escaping poverty and social exclusion through work 

The main barriers include: 

• caring responsibilities 

• quality of work and low pay 

• over-indebtedness 

• access to transport 

• sickness, disability and poor mental health 

• availability of childcare 

• a lack of skills and qualifications 

• English language proficiency 

• discrimination. 

Discrimination can be a major barrier to employment because of race, sex, age, sexual orientation or mental 

health, but it also cuts across many of the other barriers identified above. 

Caring responsibilities 

Almost 10% of the region’s population are acting as unpaid carers, with 3% providing care for more than 

20 hours per week and 2% for more than 50 hours per week (Census 2001). 

Quality of work and low pay 

The rise of a dual labour market in the region, with an increasing number of high level occupations at one end 

of the spectrum and low paid, lower level occupations at the other, means that people can become trapped in 

insecure work, with low wages and poor terms and conditions. 

• A growing body of evidence points to the fact that low pay and job insecurity can have a detrimental effect 

on people’s well-being. 

• Evidence suggests that insecure workers are actually worse off in terms of health than those who are 

long-term unemployed (‘Degrees of Exclusion: developing a dynamic, multi-dimensional measure’, 

Burchardt et al, in Hills et al [eds], Understanding Social Exclusion, Oxford, Oxford University Press, 2002). 

• Almost 30% of those living in poverty live in working households. The working poor represent a larger 

group than the unemployed or pensioner poor (Facts About Low Pay, Low Pay Unit, 2004). 

• A full-time worker with a non-working partner would need to earn around £9 per hour to avoid income 

poverty. Five industries fail to do this for men, and around half fail to do this for women (Poverty & Social 

Inclusion in Rural Areas, New Policy Institute for OSEP, 2004). 

• Low paid workers are unlikely to receive any job-related training which would help move them into a higher 

paid job in future (Poverty & Social Inclusion in Rural Areas, New Policy Institute for OSEP, 2004). 

Tackling low pay is essential because poverty and low pay are intertwined throughout an individual’s lifetime 

and across generations. Therefore, we must be concerned not simply about jobs at any price but also about 

the quality and conditions of employment.


Low pay is a particular problem in rural areas: the proportion of employees on low pay is higher in rural East 

of England than in urban areas of the region. The largest low paying rural industries include agriculture, hotels 

and restaurants and the retail trade and, among part-time employees, health and social work. Fenland, North 

Norfolk and Waveney appear to have the highest prevalence of low pay (Poverty & Social Inclusion in Rural 

Areas, New Policy Institute for OSEP, 2004). 

Over-indebtedness 

Nationally, levels of over-indebtedness are rising, with insolvency levels increasing by 44.1% from 2005 to 

2006 (Statistics Release: insolvencies in the 4th quarter 2006, The Insolvency Service). In the same period 

Citizens Advice saw a 27% rise in debt problems nationally, with a 35% rise within the Eastern Region. 

In the first half of 2006/7, the figures rose again by 13%, with the Eastern Region anticipating almost 1/4 

million debt problems from clients in 2006/7 (Town Territory Ranking for Bankruptcy, Experian, 2006). 

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Access to transport 

Transport can be a significant barrier to employment, particularly amongst young people in rural areas 

(Youth Unemployment in Rural Areas, Cartmel and Furlong, York, JRF, 2000) and for those with child caring 

responsibilities. There is evidence that both individuals and employers increasingly feel that, unless someone 

owns a car, they will not get and keep a job, and that public transport is irrelevant and not designed for those 

who are working (Lessons for Employment Policy, JRF, York, 2001). The SEU’s report on transport and social 

exclusion shows that 1 in 4 young people do not apply for available jobs because of transport problems. 6% 

of 16 – 24-year-olds turn down training or education opportunities because of problems with transport. Lack 

of suitable and affordable transport provision is a major problem for disabled people wanting to access 

employment and is a very good example of barriers created by society rather than an individual’s condition 

(Making the Connections: final report on transport and social exclusion, SEU, 2003). 

Sickness, disability and poor mental health 

Sickness, disability and poor mental health are key reasons for lack of employment. 12.7% of the economically 

inactive population are sick or disabled (Census, 2001) and 1 in 6 disabled people lose their jobs during the first 

year of acquiring their disability. People who are sick or disabled represent the biggest group among those who 

are economically inactive but want paid work. 

Availability of childcare 

Research shows that there is a link between childcare availability and the likelihood that a mother works. 

In the UK, about one quarter of non-working mothers report they would like to have a regular paid job, 

but are prevented from seeking work by having to look after children. 

Lack of skills and qualifications 

There is a strong relationship between people’s qualifications and success in the labour market. The 

confidence, inter-personal skills and commitment that employers expect can be further undermined by 

lack of qualifications, basic skill needs and long-term unemployment (Mothers’ Employment and Childcare 

use in the UK, Paull et al, London, Institute of Fiscal Studies, 2002). Education and skills are addressed in 

more detail under SO3 and SO4 below. 

English language proficiency 

A major barrier to employment for many groups including refugees and migrant workers is the lack of 

co-ordinated provision of language services, English Language classes, guidance and support, which 

in turn undermines effective integration and equal access to employment. (Research undertaken for 

Pathways to Employment project, 2003).


2.3 – SO3: To improve the life chances of children from disadvantaged backgrounds and 

support vulnerable young people in the transition to adulthood 

i) Child poverty 

Child poverty is particularly damaging because it has a long-term detrimental effect on people’s lives and across 

generations. Research has shown that even when they are in their 30s, adults have less chance of working and 

more chance of low pay if their families faced financial hardships when they were growing up. Child poverty must 

be seen in the context of the wider difficulties often experienced by disadvantaged children and families such as 

poor health, low qualifications, anti-social behaviour and, for a minority of children, living in care. 

Despite being a wealthy nation, the UK has comparatively high levels of child poverty. The Government has 

set a target to halve the number of children in relative low-income households, on the way to eradicating child 

poverty by 2020. Although there are now 600,000 fewer children nationally in poverty, to achieve the target 

set for 2010 a further 1.2 million children need to be lifted out of poverty. In May 2006 tackling child poverty 

became the DWP’s number one priority. 

Lisa Harker, former Chief Executive of the Daycare Trust, was appointed independent advisor on child poverty 

to the DWP in June 2006. Her report, Delivering on Child Poverty: what would it take?, was published in 

November 2006. The report argues that there has been an emphasis on helping lone parents back to work 

and that to meet child poverty targets activities need to be more attuned to the needs of parents in general, 

not just lone parents. The report goes on to say that for many parents a move into work is an escape from 

poverty, but in around 1 in 3 cases gaining a job means moving from non-working poor to working poor. 

Whilst persistent poverty has fallen in non-working households it has not decreased in working households 

– nearly half (48%) of all children in poverty now live in families where there is someone in work. 

Child Poverty in Perspective: an overview of child well-being in rich countries was published by UNICEF in 

February 2007 and is the first study of childhood across the world's industrialised nations. UNICEF looked 

at 40 indicators from the years 2000-2003 including poverty, family relationships and health and placed the 

UK bottom of a league table for child well-being across 21 industrialised countries. 

In response to Lisa Harker, UNICEF and a number of other reports, in March 2007 DWP published Working for 

Children which confirms the commitment to eradicate child poverty and sets out a number of new measures. 

ii) Parenting 

There is growing evidence of the importance of the nature of parenting in achieving good outcomes for all 

children and young people. The government initiative, Every Child Matters, 2003, emphasises the bond 

between the child and his or her parents as being the most critical influence on a child’s life. It is important 

that this bond is established very early in a child’s life, is strengthened by activities in the early months and 

is positively reinforced throughout the development of a young person. Where the relationship has been 

weakened or has not developed, the child has less resilience at any age or circumstances to deal with the 

normal developmental processes which he or she will encounter and will be more vulnerable to negative 

external influences, such as peer pressure to misuse substances. Children whose parents have supported 

their development build confidence and ability. Where there are additional difficulties, such as child poverty, 

the effect of poor parenting may be exacerbated. 

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In 2006 the Government commissioned research from PricewaterhouseCoopers which identified considerable 

gaps in the provision of parenting support, partly caused by weak, poorly co-ordinated commissioning 

processes. Building on these findings, in October 2006 the Government published parenting support guidance 

for local authorities in England. The primary recommendation of the guidance was for each local authority to 

develop a parenting support strategy. 

iii) Transition points 

Although experience during early years is important, life chances continue to be forged throughout children’s 

lives. There are key transition points the successful negotiation of which has been shown to be critical for 

positive outcomes. These are commonly linked to the different stages of education, ie starting school, 

transition between schools (especially between primary and secondary schools when this may be linked 

to the onset of puberty) and leaving school to further education and training. 

iv) Transition to adulthood 

Transition to adulthood follows certain distinct pathways: moving from school into the labour market, forming 

a household or family and achieving economic independence. While for many the transition is a long and 

smooth one, supported by families and friends, for others adulthood comes early, without the necessary 

skills and support. 

There is an increasing polarisation between the experiences of young people who stay in education and gain 

qualifications, and those who leave school early, risking low pay and unemployment. There is also a growing 

divide between those who become parents in their teens and the majority who are increasingly deferring 

parenthood. Almost half of under-18 conceptions occur in the most deprived 20% of wards (East in Focus: 

East of England Health Profile 2001, ERPHO, 2002). While the teenage conception rate in the East of 

England is the lowest in England, there are clusters of wards, for example in sea-side towns with high 

deprivation, which have amongst the highest rates in the country. Teenage mothers are less likely to finish 

their education, less likely to find a good job and more likely to end up as single parents bringing up their 

children in poverty (Teenage Pregnancy, SEU, 1999). These children subsequently run a much greater 

risk of poor health and have a much higher chance of becoming teenage mothers themselves. 

v) Education 

Performance within statutory education is measured at four Key Stages with Key Stage 4 being GCSE age 

(usually 16). In general, performance in education at Key Stages 1 and 2 (equivalent to the primary school 

age range) is above the England average although there are some authorities with performance below this 

level. Thurrock, Luton and Peterborough in 2006 fell within this category (Local Authority Data Report, 

Department for Education and Skills – DfES, 2006). 

Performance at GCSE within the region is generally above the national average (46.5% scoring 5 A*-C 

grades, including English and maths, compared to 44.5% in England) (Local Authority Data Report, DfES, 

2006) and has been improving over time, although Luton, Peterborough and Norfolk have lower scores than 

the national average. There is also a significant proportion of young people who fail to obtain any GCSEs. In 

Southend and Peterborough, in particular, this proportion is above the national average. Research has also 

shown that in rural areas a quarter of 16-year-olds failed to obtain any GCSEs above Grade C (Poverty & 

Social Inclusion in Rural Areas, New Policy Institute for OSEP, 2004).


There are other underlying trends which impact particularly intensely on young people from the region’s 

deprived areas. Despite limited improvements, the performance at GCSE, for example, is not sustained post- 

16 in some areas, with attainment at ‘A’ level or the equivalent vocational (GNVQ/NVQ) Level 3 qualification 

remaining below the national average in 5 out of 10 local education authorities (LEAs) (Table 8: Level 3 point 

scores of 16-18 year old candidates by gender in each local authority and Government Office region by the 

end of 2005/6, DfES). Participation in education and work-based learning among 16 and 17-year-olds is also 

below the national average in 6 of the region’s 10 LEAs (Participation in education and work-based learning 

of 16 and 17-year-olds, LEAs Tables, 2005). 

If learning is a key factor for reducing deprivation and increasing social inclusion, continued improvements are 

required to target under-achievement among the significant minority of young people who fail to achieve basic 

qualifications, particularly in rural and deprived areas where under-achievement is concentrated. Learning 

providers will need to understand the demographic profile of their learners so that they can enhance access 

to opportunities for hard to reach groups. 

vi) Health 

The numbers of children with life-threatening or life-limiting illnesses are, thankfully, relatively low, though 

the impact of such illnesses on the children concerned, and their families, is immense. Because of the small 

numbers involved, and the time and emotional energy invested in their care, there are few resources such as 

lobby groups to help such children and their families. This can compound isolation and frustration, particularly 

for healthy siblings, for whom parental attention can seem to come at a premium. 

It can also be a challenge to provide appropriate services to affected families, due to capacity issues and the 

fact that health professionals can have limited experience of some of the rare and complex medical conditions 

involved. This is particularly the case for babies born pre-term with multiple health issues, who are now living 

longer than would previously have been possible. 

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28 


2.3 – SO4: To improve the life chances of adults through learning and skills development 

Adults with poor literacy, language and numeracy skills may find themselves and their families excluded from 

advantages others take for granted. They may be in low-paid or short-term jobs or suffer lengthy periods of 

unemployment. People with inadequate literacy skills can typically earn 11% less than others, while those 

with inadequate numeracy skills earn on average 6%-7% less (Skills for Life: the national strategy for 

improving adult literacy and numeracy, DfES, 2001). 

As well as losing out financially, people with low skills often lack confidence and motivation. Their children are 

more likely to struggle at school. They are more likely to suffer health problems. They are less likely to access 

the information they need or to make the most of available opportunities that will help them to live fulfilling and 

healthy lives. 

Districts with the highest percentage of working population with no qualifications, 

January 2006 – December 2006 

Borough % 

Maldon 32.8 

Tendring 24.5 

Uttlesford 21.8 

Harlow 19.9 

Thurrock 19.3 

Braintree 19.1 

Luton 18.6 

Annual Population Survey, Office for National Statistics 

Skills for Life is the national strategy for improving adult literacy, language (ESOL – English for speakers of 

other languages) and numeracy skills. An important part is the framework of national standards for literacy 

and numeracy:


Level Literacy (reading) Numeracy 

Entry Level 1 • Understands short texts with 

repeated language patterns 

on familiar topics 

• Can obtain information from 

common material 

Entry Level 2 • Understands short straightforward 

texts on familiar topics 

• Can obtain information from short 

documents, familiar sources and 

signs and symbols 

Entry Level 3 • Understands short straightforward 

texts on familiar topics accurately 

and independently 

• Can obtain information from 

everyday sources 

Level 1 • Understands short straightforward 

texts of varying length on a variety of 

topics accurately and independently 

• Can obtain information from different 


Level 2 or above • Understands a range of texts of 

varying complexity accurately and 

independently 

• Can obtain information of varying 

length and detail from different 


• Understands information given by 

numbers and symbols in simple 

graphical, numerical and written 

signs and symbols 


numbers, symbols, simple diagrams 

and charts in graphical, numerical 

and written material 


numbers symbols, diagrams and 

charts used for different purposes 

and in different ways in graphical, 

numerical and written material 

• Understands straightforward 

mathematical information used 

for different purposes and can 

independently select relevant 

information from given graphical, 

numerical and written material 

• Understands mathematical 

information used for different 

purposes and can independently 

select and compare relevant 

information from a variety of 

graphical, numerical and 

written material 

Adults of all ages benefit from being able to learn and develop new skills, whether through paid or unpaid 

(voluntary) work, or through formal learning, such as learning opportunities or vocational training. All such 

activities increase opportunities for mental stimulation, social engagement, sharing of experience and for 

enhancing people’s quality of life. Learning in later life is known to assist in reducing poor health and 

dependency on public services. In order to access wider learning, all adults need to have basic language, 

literacy, numeracy and, increasingly, information and communications technology skills. These are growing 

in importance for ensuring access to information thereby enabling people to have choices in, and control 

of, their lives. Free tuition is available to help many adults who need it to get a good skills foundation for 

employability, known as Level 2 qualification. 

29

30 


In the East of England significant numbers of adults have Skills for Life needs: 

Literacy and Region % 

NE 22 41 

37 

London 19 34 

46 

Yorkshire & Humber 19 42 

39 

West Midlands 18 42 

41 

NW 17 42 

41 

East Midlands 16 41 

43 

SW 14 40 

46 

East of England 12 

40 

47 

SE 12 37 

51 

Numeracy and Region % 

EL L1 L2+ 

Base: all respondents with literacy scores (7873) 

Source: The National Skills for Life Survey, DfES, 2003 

NE 54 24 

21 

Yorkshire & Humber 51 28 

21 

NW 49 28 

23 

East Midlands 49 27 

23 

SW 49 29 

23 

London 48 26 

25 

West Midlands 47 29 

24 

East of England 41 28 

30 

SE 41 27 

32 

EL L1 L2+ 

Base: all respondents with numeracy scores (8041) 

Although there are basic skills needs throughout the region, the areas of greatest need are concentrated in 

major towns and cities and along the coast of the region, particularly in Ipswich, Luton (largely concentrated 

within the Pakistani and Bangladeshi communities), Suffolk Coastal, Harwich, Basildon, Thurrock, Tendring 

and Fenland. (Adult Basic Skills in the East of England, BMG, 2002).


The national Skills for Life survey (DfES, 2003) showed that very few people regarded their reading, writing or 

maths skills as below average, including those with the lowest levels of ability. For example, 54% of those with 

Entry Level 1 or lower level literacy said their everyday reading ability was ‘very’ or ‘fairly’ good. 

There is little regional data available about the Skills for Life needs of the adult population who are postworking 

age (ie aged 60+ for women and 65+ for men), but it can be reasonably assumed that amongst the 

younger people in this group the proportion with poor Skills for Life and no qualifications will be similar to that 

of the ‘working age’ population. 

Nationally, it is estimated that there are at least half a million people who struggle with English because it is 

not their first language. Nearly half of those with a different first language were classified at Entry Level 3 or 

below in the literacy test of the Skills for Life survey (roughly the standard expected of 11-year-olds). 

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2.3 – SO5: To promote active ageing and reduce social exclusion of older people 

The population of the East of England is not only growing at a faster rate than other English regions, it is 

ageing. Projections suggest that by 2014 the number of people in the UK aged 65 and over will exceed the 

numbers aged under 16. By 2025 there will be more than 1.6 million more people over the age of 65 than 

people under 16 (The Implications of an Ageing Population for the Sustainable Development of the East 

of England, Population Ageing Associates, 2003). 

The effects of increasing age combined with other factors such as reduced income or mobility can exacerbate 

exclusion. Members of ethnic minorities aged over 50 can experience the ‘double disadvantage’ of age and 

ethnicity (Aspects of the Economics of an Ageing Population, Select Committee on Economic Affairs, 2003). 

A number of factors increase the risks of social isolation and exclusion for older people living in rural areas: 

• on retirement people may move away from friends and family, to more remote areas such as the Norfolk 

and Suffolk coast 

• in areas popular with retired people, house prices for first time buyers may be prohibitively expensive 

which in turn creates an imbalance in local communities that over time become dominated by older 

people. This exacerbates the risk of isolation at a later stage, particularly as half of all people aged 65 

and over living in rural areas have a limiting long-term illness (Poverty & Social Inclusion in Rural Areas, 

New Policy Institute for OSEP, 2004) 

• exclusion often begins when an older person becomes unable to drive – three-fifths of older single women 

do not have a car (Poverty & Social Inclusion in Rural Areas, New Policy Institute for OSEP, 2004) 

• meeting the medical needs of older people can often be more difficult in rural areas. 

i) Housing 

Housing is an important dimension of social exclusion for older people who occupy much of the sub-standard 

housing in the country. Nationally, 68% of householders over the age of 65 are owner-occupiers, 32% of 

whom are living in poverty (Poverty & Home Ownership in Contemporary Britain, Burrows, York, JRF, 2003). 

For these households, maintaining the property can become increasingly difficult, resulting in disrepair and 

poor housing conditions such as damp and condensation. Older people on low incomes are twice as likely 

to live in energy inefficient housing as those on high incomes. 

They are also more likely to experience fuel poverty, which occurs when people need to spend more than 

10% of their income on fuel to achieve adequate levels of warmth in the home. The causes of fuel poverty 

are complex, but contributory factors include low household income, poor insulation standards, inefficient 

or expensive heating systems and under-occupancy of properties. In addition, many households contain 

individuals who may require extra warmth as a result of age or disability. 

The number of ‘excess winter deaths’ is defined as the number by which the mortality rate for the period 

December to March exceeds that of other months of the year. A greater proportion of the over 60s than of 

any other age group make up the 20,000 to 50,000 excess winter deaths that occur in the UK each year, 

the exact number being related to the severity of the winter weather. Many of these deaths are attributable 

to conditions caused or exacerbated by poor housing and by living in fuel poverty. During the winter months, 

there are 15% more deaths of people aged 65+ in the East of England.


The Government's first Fuel Poverty Strategy was published in 2001. It included a target for ending fuel 

poverty in vulnerable households (defined as a household containing children, or those who are elderly, 

sick or disabled) and non-vulnerable households living in social housing by 2010 and ending fuel poverty 

in other households by November 2016 (UK Fuel Poverty Strategy 4th Annual Progress Report, 2006). 

The number of UK households in fuel poverty fell from 6.5 million to 2 million between 1996 and 2003. Of 

these, vulnerable households in fuel poverty fell from 5 million to 1.5 million. Government moves to boost the 

incomes of the poorest, especially pensioners, accounted for over half of this reduction; falling energy prices 

for about one fifth; and government initiatives to improve energy efficiency of homes for a further one fifth. 

Rising energy prices since 2003, however, have reversed this trend. Domestic energy bills rose sharply 

between 2003-6 – up 94% for gas and 60% for electricity. By winter 2006/7 the annual energy bill for the 

average UK household was over £1,000 compared with only £572 in 2003. The number of households 

in fuel poverty has risen again as a result – up to an estimated four million – twice the 2003 level (Energy 

Shouldn't Cost the Earth, National Consumer Council, March 2007). 

Although some energy companies announced price cuts in early 2007, these have been relatively modest 

– 12-17% for gas and 3-11% for electricity. Energy prices are unlikely to fall back to 2003 levels and fuel 

poverty is still likely to affect significant numbers, seriously threatening achievement of the Government’s 

fuel poverty targets. 

In terms of general support, the proportion of people provided with home care/help to help them live at home 

is lower in the region than elsewhere in the country (Poverty & Social Inclusion in Rural Areas, New Policy 

Institute for OSEP, 2004). 

ii) Health 

Social exclusion experienced as a result of poor health is often exacerbated by old age. For example, a study 

for the DWP found that amongst people aged 50-69, a fifth had been forced to retire or leave a job because of 

ill health (Factors Affecting the Labour Market Participation of Older Workers, Humphrey et al, London, DWP, 

2003). The health of immediate and extended family members was also important – caring responsibilities 

had affected paid work for 20% of people. 

A greater proportion of 60 to 69 year olds have anxiety and depression than any other group. This is often 

compounded by bereavement and, in some cases, by retirement. Research has highlighted the inadequate 

provision for older people with mental health difficulties, including the overuse of institutional care and lack 

of intermediate care (Improving Older People’s Services: an overview of performance, Bainbridge & Ricketts, 

London, Department of Health, 2003). 

iii) Services 

While providing services in the home may meet the needs of older people on one level, transport is also 

important as it enables people to access social networks and engage with the wider community which has 

a positive impact on individual well-being. At particular risk of social isolation in rural areas, are single, older 

women, many of whom live alone and without a car (Poverty & Social Inclusion in Rural Areas, New Policy 

Institute for OSEP, 2004). 

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34 


iv) Income and the labour market 

A quarter of female single pensioners live in poverty, representing one of the poorest groups of older people 

(One in Four, Age Concern and the Fawcett Society, 2003). This is because fewer women have made 

sufficient contributions to entitle them to a full basic state pension and they are less likely to benefit from 

occupational pension schemes. Twice as many women as men rely on means-tested benefits in retirement 

(One in Four, Age Concern and the Fawcett Society, 2003). 

Large numbers of pensioners are failing to claim their income-related benefits. The process of making a 

claim is long and complicated and, for some, carries a stigma. Research shows that older people from BME 

communities face a number of barriers to claiming benefits, including language problems, concerns about 

the impact of claiming on residency status and difficulties arising from not having a national insurance 

number (Delivering Benefits & Services for Black and Minority Ethnic Older People, Barnard & Pettigrew, 

London, DWP, 2003). 

People leaving work before the state pension age risk being poorer in retirement than if they had continued 

working, with those on low incomes particularly vulnerable (Money, Choice & Control: the financial 

circumstances of early retirement, Arthur, York, JRF, 2003). People in their 50s and early 60s who may have 

had little or no choice about leaving their job often find it difficult and increasingly dispiriting seeking other paid 

employment (Money, Choice & Control: the financial circumstances of early retirement, Arthur, 2003). Health 

difficulties, age discrimination and a lack of skills and financial resources mean that older people are more 

likely to become detached from the labour market and dependent on benefits until state retirement age. 

However, the ageing population in the East of England means the labour force potential amongst the 

over-50s in the region is growing. A study suggested that over 225,000 people over the age of 50 in 

the region would welcome remunerated employment (The Implications of an Ageing Population for the 

Sustainable Development of the East of England, Population Ageing Associates, 2003). Without the 

barriers to employment described above, older people could be making a significant contribution to 

the regional economy, supplementing the workforce required to support an ageing population that 

will continue to increase in tandem with developments and investments in health and social care. 

v) Communities and social networks 

The networks, relationships and values that shape people’s lives and the communities they live in can have a 

significant impact on quality of life for individuals, and also for whole communities in terms of economic and 

social outcomes. For some older people, for example those less able to leave their home, a lack of social 

contact and engagement within the community may lead to feelings of isolation and mistrust. It may also 

cause an increased fear of crime, particularly for women. Women aged 60 or over are three times as likely to 

feel very unsafe out at night as men. Women from lower income households are one and a half times as likely 

to feel unsafe as women from higher income households (Monitoring Poverty & Social Exclusion, Palmer et al, 

York, New Policy Institute and JRF, 2003). 

2.3 – SO6: To support the development of sustainable communities 

i) Housing 

Housing is integral to achieving broader social, economic and environmental objectives such as improved 

educational attainment and health status.


The majority (74%) of households in the region live in owner-occupied accommodation, 16% in social rented 

and 10% in private rented (Housing Statistics, Table 109, Communities and Local Government – CLG – 

website, www.communities.gov.uk). 

Social housing 

Recent research (The Demand for Social Rented Housing, CLG, 2007) shows that nationally three main 

groups are likely to be in social housing: 

• households for whom the sector is a permanent, long-term secure tenure for life. These households are 

generally more disadvantaged in terms of income, health and disability, with lower participation in the 

labour market than those who are more transitory 

• households for whom social renting is a relatively temporary or transitional tenure 

• those who enter the sector at a later stage in their life, often for the first time. 

The research shows clear concentrations of poverty and exclusion in the social rented sector, with those 

with other housing opportunities likely to choose the private sector. 

Nationally, greater numbers of ethnic minority groups are moving into social housing but the proportionate 

rise is more the extent to which white households are leaving the sector. In the East of England, BME 

groups account for 5% of the population but Black households are twice as likely to be in Council or other 

social rented accommodation than Asian households (24%, compared with 12% for Asian households) 

(Study into the Housing Needs of Black and Minority Ethnic Communities in the East of England, Centre 

for Regional Economic and Social Research, Sheffield Hallam University, 2006). 

Affordable homes 

The region needs 11,000 new, affordable homes per year (Affordable Housing Studies, Cambridge Centre for 

Housing and Planning Research, Part 1 [2003] and Part 2 [2004]) but in 2005/06 produced less than half that 

number at 4,042 (Annual Monitoring Report 2005/6, EERA, 2007). 

The acute housing stress is manifest in increased housing waiting lists and problems of affordability. On 

1 April 2006 a total of 135,444 households were registered on local authority housing waiting lists in the region 

compared to 129,184 in 2005 (Housing Strategy Statistical Appendix Data, CLG, 2006). The average house 

price in the region in the first quarter of 2001 was £114,300 compared to £201,000 in 2006, a 76% increase 

(Annual Monitoring Report 2005/6, EERA, 2007). The lower quartile price threshold (the price threshold below 

which 25% of all sales occurred) doubled from £65,000 to £130,000 during the same period. The multiple of 

lower quartile earnings required to purchase a lower quartile home is on average 7.5, rising to 10 in the most 

expensive parts of the region. 

Effects of overcrowding 

There is a body of evidence (The Impact of Overcrowding on Health and Education: a review of the evidence 

and literature, Office of the Deputy Prime Minister – ODPM, 2004) that suggests a relationship between 

overcrowding and health, including long-term effects. For example, overcrowding in childhood can have an 

impact on aspects of adult health and therefore potentially affect an individual’s life chances and opportunities 

in the future. The estimated number of households living in overcrowded accommodation in the region using 

the most recent data (2002-05) was 31,000; the estimated number of children living in overcrowded 

accommodation was 63,0000 (Hansard written answers, 18 April 2006). 

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36 


The Decent Homes standard 

At the end of March 2007, 41,110 local authority-owned homes in the region fell below the Government’s 

Decent Homes Standard (GO-East monitoring, 2007), which requires that all properties must have effective 

heating and insulation, kitchens under 20 years old, bathrooms under 30 years old and must be warm and 

watertight. The Government’s PSA7 (Public Service Agreement 7) target requires that by 2010 at least 70% 

of vulnerable households in the private sector have decent homes. Research carried out in 2006 and recently 

updated by GO-East and EERA suggests that between 60% and 76% of vulnerable households in the region 

are living in decent homes. 

Homelessness 

The number of households in the region accepted as homeless and in priority need has fallen in recent years 

from a high of 11,190 in 2003/04 to 8,260 in 2005/06. This reflects the Government’s focus on preventing and 

reducing homelessness. Nonetheless, there is a rising trend in repossessions, which increased from 10,310 to 

17,000 between 2005 and 2006 (Council of Mortgage Lenders research, 2007). In the East of England there 

were 1,921 possession orders and 2,018 suspended possession orders (Economic and Statistics Division of 

the Department for Constitutional Affairs, 2007). 

The Government has also introduced targets for a reduction in the use of temporary accommodation (to halve 

the number of households living in insecure temporary accommodation by 2010) which the region has made 

good progress towards meeting. This follows an earlier target (to end the use of bed and breakfast hotels for 

families for longer than six weeks and then only in an emergency) which the region met in 2004. With regard 

to young people, a ‘snapshot’ survey in December 2006 revealed one hundred 16-17 year olds in bed and 

breakfast accommodation in the region.


Black and minority ethnic accommodation 

The region has the largest Gypsy and Traveller population in England but the historic under-provision of 

accommodation has led to a problem of unauthorised sites. Recent research (Regional Spatial Strategy 

Single Issue Review of Gypsy and Traveller Caravan Sites, EERA, 2007) shows that the region needs an 

estimated additional 1,200 caravan pitches over the five-year period to 2011 to address the accommodation 

of the Gypsy and Traveller community. 

While the 2001 census is the main data source for mapping the BME population in the region, it is not 

sufficient for mapping the diversity, dynamics and localised settlement patterns of that population (Study 

into the Housing Needs of Black and Minority Ethnic Communities in the East of England, Centre for 

Regional Economic and Social Research, 2006). The evidence base is patchy and data collection and 

monitoring systems are weak, despite the statutory and regulatory framework that exists, which raises 

concerns that some housing providers are not meeting their statutory duties. 

The region has a rapidly expanding migrant worker population, often housed in private rented or employerprovided 

accommodation which is of poor quality. Recent work by the Audit Commission (2007) showed that 

in 2002 Breckland District Council regularly inspected around 40 homes of multiple occupation. By summer 

2006 they had a database of 480. 

The study also shows that few recent migrant workers are offered social housing tenancies, since many come 

on special schemes, visas and permits and have no rights to them. Communities and Local Government figures 

show that only 110 accession state nationals have been offered social tenancies since 2004. However, once EU 

citizens gain residency rights, they become eligible for assistance under homelessness legislation. They will also 

be eligible to join other local tenants and residents on waiting lists, increasing demand for affordable housing. 

Asylum seekers and refugees 

Housing for asylum seekers in this region is provided by a single private accommodation provider, 

Clearsprings Management Ltd, under contract to the Border and Immigration Agency. Asylum seekers 

are dispersed to Peterborough, Norwich or Ipswich. The upper limit in each site is 150 service users, a 

regional total of just 450 asylum seekers at any one time. 

If an asylum seeker is granted refugee status and is eligible for social housing, Section 11 of the Asylum 

and Immigration Act 2004 creates a local connection with the local authority to which the asylum seeker was 

dispersed. One of the main concerns for those granted refugee status is that they receive the full 28 days’ 

notice to vacate their dispersal accommodation in order to find alternative housing, which may include local 

authority housing if they are eligible. Liaison systems therefore need to be in place between local authorities 

and the accommodation provider to ensure that authorities are given early notification of potential refugee 

homelessness. Local authorities also need to ensure that the specific needs of refugees are acknowledged 

in local housing strategies. 

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Implications of regional growth 

Considerable growth has been outlined for the region through the Government's proposed changes to the 

draft East of England Plan. Any significant development of housing requires concomitant social investment, 

ensuring that: 

• ‘out of town’ development includes an infrastructure of appropriate services and transport links 

• there is investment in the voluntary and community sector in key areas of need such as advice provision, 

infrastructure bodies and counselling services to ensure additional demands placed on the this sector are met. 

The scale and nature of such provision will need to vary in accordance to the size of the area being 

developed, proximity to existing services and socio-demographic characteristics. 

ii) Neighbourhoods and the environment 

Neighbourhoods and the wider physical environment are just as important to an individual’s health and sense 

of well-being as the bricks and mortar. People living in estates with a poor reputation can find themselves 

stigmatised and disadvantaged in the labour market. Concentrating the poorest and most vulnerable 

households in the least popular estates with the highest turnover of tenants has been criticised for 

reinforcing social exclusion. 

Anti-social behaviour causes fear of crime, particularly amongst vulnerable groups such as older people and 

lone parents, and has the effect of contributing to neighbourhood decline (Policy Action Team Report 8, SEU, 

2000).The impact of racial harassment and prejudice should also be recognised in this context as it similarly 

undermines and fragments communities. 

Research shows that people are also concerned about dirty streets and public spaces strewn with litter, dog 

mess, abandoned cars and graffiti; unattractive and inaccessible parks, play areas and open spaces with poor 

provision for children and young people, older people and disabled people (Living Places: caring for quality, 

ODPM, 2004). 

An unattractive and threatening environment can lead to an area becoming stigmatised and drive people, 

businesses and investment away. In the words of one resident living on an estate in the region: ‘Living in 

certain streets round here means banks, shops, etc don’t want to know.’ 

Deprived communities suffer disproportionately from road accidents, which are the most common cause of 

injury death for children aged 5-14 and for young adults. Whilst accident rates for car occupants are falling 

in the region, the overall pedestrian rate is not, with the increase in child pedestrian accidents a particularly 

worrying trend. 

Noise, air pollution and disruption caused by traffic are greatest amongst deprived communities and have 

serious health implications (Making the Connections: final report on transport and social exclusion, SEU, 

2003). Other research reinforces this strong relationship between poor air quality and socio-economic 

deprivation (Environmental Quality & Social Deprivation, Environment Agency, 2004). The study also shows 

that integrated pollution control sites are disproportionately located in deprived areas of England and that 

tidal floodplain populations are strongly biased towards deprived communities. Socially excluded people 

are particularly vulnerable following disasters such as widespread flooding, often being less able to cope 

with recovery and requiring special support. Recent research carried out in Lewes, East Sussex, which 

experienced severe flooding in 2000 showed that people whose homes were flooded were four times 

more likely to suffer from psychological distress than those who weren't flooded, and that flooding was


also associated with increased risk of a range of health problems (Health Impacts of Flooding in Lewes: a 

comparison of reported gastrointestinal and other illness and mental health in flooded and non-flooded 

households, Health Protection Agency, 2004). 

Indeed, the Stern Review report, The Economics of Climate Change (2007), predicts that temperature 

increases related to carbon emissions will result in increasing examples of extreme weather patterns. 

In this region, as elsewhere, it is socially excluded people who will be most vulnerable to the ensuing 

environmental and economic impact of climate change. 

iii) Cultural opportunities 

A lack of opportunity to participate in cultural activity can exacerbate many of the components which are 

used to define social exclusion, such as low self-esteem, isolation from wider society and other individuals, 

low aspirations, poor educational attainment and lack of basic skills, as well as lack of civic pride and 

identification with the interests of the local community. 

Involvement in culture can build relationships between people from different backgrounds and create vibrant, 

inclusive, safer and more cohesive neighbourhoods. Community cultural initiatives provide a focus for social 

interaction, reducing the likelihood of neighbourhoods falling into decline. A positive self-image, strengthened 

by the sense of belonging generated by culture, means individuals feel motivated and committed. 

Places like libraries, museums and sports clubs build social capital – not just through their work, but by 

creating a shared social space where different people can come together and learn more about each other. 

Schemes to provide cultural activities for people in rural areas can help to reduce feelings of isolation and 

develop community cohesion. 

Culture can engage young people, including those who are at risk or marginalised, in a variety of productive 

and socialising activities and give them access to new skills. Taking part in cultural activities can also help to 

divert young people from crime, providing a constructive and positive focus for interest and effort. 

Culture brings people together, helping to celebrate diversity while respecting differences. It is what turns a 

disparate group of people into a community. 

iv) Crime 

There is more crime in the poorest and most deprived areas. The Policy Action Team Report 6 (SEU, 2000) 

found that nationally 40% of crime takes place in just 10% of areas. 25% of BME residents in low-income 

multi-ethnic areas reported racially motivated attacks as being a significant problem. 

Perceptions of crime can also vary significantly from the actual statistical evidence. Certain groups such as 

young people are often perceived as being perpetrators of crime, yet the statistical evidence shows that they 

are at high risk of becoming victims of violent crime. Across the population the risk of being a victim of violent 

crime is recorded at 3.6% (British Crime Survey, 2006-7), whereas 13.8% of young men aged 16-24 who 

were interviewed as part of this survey had experienced some form of violent crime in the preceding year. 

Although annual crime statistics published by the Home Office show that the East of England is still one of the 

safest regions to live, work and visit in the country (with rates of recorded violence, robbery, burglary, vehicle 

crime and criminal damage below those recorded for England and Wales) this is still a significant community 

concern. Latest information (Home Office Drugs Strategy, 2002) suggests that heroin, crack and cocaine 

users are responsible for 50% of crimes such as shoplifting, burglary, vehicle crime and theft. Therefore, 

interventions targeting drug users and preventing re-offending by ex-prisoners will have a significant impact 

39

40 


on crime reduction. To be effective these will need to be cross-cutting, covering key issues such as housing, 

skills development and employment. According to a report by the Home Office (Tackling Drugs. Changing 

Lives: turning strategy into reality, 2007), for every £1 spent on treatment, at least £9.50 is saved in crime 

and health costs. 

Prisoners have multiple needs, including learning and physical disabilities. At any one time there are over 

16,000 adults, young offenders and juveniles from the East of England in prisons (Criminogenic Needs, 

National Offender Management Service Offender Assessment System – NOMS OASys, 2007). 

Of these: 

• 33% will lose their tenancy before release 

• 72% will experience mental health problems (at least two disorders) 

• 82% will have worse writing skills than an 11-year-old 

• 20% will have attempted suicide in the past 

• 25% will have a drugs misuse problem (highest in Norfolk and Bedford) 

• 45% will have an alcohol misuse problem (highest in Suffolk). 

(Criminogenic Needs, NOMS OASys, 2007) 

There are two conclusions to draw from these statistics: 

• significant numbers of people using social support services will have been in the hands of criminal justice 

agencies at some point 

• those clients will have multiple problems and therefore will need to engage with multiple agencies. 

If those agencies work in isolation, they will fail to take into account actions by other services that will 

affect their delivery of support. For example, a community-based education programme is likely to fail 

if the offender has nowhere to live after prison. 

v) Health 

Social exclusion and health inequalities, which persist within the region, have many of the same root causes. 

Elements of social exclusion such as low income, unemployment and lack of social support and networks 

are also strong determinants of poor health. Socially excluded people and communities are likely to be less 

healthy than their socially included counterparts. Preventing deprivation and social exclusion will therefore 

impact positively on health and health inequalities in the region. 

Although the Index of Multiple Deprivation score for the whole of the East of England is lower than the 

England average, there is wide variation within the region, from the least deprived Hertfordshire at 6.3 

to the most deprived, Norwich at 28.3. There is strong evidence that increasing levels of deprivation 

and social exclusion are associated with decreasing levels of life expectancy in both men and women. 

Even though overall life expectancy in the region is higher than the national average, there are obvious 

inequalities within the region. For example, life expectancy in Fenland and Luton is approximately four 

years lower than in South Cambridgeshire, for both men and women.


Periods of illness, disability and caring duties have economic and social costs for individuals, families and 

society. Overall 12.7% of the economically inactive population of the region are classed as sick or disabled 

(Census 2001). This compares with 16.01% for England. At 206,900 the number in receipt of sickness-related 

benefits far exceeds the number claiming Jobseeker’s Allowance (60,515) and represents 50% of those 

claiming working age benefits (417,675) in the region. People with poor mental health or physical disabilities 

can also experience stigma and discrimination. Asylum seekers, refugees and migrant workers often have 

additional health needs compounded by difficulty in accessing services in the UK. Ensuring the prompt 

diagnosis and effective treatment of illnesses that may affect an individual’s productivity (in employment, 

full-time education or a caring role) or their ability to build and maintain social relationships are key actions 

for health care providers. 

Recent research (Is work good for your health and well-being?, Waddell and Burton, DWP, 2006) suggests 

that there is a strong relationship between health and work: 

• being in the right type of work is good for your health. It improves self esteem, quality of life and 

well-being 

• being out of work is bad for both mind and body. Unemployment progressively damages health and results 

in more sickness, disability, mental illness, obesity, use of medication and medical services and decreased 

life expectancy 

• when people return to work from unemployment their health improves. Returning to work from 

unemployment improves health by as much as unemployment damages it 

• if you have a health condition, being in work can help your recovery 

• remaining in or returning quickly is beneficial for people with both physical and mental health problems 

• the positive effects of work do not just benefit the individual. Work also reduces poverty and health 

inequalities for the family and the community 

• although aspects of work can pose a risk to health, far more people gain benefits from work than are 

negatively affected by it. The benefits of work are also greater than the harmful effects of prolonged 

sickness absence 

• the positive effects of work apply to all age groups. 

Caring for sick or disabled people is another way in which an individual and their family are at risk of 

social exclusion. Particularly vulnerable are young people with caring responsibilities as they are much 

more difficult to identify and support. As the population of the region ages the number of people caring for 

dependent elderly people will increase. The government white paper Our health, Our Care, Our Say: a new 

direction for community services (2005) acknowledges this and calls for better support for those with caring 

responsibilities. 

The East of England has the fifth largest population of non-White British residents in the UK. There are some 

large ethnic populations throughout the region especially in areas such as Peterborough and Luton. Health 

varies between (and within) ethnic populations. Chinese populations in this region tend to experience better 

health, while Bangladeshis and Pakistanis suffer from poorer health. National surveys of NHS patient 

experience show that Asian groups experience worse access to services than other ethnic groups 

across all the regions (health data from Census 2001, ERPHO, 2004). 

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Gypsies and Travellers constitute one of the largest minority ethnic groups in the East of England. The East 

of England has 25% of England’s Traveller community, which represents the highest recorded number of 

caravans in England (A Review of the Health Needs of Gypsy Travellers in the East of England, Regional 

Public Health Group, 2006). Gypsies and Travellers have significantly poorer health and more self-reported 

symptoms of ill health than other UK residents, including BME groups and economically disadvantaged white 

UK residents (Healthy Futures: a regional health strategy for the East of England 2005-2010, EERA, 2005). 

Maternal and child health are especially problematic, with Gypsies and Travellers often experiencing great 

difficulty in accessing preventative health services. 

Indeed, health inequalities between Gypsies & Travellers and the general population are some of the starkest 

in the region, with Gypsy and Traveller women living on average 12 years less and Gypsy and Traveller men 

10 years less than their counterparts in the wider community (Gypsies & Travellers Strategy, Commission for 

Racial Equality, 2004-7).


2.3 – SO7: To improve access to services, especially for disadvantaged groups 

Access to services is influenced by physical, financial, cultural and language factors. These potential barriers 

to social inclusion can also be exacerbated by poor confidence and trust in service provision, inappropriate 

forms of service delivery and discrimination by service providers. 

In rural areas, social exclusion can be disproportionately influenced by access to services, as even the most 

basic of community services such as grocery shops, banks and doctors’ surgeries may be difficult to reach. 

The loss of local facilities like these from small towns and villages impacts on social exclusion where people 

are unable to travel, or find it difficult to travel to access services further afield. 

Lack of services also impacts on feelings of community vibrancy and cohesion. Rural households in the East 

of England have poorer geographical availability of key services compared to the average for rural England. 

Data provided by the Countryside Agency, now part of Natural England, shows that the East of England has 

the smallest proportion of households living within a set distance of 9 out of 11 key services, in particular: 

• banks and building societies (65.1% of rural households live within 4 km) 

• dental surgeries (74.7% of rural households live within 4km) 

• hospitals (only 16.7% of rural households live within 4 km). 

i) Financial services 

Financial exclusion and spiralling debt are growing problems for low-income households. Costs can be higher 

for people without access to mainstream financial services as, for example, utility companies often charge 

lower prices if bills are paid by direct debit. Likewise those least likely to have household insurance are 

the most likely to be burgled, and may also find it more difficult to deal with the financial loss. 

Nationally, 

• 1 in 6 of the poorest households still do not have any type of bank account 

• lone parents are three times as likely to have no account as the average household 

• Bangladeshi and Pakistani households are twice as likely as the average household to have 

no bank account 

• half of the poorest households are uninsured. 

(Monitoring Poverty & Social Exclusion, Palmer et al, York, New Policy Institute and JRF, 2003). 

ii) Information and advice services 

Lack of effective information, representation and advice can preserve and extend inequality and 

disadvantage, increasing the risk of exclusion by denying access to services such as health, housing 

and training. This in turn has a negative impact on employment prospects, quality of life and community 

cohesion in general. 

Language barriers too present particular problems for migrant workers and refugees, for example when 

seeking work or trying to understand the benefits system. Failure to provide information in the appropriate 

format combined with the lack of interpreters can reinforce rather than reduce social exclusion. 

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Information and communications technology (ICT) has an important role to play in increasing accessibility to 

information and advice, especially in rural areas. Broadband coverage has increased dramatically since this 

strategy was first published, now technically available to 99.5% of the region’s population, though this falls 

to 98% in rural communities (The State of the Countryside, 2006, Commission for Rural Communities). 

The concept of ‘digital exclusion’, however, is not just about ensuring everyone can access internet facilities, 

but also about making sure they have the skills to do so, and that there is appropriate content for them. It 

has been reported that excluded groups, such as people who are jobless, homeless, mentally ill, in prison, 

on probation or carers, find little on the internet that is of direct relevance, perhaps because much internet 

content is driven by commercial forces and is therefore aimed at higher income consumers (Beyond Access: 

ICT and social exclusion, Fabian Society, London, 2001). 

iii) Transport services 

The extent to which individuals are able to access appropriate transport services is a significant factor in both 

creating and reinforcing social exclusion. 

Lack of transport, and poor accessibility, have been identified as barriers to employment (see SO2 above), 

education and healthcare services (Making the Connections: final report on transport and social exclusion, 

SEU, 2003). They can also limit an individual’s opportunities to develop and maintain social networks. 

According to the SEU’s report, over 1.4 million people in England said they had missed out on medical 

help over the previous 12-month period because of access difficulties. 

People with physical disabilities can experience particular difficulty as in many cases adaptations have not 

been made. Transport access problems are particularly acute in rural areas where the distances required 

to travel tend to be greater, and public transport less frequent. 

• 16% of rural households do not own a car and 20% of adults in rural areas do not have a full driving 

licence (Annual Monitoring Report, East of England Local Government Conference, 2003). 

• Only one-third of rural households in the region have access to an hourly bus service (Annual Monitoring 

Report, East of England Local Government Conference, 2003). 

• Cost is a major barrier. Low-income households dependent on a car spend nearly a quarter of their 

weekly household expenditure on motoring (Making the Connections: final report on transport and social 

exclusion, SEU, 2003). Proposals to ease congestion through road pricing (The Eddington Transport 

Study, London, HM Treasury and Department of Transport, 2006) need to take into account the potential 

impact on social exclusion where affordable and accessible public transport alternatives do not exist, such 

as in remote rural areas. 

• Many railway stations are not accessible to wheelchair users. 

The two types of households who are least likely to own a car and are therefore most disadvantaged by poor 

access to services are single pensioners and lone parents. Almost a third of the 50,000 lone parents and 

60% of single pensioners in the rural districts of the East of England do not own a car. Older, single women 

pensioners are the group of greatest concern. Many live alone and relatively few receive support from the 

local authority. Those living in small parishes often lack a local shop. All these factors combine to increase the 

likelihood of social isolation (Poverty & Social Inclusion in Rural Areas, New Policy Institute for OSEP, 2004).


2.3 – SO8: To develop social networks, community assets and promote community cohesion 

i) Social networks 

Social exclusion occurs as a result of the complex interplay between poverty, poor life skills and social 

disconnectedness. Social relationships provide people with valuable resources that are not dependent 

on income. They enable individuals to connect to different types of help: emotional support, practical help 

(eg childcare) financial aid (eg loans) and information (eg about job opportunities). 

Parents who are vulnerable to social exclusion may not have such strong support networks or such wide 

access to help and advice. The transition from childhood to adulthood is an important time when lack of 

strong social support networks through friends, family or colleagues makes a person vulnerable to social 

exclusion. Retirement and old age are times when a person can become more socially isolated, either 

through disconnection from colleagues or through death of friends and family. Social networks are also 

a very important support to asylum seekers, refugees and migrant workers who invariably have limited 

knowledge of the English language and lack of understanding of UK culture and systems. 

People with good social networks live longer, are at reduced risk of coronary heart disease, are less likely 

to report being depressed, or to suffer a recurrence of cancer and less susceptible to infectious illness than 

those with poor social networks. 

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ii) Community assets 

The Government has said that one reason why some past regeneration strategies failed is that they 

did not make use of the knowledge of those with the most at stake – local people. Research has shown 

that regeneration will only be successful and sustainable if a holistic approach is taken, underlining the 

importance of striking a balance between ‘people’ and ‘place’ based regeneration that builds on existing 

community assets rather than a ‘deficit’ model of community (Research to inform the Investing in 

Communities programme, DTZ, 2003). 

iii) Community cohesion 

Studies in Luton (Sticking Together: embracing diversity in Luton, Luton Borough Council, 2003), Norfolk 

(Norfolk at Ease: a county with a vision of inclusive communities, Norwich & Norfolk Race Equality Council, 

2003), Peterborough (Policing Peterborough, Cambridgeshire Constabulary, 2006) and regionally (Migrant 

Workers in the East of England, EEDA, 2005) have identified the problems raised by poor community 

cohesion. These show that a lack of community cohesion intensifies social exclusion and leads to: 

• a widening of inequalities among people of different backgrounds. The barriers that are identified in this 

chapter increase disproportionately for some BME communities, including asylum seekers, refugees and 

migrant workers 

• an increase in racist attacks and in the violence of racist attacks 

• increasing poor achievement in certain communities in education and in employment. This in turn leads 

to poor levels of self-esteem and confidence or belief in the community’s social value 

• increasing inequalities in access to basic services, such as housing 

• increasing inequalities in health, including lower life expectancy 

• poor information and advice that prevents communities tackling problems 

• polarised and segregated communities. 

The complex range of factors considered in this chapter can combine to create a cycle of deprivation that 

impacts on an individual throughout the course of their life. Intervening at key stages in an individual’s life 

can help to break the cycle of deprivation and social exclusion: 

• the most important is early childhood and even pre-birth, as poverty, deprivation and stress at this stage 

can significantly increase a person’s risk of social exclusion 

• the transition from childhood to adulthood is also a key stage. Supporting young people into meaningful 

work, developing social connections and strong self-esteem can protect them from social exclusion in 

the future 

• life events such as unemployment and relationship breakdown are also important triggers of social 

exclusion. Policy interventions at these key points can help to break the complex cycle of exclusion 

• the evidence clearly shows that older people are particularly vulnerable to the many dimensions of 

social exclusion.


Chapter 3 – Effective interventions 

This chapter considers a range of interventions to address some 

of the issues and problems identified in Chapter 2. Reflecting the 

complex mix of factors that contribute to social exclusion, it comprises 

a number of different elements including prescribed government policy, 

evidence of effective interventions and promising approaches. It also 

reflects the guiding principles laid out by the Social Exclusion Task 

Force, in that it aims to: 

• identify and target those at most risk of social exclusion and 

encourage early intervention 

• identify ‘what works best’ and share that knowledge 

• promote multi-agency working, for example through LAAs 

• ensure individuals understand their right and responsibilities. 

It should be noted that it is primarily focused on flagging up ideas, some 

of which may not be amenable to conventional intervention research. 

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Key 

Where described interventions feature in the current action plan, these are colour-coded with a reference 

to the relevant objective and action. ‘SO1: 2, 3’, for example, relates to actions 2 and 3 under Strategic 

Objective 1. 

3.1 – SO1: To tackle poverty and reduce income inequalities 

As shown in Chapter 2, poverty and discrimination are at the heart of social exclusion. However, many of the 

policies that directly enhance the income of those in poverty are the remit of central Government and are 

beyond the scope of this strategy. 

In terms of regional and local policies, there are five main types of intervention that can help tackle poverty: 

1. policies and actions to promote economic development, investment, enterprise, job and wealth creation, 

particularly in deprived areas and for disadvantaged groups (SO1: 1), eg through the Investing in 

Communities (IiC) programme and LAAs 

2. mainstream services such as health and social care, civil justice resolution, childcare and housing that 

minimise the social impacts of poverty and support people in need. Some of these areas are examined 

separately in other sections of this strategy 

3. local provision of free and subsidised services and activities 

4. policies and provision that target income maximisation, personal indebtedness and financial inclusion (SO1: 2, 3) 

5. policies and practice to tackle discrimination and promote equality and diversity (SO1: 4).

Case study 1 


Norfolk’s Local Area Agreement (LAA) 

Members of the Norfolk County Strategic Partnership have developed a pilot scheme in Great Yarmouth, 

as part of their LAA, to look at defining the number of low income families in over-indebtedness and 

increasing the take-up of welfare benefits. 

When clients make contact with Great Yarmouth Citizens Advice Bureau, Norwich Citizens Advice Bureau 

(which also delivers services in Great Yarmouth) or Great Yarmouth Borough Council Welfare Rights Team 

advisors check their benefit entitlement and ensure this is being claimed. In the first six months of the 

scheme this amounted to an average of £300 additional income per client. 

In addition, clients who contact these agencies with debt problems are asked anonymously to provide 

information, which is helping to build up a picture of levels of over-indebtedness in the Great Yarmouth 

area. This will inform future service provision in the area. 

The Government Office for the East of England (GO-East) has cited this pilot as an example of good 

practice and recommended its wider implementation. Similar projects are now run by Citizens Advice 

in other areas, including parts of Cambridgeshire and Essex, one receiving the following recent 

endorsement from a client: 

I am writing to thank you sincerely for your help in completing the Incapacity Benefit form. 

Your explanation of the system was hugely helpful and left me feeling a great deal more 

confident and much less anxious about the way it all works. 

You were very reassuring at a time when my confidence is low... In addition, your letter was 

very clear and coming so speedily after our meeting was so helpful in clarifying everything. 

3.1 – SO2: To promote access to work, tackle low pay and improve conditions of work 

Since employment is the single most effective means of tackling poverty and social exclusion, improving 

access to the labour market is a key challenge for regional policy. Yet, it is not about providing jobs per se. 

More specifically, it is well-paid, secure employment that helps to move people out of persistent poverty. 

i) Labour market interventions 

Appropriate interventions should reflect the needs of individuals but could include approaches which: 

• increase the take-up of both welfare-to-work and in-work benefits and allowances 

• promote employment as an essential part of the recovery process especially for people with mental 

health needs (SO2: 10). This should be done primarily but not exclusively through health systems 

• offer debt and financial literacy advice and access to sources of credit 

• assess and address basic literacy, numeracy and ESOL (SO2: 2) needs 

• improve ‘employability’ through skills analysis and training support (SO2: 3, 5) 

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• promote Jobcentre Plus disability employment advisors and services offered through Access to Work to 

people with health conditions and disabilities 

• promote Jobcentre Plus New Deal lone parent advisors and support offered to lone parents with training, 

job search and childcare provision 

• promote intermediate labour markets and social enterprise to facilitate entry into the job market for 

disadvantaged individuals 

• promote diversity in the workplace (SO1: 4 and SO2: 1, 2, 3, 6) 

• remove barriers to employment for those with caring responsibilities (SO2: 7) 

• create sustainable jobs as part of economic development strategies 

• improve skills and quality of workforce development for those in low-value jobs (SO2: 1, 2, 4) through 

vocational training and employment practices in the workplace 

• promote the benefits of volunteering (SO4: 4 and SO6: 12) in terms of improving an individual’s skills 

and confidence and providing a valuable ‘stepping-stone’ to future (paid) employment opportunities 

• promote healthy workplaces (SO2: 9). 

While such interventions clearly benefit the individual, there are also longer-term benefits for the community 

as a whole in terms of increased productivity and reduced dependency on welfare benefits. 

Case study 2 

Pathways to Work 

The green paper Pathways to Work: helping people into employment was published in November 

2002, leading directly to the setting up of the Pathways to Work pilots, which included Essex in the 


Under Pathways to Work customers making a new or repeat claim to Incapacity Benefit attend an 

interview with a trained advisor who explains the features of the Condition Management Programme 

(CMP). CMP is a partnership between Jobcentre Plus and the NHS and provides support for customers 

with certain health problems. This voluntary programme does not try to treat the illness but aims to 

improve the customer’s understanding of their condition and offers help and support in dealing with 

the condition. 

To complement the role of the CMP providers, job brokers also help customers to look for work. 

Since the pilot in Essex was launched in April 2004 over 3,500 have found work. 

Jobcentre Plus and primary care trusts in Bedfordshire and Luton have developed an Investing in 

Communities funded project, Healthy Steps to Employment, which is based on the CMP model, 

and which aims to help 850 people move from Incapacity Benefit into work over a three-year period. 

As part of the Government’s wider welfare reforms, Pathways to Work is to be made available nationally 

from December 2007.

Case study 3 


South Essex Partnership NHS Foundation Trust 

South Essex Partnership NHS Foundation Trust is using an individual placement and support approach 

with four community mental health teams (CMHTs) and the Forensic Services Community Team. 

An employment specialist is based within the clinical team and co-works with community psychiatric 

nurses and social workers to achieve the aims of the individual’s care plan in relation to social inclusion 

through paid employment, vocational education and voluntary work. 

Any service user of the CMHT who expresses the desire to return to work is offered the support of the 

employment specialist. This support takes the form of initial discussion about work history, employment 

goals, skills and training, negative experiences at work to be avoided, whether job retention is required, 

and how many hours of work are desired. As soon as clear actions are identified, the job search begins, 

usually within a month of the first meeting. 

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Case study 4 

Migrant workers’ information portal 

In response to the issue of access to information highlighted in Migrant Workers in the East of England, 

EEDA, 2005, a project has been established to provide information and advice to migrant workers through 

a single ‘gateway’. The project is delivered by Advice for Life in Cambridge and Keystone Development 

Trust in Thetford. 

Activities include: 

• a telephone action line providing essential information to migrant workers in six key community 

languages 

• provision of information to migrant workers through weekly live-chat sessions 

• a telephone action line providing essential information to employers, trade unions and practitioners 

working with migrants 

• a website providing information, advice and guidance for migrants and employers. 

The project aims to rationalise the sources and diversity of information by providing a single gateway 

to what is available. This is in line with good practice thinking across Europe. 

For more information visit: www.migrantgateway.eu. 

Case study 5 

The Enterprising Women project 

Although the East of England is one of the fastest growing regions in the country, only a third of its new 

businesses are set up by women. The Enterprising Women project, funded by EEDA’s Investing in 

Communities programme, and delivered by a group of business support organisations, sets out to 

redress the balance. 

Enterprising Women delivers a variety of high quality, tailored training at every stage of a company's 

development. Some topics are particularly relevant to women, such as confidence, fear of failure and 

risk, and others are key challenges for all growing companies, such as increasing sales, growth, pricing 

and value. 

The project’s website, www.enterprising-women.org, features profiles of women-owned businesses in 

the region, along with resources and information. In addition, Enterprising Women runs events all over the 

region, bringing women together around common themes and encouraging new contacts and relationships. 

Women have a pivotal role to play in the region's continued growth and EEDA along with partners 

must tackle the barriers that are stopping as many women as men setting-up their own business. 

David Marlow, Chief Executive, EEDA.


ii) Corporate social responsibility 

The business sector has a key role to play in tackling deprivation and social exclusion. There is scope to 

improve our capacity to harness private sector investment and innovation in the regeneration of deprived 

communities (SO2: 8), which can also pay dividends in terms of business success. For example, there 

is increased recognition of the positive role of businesses as ‘corporate citizens’, committed to socially 

responsible practices in recruitment, investment, vocational training and procurement. 

Public sector corporate practices also offer many opportunities to tackle exclusion, and together with 

procurement policies can support local employment and help to keep money within local economies. 

For example, the NHS spends £5.5 billion per annum on purchasing goods, facilities and services in 

the region (Health & Social Care and Sustainable Development Study, NHS, 2004). 

Case study 6 

The Yard Project, Lowestoft 

Barclays’ Banking on Brighter Futures initiative supports the Yard Project in Lowestoft to work with 

16 – 24-year-olds who are not in education, employment or training. 

The 18 young people currently in the project are transforming a derelict builder’s yard into a training centre 

and community resource. At the same time they are acquiring essential work experience and skills, and 

will also receive help and support to move on to permanent employment when they are ready to do so. 

It is anticipated that ultimately 160 families and members of the community will benefit in some way from 

the project. Indeed, the project already enjoys wide support from local residents, with one couple donating 

fresh water from their own tap each morning, in the absence of a mains supply! 

3.1 – SO3: To improve the life chances of children from disadvantaged families and support 

vulnerable young people in the transition to adulthood 

Policy solutions need to encompass the risk factors that can cause children and young people to be 

vulnerable to exclusion. The following factors have been shown to have a significant impact and therefore 

should be a focus of policy: 

• early childhood interventions, targeted at the most disadvantaged (SO3: 3, 5, 6, 9, 10, 11, 14) 

• measures to raise the quality of childcare and early childhood education for pre-school age children 

(SO3: 4, 7, 10, 12) 

• access to good quality play opportunities, which are essential to mental and physical well-being, 

learning and development (SO3: 4) 

• targeted interventions to support the most vulnerable children and young people through their 

development and focused at key transition points of their lives (SO3: 2, 3, 8) 

• support to parents to encourage them in their parenting roles with targeted and specialist support for 

parents of children requiring additional support (SO3: 7, 12) 

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• raising educational attainment of children and young people (SO3: 2, 3, 11) 

• providing additional opportunities for all young people to develop social skills and knowledge for transition 

to adulthood but using a range of specialist interventions for those most vulnerable to exclusion 

(SO3: 3, 12, 13) 

• targeted interventions within a system which is about helping every child or young person achieve his 

or her potential (SO3: 5, 6, 9, 10, 14) 

• increased access to employment opportunities for lone parents, to redress child poverty (SO3: 1). 

In particular, there is strong evidence to support the cost-effectiveness of early childhood interventions. 

Because early investments lay the groundwork for later success, the benefits of pre-school interventions 

accumulate and are compounded over time. Surestart is an example of public policy, implemented at a 

local level, which provides comprehensive support for families in disadvantaged communities. 

Educational attainment is an important tool for overcoming childhood disadvantage. This is particularly evident 

where programmes are accompanied by measures to support parental involvement, enhance community 

provision of health and social care (as in the full-service extended schools/children’s centre model (SO3: 12) 

and stimulate and extend children and young people’s life experiences through after-school and holiday 

activities. The provision of integrated services is especially important for children with multiple disadvantage 

or complex needs.

Case study 7 



Young Community Champions 

Laura McPartlin successfully applied for a Pathfinder Young Community Champions award. Her grant 

enabled her to undertake training in creative musical techniques, building on skills gained during her 

drama degree. Subsequently she has been organising workshops in Peterborough which target 

disadvantaged young people from a range of ethnic backgrounds. As well as using drama and 

movement to help build relationships within the group and confidence within individuals, the 

workshops are also used to explore aspects of healthy living and other issues affecting young people. 

Fusing different performance styles can build a creative understanding within the group you are 

working with and can open people’s minds to the diversity in the world around us and enable 

them to develop as members of their community. 

Laura McPartlin, Pathfinder Young Community Champion 

Case study 8 

Young people and culture 

In Wisbech headteachers are keen to ensure that their children and young people make full use of the cultural 

opportunities on their doorstep. They are working together with Cambridgeshire Community Services and 

Museums, Libraries and Archives East of England to define what is ‘on offer’ culturally in the locality and 

to maximise the potential of local collections, places and people in drawing communities together. 

This encourages children and young people to grow up understanding where the people who make up 

their community come from, their stories and their traditions, helping them to develop their own sense 

of identity as well as providing role models to inspire active citizens of the future. 

This model is also being trialled in Lowestoft, Thurrock and Stanway. 

When the Government consulted children, young people and their families, they wanted an approach which 

was about every child achieving his or her full potential and in which children, families, communities and 

professionals worked together. 

There was a broad agreement that the following five key outcomes really matter for children and young 

people’s well-being: 

1. being healthy: enjoying good physical and mental health and living a healthy life-style 

2. staying safe: being protected from harm and neglect and growing up able to look after themselves 

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3. enjoying and achieving: getting the most out of life and developing broad skills for adulthood 

4. making a positive contribution: to the community and to society and not engaging in anti-social or 

offending behaviour 

5. economic well-being: overcoming socio-economic disadvantages to achieve their full potential in life. 

(Every Child Matters, 2003) 

Raising aspirations is a key priority for improving the life chances of young people and supporting the 

transition to adulthood, but they cannot be expected to work on their own. Family relationships and 

family life have a significant influence, family policies need to be considered alongside youth and 

education policies (SO3: 12). 

Enhancing personal and social development for young people is an area in which the voluntary and statutory 

youth services have particular expertise. 

Case study 9 

Romsey Mill’s Young Parents’ Programme 

Romsey Mill is a Cambridge charity which specialises in work with socially excluded youngsters and 

developing activities with families in the surrounding community. 

Their Young Parents’ Programme equips teenage parents with the skills required to break the cycle of 

exclusion that entraps them and their children. The programme teaches teenage parents and expecting 

parents through home visits and tailored courses and provides the ongoing support required for them 

to progress. Courses also contain embedded learning on literacy and IT use. 

I wish school had been like this. It feels nice and small and comfortable and I get talked to like 

an adult. Reckon I would have got my GCSEs if it had been like this, but I bunked off all the time. 

Programme participant 

Youth services within the East of England region have a range of activities and services which work effectively 

with young people around substance misuse, teenage pregnancy, anti-social and risky behaviour as well as 

providing a wide range of opportunities for all young people. This expertise has been put to good use in the 

holiday activity programme Positive Activities for Young People where the target groups are those at risk of 

offending, or poor school attainment and the programme activities encourage community cohesion in areas 

where inter-racial tensions are apparent. 

Sport and access to nature are also very effective means of tackling social exclusion and promoting 

well-being. The Regional Woodland Strategy promotes the establishment of a number of forest schools 

(SO3: 3) in the region, a concept that has developed from the important role of play in learning. The forest 

school provides a permanent, natural but safe setting, in which children have the freedom to roam and to 

experience the natural world through practical activities. They are mainly aimed at pre-school age and Key 

Stage 1 children, but older, disaffected children and those with learning difficulties can thrive in the positive 

atmosphere.


More generally, the relationship between children and young people and their environment, creating a 

sense of ownership and place, is now recognised as an important element of education. The Government’s 

Sustainable Schools Programme aims to integrate high standards of achievement and behaviour with goals 

of healthy living, environmental awareness, community involvement and citizenship. 

Positive Futures is a Home Office managed programme that aims to address social exclusion by using sport 

to engage and work with marginalised young people. It seeks to have a positive influence on a participating 

individual’s drug use, physical activity and offending behaviour by widening horizons and access to lifestyle, 

education and employment opportunities. 

Every Child Matters (2003) is changing the landscape and the culture of the delivery of services for children 

and young people in England. The structural and practice changes it proposes to drive forward better services 

for children are designed to enhance the protection of all 0-19 year olds and promote their well-being through 

developing preventative work and better shared information about children’s needs. It also aims to maximise 

potential, especially by improving educational attainment, reducing youth offending, improving children’s 

health, particularly mental health (SO3: 9), and reducing teenage pregnancy. Underpinning all this work is 

a commitment to consult and involve children and young people, as well as their families, in the design 

delivery and evaluation of the services provided to them. 

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Case study 10 

Braintree Community Sports Project 

This is a social inclusion project run by Braintree District Council in partnership with Nacro. The project 

uses sport, predominantly football, as a tool to engage young people who are excluded from school, 

have particularly challenging backgrounds or behavioural and learning difficulties. 

Through structured opportunities for young people to take part in sport and physical activity, the project 

aims to reduce anti-social and nuisance behaviour, increase self-esteem, communication and teamworking 

skills and provide positive role models. 

It has given me patience and respect and made me better at football and I have learned to respect the 

other people on the pitch and hopefully I can use the skill I have learned like patience and respect in 

my classroom so that I don’t get into trouble. 

14-year-old project participant 

Government’s policy focuses on four main areas: 

1. supporting parents and carers with better universal services (eg schools, health), in addition to targeted 

and specialist services and some compulsory orders to help combat youth offending 

2. early intervention and effective prevention, with improved information sharing, common assessment, 

a clear lead professional for children using services and multi-disciplinary teams working closer to the 

communities in which children and young people live 

3. accountability and integration locally, regionally and nationally, with children’s services directors 

accountable for local authority education and social services; a lead council member for children; 

key services integrated into children’s trusts and local safeguarding children’s boards to improve 

child protection services 

4. workforce reform to improve the recruitment, training and retention of children and young people’s workers 

(SO3: 13), supported by a workforce reform strategy. 

(Every Child Matters, 2003) 

i) Education 

The key policy areas for children and young people’s learning and education that impact most on social 

exclusion are: 

• early years education 

• consistently high standards of teaching and learning 

• support for times of transition, primary to secondary and post-16 

• the integration of disadvantaged pupils and those at risk of exclusion 

• opportunities for informal learning through high quality youth work and personal development 

opportunities, especially with vulnerable and disaffected young people


• education in the wider community. 

The following interventions have been shown to be effective: 

early years education 

• Access to pre-school education increases attainment in national assessment tests as well as having a 

positive impact on ‘school commitment’, thereby reducing the risk of disaffection and delinquency during 

schooling in later years 

• The integration of family support with education (SO3: 12), as in the developing children’s centres 

programme, and in full-service extended schools 

• Access to high quality educational provision in early years, which will typically include small numbers of 

pupils, a balanced curriculum and well-trained staff. 

consistently high standards of teaching and learning 

• A range of educational interventions to promote the development of best practice, often by linking schools 

together as in education action zones and excellence clusters 

• Specific initiatives to encourage the recruitment and retention of quality teaching staff aimed at areas of 

deprivation where this can be problematic 

• A whole school approach to being, for example, a ‘specialist school’ in IT (information technology), sports 

or arts or by becoming a ‘healthy school’. The National Healthy Schools Standard has been shown to 

contribute to school achievement and other social outcomes: an accredited local healthy school 

partnership can be the delivery agent for a range of interventions 

• Programmes of learning in schools, which offer more variety and flexibility for individual pupils, particularly 

at Key Stage 4, such as 14-16 vocational GCSEs or the flexibility to mix work experience, academic study 

and community learning within the proposed 14-19 curriculum strategy. 

Case study 11 

Junior Youth Inclusion Project 

Suffolk County Council’s Extended Schools Western Area team has successfully piloted a Junior Youth 

Inclusion Project for Mid-Suffolk in partnership with the Youth Offending Service. The project targets 

youngsters between the ages of eight and 13 who are in danger of being excluded from school, 

and aims to prevent and reduce their involvement in youth crime and anti-social behaviour. Parents 

are also offered support in dealing with their children. 

The project provides a structured programme of activities through the summer holiday and one or two 

evenings a week during term time. These include art, drama and music workshops, games, sports, 

movie-making, play sessions and visits to attractions such as Colchester Zoo and Thorpe Woodlands. 

One of the project’s opening events was a street art competition in Stowmarket Town Square which 

was attended by the young people, their families, council dignitaries and education personnel. 

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support for times of transition, primary to secondary and post-16 

• Programmes tailored to support the transition phase and to maintain levels of achievement (SO3: 2, 3, 8) 

are already established: extra-reading support, programmes to improve social skills and tackle risky 

behaviour, additional curriculum support after transition as in the Key Stage 3 improvement programme, 

individual mentors or personal advisors as provided by the Connexions Service. 

the integration of disadvantaged pupils and those at risk of exclusion 

• Access for all pupils to full-time education that takes account of their particular needs, including pupils 

with physical impairments, learning and multiple disabilities, those liable to exclusion; those from BME 

backgrounds, those from Gypsy and Traveller families (SO3: 6), those with English as a second language, 

including those who have experienced trauma as refugees and asylum seekers and separation from their 

own parents (SO3: 5) 

• Specific intervention projects when pupils fall behind, for whatever reason, to accelerate their educational 

achievement. These include behaviour programmes and support around attendance such as the 

Behaviour Improvement Programme. Connexions offers a youth support service for 13 – 19-year-olds, 

which integrates support programmes for young people including those who are linked to the Youth 

Offending Team (YOT) or Social Services. 

opportunities for informal education and education in the wider community 

• A range of youth work activities, such as arts and sports, to re-engage young people who have become 

socially excluded as well as providing diversionary work for those who are at risk 

• Activities which develop confidence and social skills as well as challenging risky behaviour. These 

may be linked to volunteering or active citizenship and may provide opportunities to gain accredited 

qualifications in informal and community settings when young people have become excluded from 

mainstream opportunities. Examples of this are the Youth Inclusion and Support Panel (YISP) 

programmes developed by YOTs and the Neighbourhood Support Fund programme, operating 

in community settings, with success at re-engaging young people in education and employment, 

or providing learning in informal settings for young parents 

• Multi-agency approaches for referral and support for children and young people, which strengthen 

the effect of this work, and initiatives which link more formal statutory services with their communities, 

such as full-service extended schools 

• Flexible approaches to address the challenge of delivering learning to mobile pupils including Gypsies 

and Travellers and those who miss schooling for significant periods, such as those with chronic illnesses.

ii) Child poverty 


Case study 12 

The Speak Out project 

For young Travellers, racist bullying, fear of racist bullying and a conviction that nothing will be done to 

counter it when it occurs are serious barriers to access and retention in schools. After consultation with 

young Travellers, 68% of whom stated they had experienced racism or prejudice, Cambridgeshire’s Race 

Equality and Diversity Service set up the Speak Out project. 

Speak Out has helped to raise awareness of this issue and has enabled parents, young people, school 

staff and other professionals to work together to explore solutions. The project has also produced a CD, 

Atch Poggering Mande (Stop Bullying Me)*, with young people, their families and schools that can be 

used at local and national level to illustrate issues of racism and strategies for challenging and tackling it. 

One of the many positive outcomes of the project is that Traveller parents and their families have reported 

feeling more valued, which in turn has had a positive impact on children’s learning. 

* Copies of the CD can be requested from: Team for Traveller Education, Cambridge Professional Development 

Centre, Foster Road, Trumpington, Cambridge, CB2 2NL, Tel. (01223) 508 700. 

Jobcentre Plus’ New Deal Lone Parent Advisors have contributed to a reduction in lone parents claiming 

Income Support in the East of England. (SO3: 1) Since 2000 the number of lone parent claimants has 

fallen by over 9,000 to under 55,000. 

Childcare remains a key issue for all parents returning to work or training. To increase the take-up of formal 

childcare and introduce more parents to children’s centres, Jobcentre Plus has introduced childcare 

partnership managers, who are raising awareness of local provision and increasing access to Jobcentre 

Plus services from children’s centres. 

One such childcare partnership manager in Norfolk reports that ‘many parents find it daunting to access our 

services in the formal environment of our offices. The Government’s aspiration to provide a children’s centre 

in every community by 2010 has enabled us to engage positively with our customers in a more informal and 

child-friendly environment.’ 

iii) Parenting 

Parenting is a key element of the new Department for Children, Schools and Families’ strategy for addressing 

disadvantage and exclusion. As a precursor to this, in October 2006 the Government published parenting 

support guidance for local authorities in England, in which they were asked to: 

• develop a strategic and ‘joined up’ approach to the design and delivery of parenting support services, 

ideally through a parenting support strategy (SO3: 7) 

• view support for parents as a continuum, from early intervention and preventative services through 

to the use of enforcement measures 

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• identify a single commissioner of parenting support services and commission parenting support services 

that are evidence based and draw on relevant guidance. 

In early 2007 the Government announced an additional £7.5 million to support local authorities to develop and 

implement local parenting support strategies. At a regional level, the Government Office parent support lead is 

now working with local authorities to take forward the parenting support agenda. 

Some recent parenting support developments include: 

• a Commissioner’s Toolkit developed for single commissioners of parenting support in local authorities and 

others in similar roles across England. This is a searchable database of information on the most effective 

and replicable parenting programmes. For more information visit www.toolkit.parentinguk.org 

• transition information sessions (TIS) (SO3: 8) providing information and advice for parents at key transition 

points in their children’s lives. TIS are for all parents of the new intake of pupils joining a school, usually 

in Reception or Year 7. They also form part of the core parenting support offer in extended schools and 

can cover a number of topics, including school-based issues, healthy eating, bullying and substance 

misuse. For more information visit www.teachernet.gov.uk/transition 

• a two-year pilot in Cambridgeshire and other areas around the country to provide parent support advisors 

(PSAs). PSAs will have a preventative school-based role to support parents, particularly around their 

children’s behaviour and attendance 

• family intervention projects piloted in Southend and Ipswich and other parts of the country. These involve 

intensive tailored action with supervision and clear sanctions to improve the behaviour of persistently 

anti-social households. 

vi) Health 

The potentially devastating impact of life-threatening or life-limiting illnesses on children and their families 

can be ameliorated by holistic, family-centred care in hospices, the family home and other settings (SO3:10). 

Case study 13 

East Anglia Children’s Hospices (EACH) 

EACH offer a range of services to support children and young people with life-threatening and life-limiting 

conditions and their families. An individual care plan is written for every child, in agreement with their 

parents. This is then put into action by a multi-disciplinary team, liaising closely with each other and with 

other professionals involved in supporting the family to ensure continuity of care and that all needs are 

met, whether physical, emotional, social or spiritual. 

EACH acknowledges that the family are the experts in their child's care and are guided by their 

knowledge, endeavouring to continue their chosen pattern of care. Families can use either hospice or 

community care options, the latter providing a family support service and a community palliative care 

service. For more information visit www.each.org.uk.


3.1 – SO4: To improve the life chances of adults through learning and skills development 

There are many adults in the region with literacy, language, ESOL (SO4: 2) and numeracy (SO4: 1) needs 

that prevent them from getting jobs, progressing at work, helping their children learn and being active in their 

local communities. 

i) Skills for Life 

Skills for Life (SfL), the national strategy for improving adult literacy, language and numeracy skills, was 

launched in 2001 and aims to improve the basic skills of 2.25 million adults between 2001 and 2010, with 

a milestone of 1.5 million by 2007. 

The focus of SfL is broad, covering literacy, numeracy and ESOL provision for adults ranging from pre-entry 

to Level 2 (see Framework of National Standards for Literacy and Numeracy, page 29). 

The Learning and Skills Council (LSC) is committed to reducing the number of adults and young people in 

the region with skills gaps and needs and increasing the number with SfL qualifications. The LSC’s East of 

England Skills for Life Strategy (2007) states that all learners in the East of England should be entitled to: 

• access to initial and diagnostic assessment 

• an individual learning plan setting out learning aims, goals and the smaller steps that the learner will take 

in order to achieve their goals 

• flexible programmes to meet their individual learning needs 

• teachers who give regular, constructive and recorded feedback and who are able to use a range of 

teaching approaches 

• opportunities to take recognised national qualifications at the appropriate level 

• guidance to help plan progression into other learning, training and employment opportunities. 

The strategy also states that all SfL programmes in the region should seek to: 

• offer a positive learning experience for learners 

• extend the reach of SfL to new audiences 

• provide support to learners to improve completion and achievement rates across a range of programmes 

• boost the confidence of learners to take up progression opportunities 

• increase the number of individuals accessing and achieving national qualifications 

• increase the achievement and completion rates of all learners on all types of programmes 

• promote links to other learning and employment opportunities. 

National performance 

Between 2001 and October 2006, 1.6 million learners achieved at least one qualification that counted towards 

the targets and 4.7 million learners took up 10.4 million learning opportunities. 

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Regional performance 

In the East of England since 2001, 424,246 SfL learners have taken up 818,724 learning opportunities 

resulting in 131,074 people gaining qualifications that count towards the national target. By July 2006 

the LSC had achieved 79% of its regional 2007 milestone for the target to improve basic skills. 

Case study 1 4 

Inspiring Skills for Life learners 

Museums, Libraries and Archives East of England developed the All Aboard! programme to explore how 

museums, libraries and archives and Skills for Life providers could work in partnership to benefit learners. 

Six pilot projects, addressing either literacy, ESOL or numeracy, took place around the region in areas of 

skills need such as Great Yarmouth, Lowestoft and Luton. 

Projects included partnerships with further education colleges and family learning initiatives. They focused 

on developing activities at a museum, library or archive that would embed Skills for Life learning. These 

included using the People’s Network of Computers, specially selected book collections, object handling 

sessions, research into local history and family numeracy trails. 

The projects enabled many learners to experience museum, library and archive services for the first time. 

An evaluation showed that learners and tutors felt motivated and inspired and that the understanding of 

concepts was enhanced by applying them to real-life contexts. Many students talked about continuing 

their studies and sharing their learning experiences with families. 

Case study 15 

Embedded Skills for Life support 

West Suffolk College provides Skills for Life courses in adult literacy, numeracy and IT which address 

some of the social and educational issues surrounding learning and personal development. Vocational 

tutors offer embedded Skills for Life support, either in class or at other arranged times. This might be in 

college or in a community setting such as work-based learning. 

ii) The East of England Skills and Competitiveness Partnership (EESCP) 

EESCP was established in September 2005 to lead a step-change in the region’s skills base by better 

co-ordinating resources and activity between a range of delivery partners. As a working partnership EESCP 

brings together the people, businesses and investment needed to achieve world-class skills, jobs and growth 

in line with the East of England Regional Economic Strategy. EESCP’s Framework for Action 2006-2009 sets 

out the partnership’s four strategic goals: 

1. strengthen the East of England’s business base (SO4: 3, 4, 5, 6) 

2. develop a culture of lifelong learning (to include developing the skills base of disadvantaged groups) 

(SO4: 1, 2, 3, 4, 5, 7, 8)


3. create opportunities for disadvantaged groups and communities (SO4: 5, 7, 8) (by targeting efforts on 

disadvantaged localities and groups where the employment rate is low, including people with disabilities 

and longer-term illnesses, lone parents, Black and minority ethnic groups and older adults) 

4. invest in sustainable economic growth (SO4: 4, 5, 6) (to include investing in disadvantaged communities). 

These goals will be achieved largely through six core work programmes: 

1. implementing Sector Skills Agreements 

EESCP will work with sector skills councils to implement all approved regional sector skills agreements 

(SSAs). The construction SSA is already in place and being used as a pilot. 

2. delivering Train to Gain 

Train to Gain is a programme to help businesses get the advice about the quality training and funding 

needed to boost productivity. This can include free training to help low skilled employees gain their first 

full Level 2 qualification and first Skills for Life numeracy and literacy qualification. In the East of England 

EESCP has played a key role in the design and development of Train to Gain and will help to co-ordinate 

delivery of the service. 

3. improved 16-19 progression 

Progression from Level 2 qualifications at age 16 to Level 3 qualifications at age 19 is well below that 

of other regions, leading to low participation rates in further education (FE) and higher education (HE). 

EESCP is working towards improved access to impartial advice and guidance, demonstrable 

improvements in participation and achievement rates for disadvantaged groups and increased 

FE and HE participation and learning. 

4. implementing the regional business support strategy 

EESCP has steered the development of the Better for Business regional business support strategy, 

which will provide a more coherent, integrated and accessible range of services to the region’s business 

community. Among its priorities, the strategy has recognised the need to provide adequate support for 

under-represented groups who could potentially become more entrepreneurial. 

5. supporting local area agreements 

EESCP has identified that the ‘economic development and enterprise’ theme of LAAs provides an 

opportunity for regional and local partners to align funding and deliver to improve skills, education, 

employment and competitiveness against agreed objectives. The partnership will work towards 

encouraging local partners to reflect EESCP priorities for improving skills, education, employment and 

competitiveness within their LAAs (SO4: 6) and identifying an LAA pilot to test how EESCP and local 

partners can work together effectively to achieve the best results at a local level. 

6. a compelling higher education offer 

On the basis of places per capita, the East of England has the lowest higher education provision in the 

country. In response, the region has embarked on a major HE capital expansion programme, particularly 

to increase HE provision in parts of the region where participation is low. University Campus Suffolk is 

the most advanced example to date with developments and plans being progressed at Southend, 

Peterborough, Thurrock, Harlow/Stansted and Bedford. 

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Case study 16 

Dining with a Difference 

EESCP recently hosted Dining with a Difference, a special dinner event to celebrate and raise awareness 

of the benefits of employing disabled people. 

The event provided a leading disability consultancy with the opportunity to take employers through a four 

course meal, highlighting at each course how disability affects their employees, their customers and clients 

and the communities in which they do business. Diners were encouraged to share personal experiences 

and views and consider in practical terms what needs to be done if their companies are to build on their 

achievements. 

Anne McGuire, Minister for Disabled People, who attended the event, said 

Dining with a Difference has enabled employers to take the time out and explore the positive benefits 

of being a ‘disability confident’ organisation. If employers take on the role of championing disability 

issues it will go a long way to help address barriers that disabled people face within the labour market. 

Anne McGuire also spoke about the changing demographics in the region and the convincing case for the 

business benefits a flexible approach to workforce diversity brings. 

Comments from guests included: 

I was genuinely moved and educated. The scale of the needs and indeed the value of economic inclusion 

of this 'forgotten' section of work-capable society was brought to our attention in a delicate yet forceful way. 

3.1 – SO5: To promote active ageing and reduce social exclusion of older people 

‘Active ageing’ is a concept championed by the World Health Organisation, as the central theme of a policy 

framework to promote healthy and active lives. It is defined as ‘the process of optimising opportunities for 

health participation and security in order to enhance quality of life as people age.’ 

This can include participation of older people in social, economic, cultural, spiritual and civic affairs (SO5: 1), 

as well as the ability to be physically active and to participate in the labour force (SO1: 4 and SO2: 6). 

While not all older people will experience social exclusion, some of its causes can also be a barrier to active 

ageing, such as difficulties in accessing services, including transport. 

i) Housing and health 

Making the links between housing, health and social care is crucial to ensuring holistic service provision for 

those older people most vulnerable to social exclusion. Housing specifically designed to meet the needs of 

older people may enable them to live independently for longer. The Regional Housing Strategy for the East of 

England: 2005-2010 (EERA, 2005) recommends an increase in the availability of Home Improvement Agency 

(HIA) services across the region (SO6: 3). HIAs assist vulnerable homeowners or private sector tenants who 

are older, disabled or on low income to repair, improve, maintain or adapt their homes. By improving people's 

living conditions their quality of life is enhanced and they are able to remain in their homes in greater comfort 

and security.


Research has suggested a number of other ways in which housing policy can help to minimise the effects of 

social exclusion (The Implications of an Ageing Population for the Sustainable Development of the East of 

England, Population Ageing Associates, 2003): 

• use of demographic information in the planning of public and private housing and associated infrastructure 

• as identified in the Sustainable Communities Plan, ensuring an inclusive approach to the planning of 

growth areas that takes account of the needs of older people as well as other disadvantaged groups 

in need of affordable housing (SO6: 2) 

• Lifetime Homes incorporating design principles that enable people to remain in their home following 

a change in circumstances such as developing a disability 

• Smart Homes with technological measures to prevent falls and other accidents, assisting older people 

to stay in their homes as long as they wish. 

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Case study 17 

Home Shield Suffolk 

This is a service provided by a partnership of organisations who work together to provide for all the unmet 

needs of vulnerable older people who are visited in their homes by a person from one of the partnership 

organisations. Simple and cheap to run, the only significant cost is that of providing a co-ordinator. 

Vulnerable older people benefit greatly from this integrated service. For example, if a client was visited by 

the Pension Service to help them claim for Attendance Allowance, the visitor might notice that the client’s 

front door is not secure, or that there is no smoke detector or that the client has not seen anyone for 

weeks. One referral through Home Shield will put other relevant organisations in touch with the client, 

so they can benefit from services such as Key Safe from the local Handy Van scheme, ten-year smoke 

alarms from the Fire Service and befriending through Age Concern. 

Case study 18 

Supported housing for older people 

Built in partnership with Hertfordshire County Council and Welwyn Garden City Housing Association, Swan 

Field Court is a fully self-contained purpose-built supported housing scheme for older people with mild to 

moderate dementia. 

Located in the grounds of the Queen Victoria Memorial Hospital, the building contains ten flats. Eight are 

one-bedroom and two are two-bedroom properties, suitable for couples or a single person living with a 

carer. Every resident referred to the unit had been occupying an acute or community hospital bed. 

This is the first unit of its kind in Hertfordshire. 

With regard to housing conditions, the UK Fuel Poverty Strategy together with winter fuel payments and other 

energy efficiency measures aim to end fuel poverty among the elderly by 2010 (UK Fuel Poverty Strategy, 

4th Annual Progress Report, 2006).


Case study 19 

Warmer homes for older people 

Western Suffolk Local Strategic Partnership is in the process of developing a targeted referral system 

for vulnerable older people who are suffering from fuel poverty. 

The project will provide a single referral point to access help through the Government’s Warm Front 

scheme, ultimately aiming to alleviate fuel poverty. Home visitors, including those who refer through 

Home Shield (Case Study 17 above), will be trained to recognise fuel poverty and to advise on help 

which is available. 

A similar scheme has been set up by Luton Borough Council and partners and is underpinned by the 

Borough’s Affordable Warmth Strategy. Building on the success of this project, Luton Borough Council 

now advises other local authorities on setting up affordable warmth schemes and is a member of the 

Government’s Fuel Poverty Advisory Group. The importance of the project has been acknowledged by 

the fact that Luton’s local area agreement now contains three targets relating to affordable warmth. 

The Government has set out a series of National Service Frameworks intended to drive up standards in health 

and social services. The National Service Framework for Older People was established in 2001 and aims to 

improve services for older people by focusing on: 

• rooting out age discrimination (SO5: 2) 

• providing person-centred care 

• promoting older people’s health and independence (SO5: 4) 

• fitting services around people’s needs (SO5: 1). 

The Social Services Inspectorate has since identified the need for further work by Social Services 

departments to address the gaps in provision for certain groups such as older people with mental 

health difficulties, visual and other sensory impairments and older people from ethnic minorities 

(Health Inequalities: a programme for action, Department of Health, 2003). 

Many local authorities operate ‘passport to leisure’ schemes or offer concessionary rates for older people 

wanting to remain active. There are also a number of examples around the region of sports centres working 

in partnership with local primary care trusts (PCTs) and other health agencies to offer a range of sports and 

recreational facilities (SO5: 4). 

ii) Income 

Given the increased risk of poverty for those people who stop working before state retirement age, there is 

a general policy shift towards promoting the participation of older people in the labour market (SO2: 6). 

The Government has proposed making later retirement more financially attractive by increasing the public 

sector retirement age and giving employers greater flexibility in determining retirement age. Other 

organisations such as PRIME are working to help over-50s to set up in business. 

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To successfully include older people in the labour market, employers and policy makers must consider offering 

jobs which are geared to the circumstances, needs and financial objectives of the over 50s. It is essential to 

have opportunities for career change including advice, re-training and re-skilling, both for those already in 

employment and those wishing to return. 

Appropriate advice at the right time is also key to helping people make the right decisions about their 

finances as they get older. For women in particular, advice needs to take into account the patterns of their 

lives, such as the fact that more women are in part-time work and may not be members of their employer’s 

pension scheme. 

The current pension system is complex, with means testing used to identify those entitled to additional 

support. Credits are available where individuals have not been able to make pension contributions through 

paid employment. Age Concern has called for the reform of the pensions system so that all contributions, 

no matter how small (including those who choose caring over their career) are rewarded. 

As far as older people from Black and minority ethnic communities are concerned, research suggests a 

variety of measures can help overcome the barriers to claiming benefits to which they are entitled (Delivering 

Benefits & Services for Black and Minority Ethnic Older People, Barnard & Pettigrew, London, DWP, 2003): 

• a specific strategy for benefits services aimed at understanding individual communities 

• partnership working between the Government, local authority and voluntary and community sector 

• outreach and face-to-face service provision 

• language-specific helplines and use of community specific media 

• voluntary sector resourcing 

• measures to reach isolated older people. 

iii) Communities 

Voluntary and community work offers a range of opportunities for older people to develop both their skills 

and wider social networks. People who stop work before the state retirement age and do not find alternative 

employment are particularly vulnerable to social exclusion. Yet, in general, they are not replacing paid work 

with community activities despite the benefits that may be derived in respect of personal confidence, social 

contact and learning new skills. Several interventions have been suggested to increase community 

involvement amongst older people (Winning the Generation Game, PIU, 2000): 

• diversity and flexibility in employment, including reducing hours in the last years of employment, 

which will also create time for volunteering (SO5: 3) 

• introduction of national and regional schemes for volunteering (SO6: 12), offering more attractive 

opportunities to put their experience to good use, for example through mentoring and befriending 

• introduction of pilot schemes to recognise and reward volunteering activity, including through small 

stipends and in-kind benefits


Case study 20 

St Margaret’s Befrienders 

Gill Jackson successfully applied for a Community Champions Fund Award to set up St Margaret’s 

Befrienders, following her experience of befriending an elderly person in her community over a 

nine-year period. 

During this time the elderly person befriended by Gill moved from sheltered accommodation to a 

residential home and latterly to a nursing home. This gave Gill an insight into the various institutions 

and services available for elderly people and highlighted the need for befriending schemes. 

St Margaret’s Befrienders has now been running for over two years and currently provides volunteers 

to visit 15 housebound elderly people, most of whom have few other visitors and may not have left their 

homes for many weeks. In addition, they have also extended a ‘listening ear’ to up to 30 other elderly 

people, some of whom may need regular visitors in the future, but who are more mobile at present. 

For these people they run coffee mornings, providing transport and refreshments. 

However, it is not just the elderly people who are visited that benefit from the scheme. As Gill says: 

The unexpected benefit has been the confidence volunteers gain from their role, many of whom 

have not been employed for some years. 

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Case study 21 

Social activities for older people 

In partnership with Age Concern Hertfordshire and Adult Care Services, Welwyn Hatfield District Council 

has set up an Asian Elders Lunch Club. 

By providing free door-to-door transport the club enables older Asian residents to meet once a week, enjoy 

a meal together and get support from an Asian community worker. Members of the group are able to join 

in with activities and socialise with other service users. 

Another partnership between the council and Age Concern provides computer training to older people and 

the facilities for them to use the internet in a purpose-built computer suite in a local community centre. 

The council also runs a popular Shopper Hopper scheme which helps older people who find using public 

transport difficult remain independent by taking them to the local supermarket once a week and providing 

help with carrying the bags of shopping to the front door. Wheelchair accessible buses take people from 

the surrounding villages to the main towns and the trip becomes a social occasion as well as a means of 

stocking up on essentials. This service has recently been extended to include support for older people to 

visit relatives in local hospitals.


3.1 – SO6: To support the development of sustainable communities 

i) Housing 

While housing policy can both trigger and reinforce social exclusion, it can also make a significant contribution 

to creating mixed, sustainable communities (SO6: 1). The following themes provide the policy focus for 

achieving long-term change: 

• increasing supply to provide quality, affordable homes for those in need 

• promoting, mixed sustainable communities 

• supporting residents, tenants and the community. 

The Government’s long-term programme for delivering sustainable communities – places where people want 

to live and work, now and in the future - is set out in the Sustainable Communities Plan (2003). This identifies 

four growth areas, three of which are wholly or partly in the East of England. The aim of these is sustainably 

to provide 200,000 additional homes above previously planned levels by 2016. 

The three main themes of the current Regional Housing Strategy (2005-2010) reflect housing’s central role 

in promoting sustainable communities: more, sustainable housing provision; high, quality homes and 

environments; creating inclusive communities. 

EERA’s Housing & Sustainable Communities Panel performs the functions of the Regional Housing Board 

and has recently submitted to Government the East of England Housing Investment Plan 2008-11. This sets 

out EERA’s recommendations to ministers on how to allocate housing capital investment in the region during 

2008-11. The plan’s recommendations were informed by the Regional Housing Strategy and advice received 

from the housing sub-regions. 

Increasing supply to provide quality, affordable homes for those in need 

The region’s highest priority is the provision of new, affordable housing (SO6: 2), reflected in the allocation 

of 85% of housing capital investment during 2006-08. Yet, the funding will deliver half the identified need 

of 11,000 new, affordable homes per year. In recognition of the region’s acute housing stress, EERA has 

recommended to Government that the bulk of the housing investment during 2008-11 is again allocated to the 

provision of new, affordable housing, and for new and refurbished pitches for Gypsies and Travellers (SO6: 5). 

Maximising the use of existing stock also helps to increase supply. For example, by bringing back into use 

empty homes and investment in the private rented sector stock. EERA has recommended that 5.17% of 

housing capital investment during 2008-11 is targeted at achieving and maintaining the Government’s 

PSA7 target that by 2010 at least 70% of vulnerable households in the private sector have decent homes. 

It proposes to establish a fund to support interventions at a regional scale, drawing on the advice of the 

region’s Private Sector Working Group and national and regional good practice. The advantage of such an 

approach is the option of integrating other funding streams such as DEFRA’s (Department for Environment, 

Food and Rural Affairs) Warm Front. It is also proposed to explore loan/equity release schemes that enable 

the ‘recycling’ of funds as well as to target a proportion of the funding in response to sub-regional bids, with 

a strong emphasis on the Decent Homes agenda. The region is on target to meet the Decent Homes standard 

in public sector housing stock by 2010, with all stock-holding local authorities having completed appraisals in 

2005 demonstrating how the standard would be met. 

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The most effective means of tackling homelessness is to strengthen prevention measures and increase 

housing supply (SO6: 4). The Homelessness Act 2002 strengthened rights for homeless households and 

placed increased duties on local authorities, including the duty to develop a homelessness strategy. The 

purpose of such strategies is to prevent homelessness and ensure that accommodation and support is 

available for people who are homeless or at risk of homelessness. Building on the development of more 

mature sub-regional housing structures and relationships, a number of sub-regions are exploring the 

option of developing sub-regional homelessness strategies. 

Recent research (Homelessness Statistics June 2007 and Local Authority Survey of Homelessness 

Prevention – Policy Briefing 19, Communites and Local Government, 2007) reflects the shift in emphasis 

towards prevention of homelessness. The five most successful prevention measures (in order) were rent 

deposit schemes, mediation, advice on housing options, dialogue with landlords and home visiting. The 

top three reported by local authorities in the East of England mirrored the national picture (rent deposit 

60%; advice on housing options 40%; home visits 29%). 

The Regional Homelessness Advisory Panel (RHAP) was established in July 2006 with the aim of providing a 

regional focus for homelessness issues, including effective regional communication and co-ordination across 

agencies and strategies and the sharing of good practice. The RHAP is one of a number of task groups that 

support implementation and delivery of the Regional Housing Strategy and is expected to play an important 

role in contributing to the evidence base for the next Regional Housing Strategy to be published in 2010. 

Promoting mixed sustainable communities 

Nationally, two-thirds of social housing is still located within areas originally built as council estates (Ends 

and Means: The future roles of social housing in England, Hills, ESRC Research Centre for Analysis of Social 

Exclusion, 2007). Over the past ten years social landlords have introduced a range of initiatives to promote 

mixed tenure on both new and existing developments to support increased household mix and reduced 

stigmatisation – the key to long-term sustainability. The recently published Planning Policy Statement 3, 

Housing (2006) provides the planning framework for achieving these objectives. Specific outcomes include 

a mix of affordable and open market housing, particularly in terms of tenure and price to support a wide 

variety of households in both urban and rural areas, and housing developments in suitable locations, which 

offer a good range of community facilities and with good access to jobs, key services and infrastructure. 

A feature of the housing market in recent years has been the growth of the ‘intermediate housing market’ which 

reflects the growing affordability problem. In 2005 the Government’s five-year sustainable communities plan, 

Homes for All, established HomeBuy, a low cost home ownership programme aimed at people on lower incomes 

who cannot afford to buy without this support. It builds on and incorporates the Key Worker Living Programme 

which was launched in 2004 and targeted public sector key workers such as teachers and nurses. 

The Government is currently supporting a number of mixed communities demonstration projects that build 

on the learning from programmes such as the New Deal for Communities and aim to tackle the three main 

drivers of area deprivation: a weak economic base, poor housing and local environment and poorly performing 

public services. EERA has recommended that a proportion of housing investment during 2008-11 is allocated 

to support innovative projects that contribute to the promotion of mixed, sustainable communities, drawing on 

the learning and good practice emerging from the demonstration projects.


Case study 22 

Re-development of the former De Havilland airfield 

The redevelopment by a multi-agency partnership of the De Havilland airfield in Hertfordshire won an 

award for excellence in delivering mixed communities. 

The project, which is the largest brownfield development in the county, has now attracted a number of 

multi-national and local businesses, together with proposals for 2,200 homes. Of these, approximately 

a third will be available for rent and low cost ownership. 

The project partners have also contributed towards a community development fund which has supported 

a number of initiatives, including a very popular tree-planting day which saw the local community take 

ownership of 100 trees and 300 metres of hedging. Funding has also been secured for a full-time 

sustainable communities worker, who has been instrumental in helping to set up a thriving local 

residents’ association. 

A new community school and community hall are currently under construction and the project partners 

have commissioned jointly with residents three major pieces of pubic art to celebrate the development 

and create a sense of place for the newly forming community. 

Promoting independence and housing choice, particularly for vulnerable groups, can prevent or delay the need for 

costly intensive services as well as improve the quality of life and engagement with the community. The design of 

homes is vital to promoting good health and wellbeing for all age groups but particularly in enabling older people 

to live independently. It has been calculated (www.jrf.org.uk/housingandcare/lifetimehomes, JRF, 2007) that 

building Lifetime Homes could save the country over £5 billion over sixty years. The idea is simple: build a 

house that suits people at different stages in their life, thereby reducing the number of costly adaptations to 

general needs housing and the need for people to move to residential care. Lifetime Homes are included in 

the new Code for Sustainable Homes (2006). All new, affordable housing delivered through the Housing 

Corporation’s National Affordable Housing Programme must meet Level 3 of the Code from April 2008. 

To reflect the region’s higher than average proportion of the population living in rural locations, and a greater 

than average rural population growth rate, EERA has recommended that a minimum of 1,000 affordable 

homes are delivered in rural areas during 2008-11. 75% will be focused in settlements of below 3,000 

population and 25% will be focused in settlements from 3,001 to 10,000 population. 

In contrast to traditional housing allocation systems, choice-based lettings (CBL) schemes enable housing 

applicants to choose between and apply for available to-let properties. The shift in emphasis towards 

a customer-led service is supported by the Government’s 2010 target for all local authorities to have 

introduced CBL schemes. The region is making good progress towards achieving the target, with 

most local authorities choosing to adopt a sub-regional approach towards implementing schemes. 

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Case study 23 

Addressing rural homelessness 

Homelessness is often considered primarily an urban phenomenon because homeless people are greater 

in number and more visible in urban areas, but homelessness is also pervasive in rural areas. 

Increases in house prices in some remoter areas have made fewer homes affordable for local families. 

The consequence of not providing affordable housing in these rural areas means they will increasingly 

become places where only the rich can afford to live and young families, the elderly and young people 

on moderate incomes find themselves priced out of their local community. 

In order to address the issue of rural homelessness Maldon District Council has secured funding to work 

more closely with the Rural Community Council of Essex who work with rural communities to assess 

housing needs at parish level. Through this partnership Maldon District Council aims to identify need 

through community participation and village appraisals and address the lack of accommodation through 

small developments of affordable homes for local people. 

Supporting residents, tenants and the community 

Statutory and non-statutory supported housing services are key elements in thriving and sustainable 

communities. Adequate support for vulnerable members of society can prevent chaotic lifestyles, 

anti-social behaviour and criminality. 

The supported housing sector provides an important safety net for individuals (SO6: 6). The sector has a 

proven track record in delivering high quality outputs, outcomes and value for money. Evidence also shows 

that increased supported housing investment has a critical role to play in achieving progress across a broad 

range of government aims, objectives and targets. Notwithstanding planned increases in affordable housing, 

the most vulnerable in society will continue to require supported housing provision. 

The Supporting People programme was set up in 2003 to fund a range of housing-related support services 

to ensure that some of society’s most vulnerable people receive help to live independently. Funding provides 

a range of support such as warden services, adaptations to cope with disability, assistance for residents such 

as older people in sheltered housing, vulnerable young people and people with learning difficulties or mental 

health problems. It also enables the provision of ‘floating support’, which is an important mechanism for 

breaking the cycle of repeat homelessness by enabling vulnerable individuals to sustain their tenancies. 

Supporting People has made an important contribution to the Government’s objectives of promoting 

equality of opportunity and social inclusion by helping to reduce homelessness, re-offending and enabling 

older people to remain in their own homes. Future challenges for the programme are highlighted in the 

National Supporting People Strategy, Independence and Opportunity (June 2007). These are to keep 

service users at the heart of the programme, to enhance partnership working with the ‘Third’ sector, to 

deliver the programme within new local government initiatives such as local area agreements, whilst at 

the same time increasing efficiency and reducing bureaucracy.


The Supporting People East Region Group (SPERG) consists of the ten authorities in the East of England 

with responsibility for commissioning and procuring support services. Each year more than £120 million is 

invested in this region ensuring that the most vulnerable are given the assistance they need. SPERG has 

introduced a regional accreditation process that providers have to pass before they can gain access to 

funding. The process was set up to ensure a consistent approach to monitoring high quality services 

across the east. 

SPERG will publish a Regional Supporting People Strategy in the autumn of 2007. This document will 

outline their strategic priorities for 2008-11. 

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Case study 24 

Norfolk Offender Accommodation Forum (NOAF) 

NOAF is a multi-agency group of voluntary and statutory organisations that works strategically and 

operationally to highlight and address the accommodation and housing support needs of offenders 

in Norfolk. It includes representatives from Norfolk Probation, Norfolk Supporting People, Drug and 

Alcohol Action Team, Space East, Broadland District Council and Norfolk County Council. 

NOAF aims to promote the rehabilitation of offenders, increase public protection, prevent homelessness 

and reduce levels of re-offending. NOAF has clearly defined terms of reference and plays a vital role in 

bringing together local agencies and organisations that can promote change, challenge social exclusion 

and promote inclusion for offenders. 

NOAF has recently secured funding through the Norfolk Local Area Agreement for a Strategy 

Implementation Officer to deliver its challenging multi-agency action plan. 

ii) Neighbourhoods and the environment 

There is a growing body of evidence that demonstrates the strong links between nature and social 

well-being. The natural environment where biodiversity thrives is an essential part of the quality of life of local 

communities and has an important role to play in ‘liveability’ improvements. There are also opportunities in 

towns and cities to create habitats through new development, with some innovative schemes showing that 

biodiversity can be conserved and even enhanced as a consequence of urbanisation and development. 

Research suggests that contact with nature makes an important contribution to our mental well-being, such as 

in reducing stress levels (SO6: 7). The planting of trees and woodlands along roads can help to mitigate some 

of the effects of air pollution, especially in deprived areas. There is a need to increase levels of visual contact 

with ‘nature’ by creating gardens and urban tree planting, for example. These issues are considered in more 

depth in both the Regional Environment Strategy and Regional Woodland Strategy, which include specific 

actions relating to the promotion of social inclusion. 

With the benefits of diverse greenspace around housing well proven, Natural England has developed the 

Accessible Natural Greenspace model. This recognises the importance of quality and accessibility in the use 

of greenspace by local communities (SO6: 8), especially for certain groups such as children, young people, 

older people and disabled people. The model aims to encourage local planning authorities to ensure that 

no person need live further than 300m from quality natural greenspace, particularly contributing to the 

improvement of areas of deprivation which tend to be associated with poorer quality environment. A toolkit 

has also been developed to assist authorities in assessing the quality and quantity of natural greenspaces 

in their area and to help them develop a strategy to address deficiencies and maximise opportunities. 

Planning and design are important mechanisms for improving community health, quality of life and creating 

a safe living environment that promotes social capital. The Towns and Cities Strategy highlights a range of 

innovative approaches to making the region’s towns places where people will want to live, work, play and 

invest. To support the implementation of the Sustainable Communities Plan in the region, Communities and 

Local Government and the Department of Health (through the Regional Public Health Group) are working 

together to explore how the design of the built environment can promote healthy, sustainable communities.


Case study 25 

Oakwood Road Community Field 

Situated in the heart of the Whitton estate in South Lowestoft, Oakwood Community Field is now a 

picturesque ‘pocket park’. Until recently, however, it was an under-used open space, surrounded by 

housing, which had become the subject of anti-social behaviour, and fly tipping. 

The local tenants’ association, Neighbourhood Watch and Whitton Life (a local community-based 

support group) have worked with Waveney District Council and Suffolk Police to transform the area 

into a welcoming and well-used local amenity. 

Community involvement from the outset has been critical to the success of the project, which has been 

driven by the vision of local people. Children from the local school were involved in the creation of a 

colourful mosaic, which is the centrepiece of the paved area. Since the project was completed several 

successful events have been held at the park, including an Easter egg treasure hunt, attended by well 

over 200 local people. 

In recognition of its success Oakwood Road Community Field has won a national award that recognises 

high quality green spaces that are managed by voluntary and community groups. 

Jo McCallum, Community Development Officer at Waveney District Council said: 

This project demonstrates how by working in partnership communities can make a real difference to 

their local areas, and have the ability to bring about a positive change which will benefit everyone. 

Before After 

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Case study 26 

The Green Light Trust 

The Green Light Trust is a Suffolk-based charity which works by invitation around the country, helping to 

establish community-owned woodlands. 

Community groups are formed in each participating parish or area, and members of the local community 

take part in planting and other events. Provision often includes links to local schools, disabled access and 

informative talks about the woods. 

With independence and self-sufficiency as goals, the Trust works with both urban and rural communities 

to find land, design, plant and manage their own woodland. The Trust bases all its work on four thematic 

cornerstones: children, community spirit, biodiversity and global kinship. It aims to hand on to others the 

practical experience gained since starting its paradigm project in Suffolk in 1993. 

The Trust currently has 33 rural and urban projects in eight counties, 28 of which are in the East of 

England, with a total of 55.9 hectares planted to date.


As well as benefiting from access to the natural environment, sustainable communities need to take into 

account their impact on the environment, particularly where this contributes to climate change and its 

potentially catastrophic consequences. (SO6: 9) 

This will involve pursuing such initiatives as low-carbon building, environmentally sensitive waste disposal, 

re-cycling, water-efficiency, raising awareness of sustainable lifestyle behaviours and ensuring that 

developments are designed and located to cope with climate-related impacts, such as flooding and 

increased temperatures. 

At the time of writing, the East of England Climate Change Partnership is in the process of developing an 

action plan to help the region to develop sustainably in a continually changing climate. 

Case study 27 

The Foundry; an award-winning carbon neutral building 

The Foundry is the headquarters of Suffolk-based charity, the Green Light Trust. Completed in 2006, after 

over 2,445 hours of volunteer help, it was awarded the East Sustainability Award by the Royal Institute of 

British Architects. 

The building was deemed sustainable because of its 'deep green', carbon neutral construction methods. 

Another factor in achieving the award was the Green Light Trust’s ethos of local volunteer engagement 

and the use of the project as a training tool for construction workers. The Foundry is as near autonomous 

as possible, using natural energy systems and creating no waste. 

The Foundry is already being used as a local heritage and environmental education centre, promoting 

issues of sustainability, past and future, and involving local residents with knowledge of the building's 

agricultural use and the surrounding land. 

The Green Light Trust hosts schools from a 25-mile radius to learn about traditional land management 

techniques and the contemporary use of traditional materials employed in The Foundry's re-build. The Foundry 

is also a place for business people to broaden their understanding of environmental and social responsibility 

issues and explore how their local actions affect the bigger picture of global sustainable development and 


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Case study 28 

The Choose2Reuse campaign 

In January 2007 Cambridge Community Reuse and Recycle Network launched the Choose2Reuse 

campaign, inviting members of the public to donate unwanted, duplicate or replacement gifts to a ‘Green 

Santa’, for distribution to charity shops and furniture projects. As well as promoting the environmental 

benefits of recycling, the aim was to provide a source of good quality affordable gifts for retail at a time 

of year which can be particularly isolating for those with limited financial means. 

A regional media campaign and roadshow generated an overwhelming response, both in terms of items 

donated and the sheer enthusiasm and diversity of those who volunteered to run the campaign. A spin-off 

benefit for many of these volunteers was the work experience and confidence they developed during the 

campaign, in some cases leading to permanent employment within furniture projects and elsewhere. 

As well as receiving goods for resale, the campaign also produced and distributed pledge cards which 

resulted in 1,500 additional offers of donations. Most local authorities who took part in the campaign 

have continued to produce and promote the pledge cards in their areas. 

The Government has also put in place a raft of measures to tackle anti-social behaviour and in Living Places, 

Cleaner, Safer, Greener, sets out its vision for public space (ODPM, 2002). Combining these initiatives with 

effective housing management brings together the resident, housing and environmental elements, supporting 

the development of sustainable communities. The agenda to tackle anti-social behaviour has been further 

strengthened with the launch in 2005 of the cross-governmental Respect Task Force. This group works 

closely with local areas to develop policy and ensure that the Respect programme is delivered successfully 

across the country. Key measures of the Respect programme include: 

• a new approach to tackling problem families through intensive family intervention programmes 

• a wide-ranging programme to address poor parenting 

• strengthening communities through more responsive public services 

• improving behaviour and attendance in schools 

• the funding of constructive activities for young people, such as youth intervention projects and sports 

programmes. 

Speed restrictions in areas of high pedestrian activity have been shown to help prevent road traffic deaths 

and injuries. The National Institute for Health and Clinical Excellence is working with local authorities to 

support the implementation of 20mph zones in disadvantaged areas to reduce the disproportionate toll 

of road injuries suffered by these communities. Policy initiatives to cut down on car use include the 

Government’s action plan for ‘reducing car use on the school run’, which aims to help reduce congestion 

and the associated slowing down of buses and increased car noise and pollution, and also to contribute 

to children’s activity levels and reduce traffic accidents.


iii) Cultural opportunities 

The importance of cultural opportunities in creating sustainable communities is recognised in the Joint 

Agreement on Culture and Sustainable Communities between the chief executives of the five leading national 

cultural agencies and the Department for Culture, Media and Sport, and Communities and Local Government, 

which was signed in July 2006. At the time of writing a Regional Action Plan to support the Joint Agreement is 

being developed. 

iv) Crime 

The Government places partnership working at the heart of tackling crime and disorder and the misuse of 

drugs (SO6: 10). The 1998 Crime and Disorder Act established Crime and Disorder Reduction Partnerships 

which draw membership from the police, local authorities, Probation Service, PCTs, the voluntary sector and 

local residents and businesses. This multi-agency membership enables crime to be placed within the context 

of the broader social exclusion agenda. While the work of the 48 partnerships around the region is focused 

primarily on crime reduction, it impacts on many other areas. 

Similarly, each of the agencies represented have committed themselves to aligning strategies. For example, 

many local Health Improvement Plans include a section that outlines the PCT’s contribution to the crime 

agenda and the clear links between their work and the impact they can have in reducing crime. Indeed the 

Police Reform Act 2002 reinforces this point by making PCTs responsible authorities. 

As far as drugs misuse is concerned, the Home Office’s Drug Strategy has nationally proved very successful. 

The strategy is underpinned by three main targets: 

• reduce the harm caused by illegal drugs, including substantially increasing the number of drug-misusing 

offenders entering treatment through the criminal justice system 

• reduce the use of Class A drugs and the frequent use of any illicit drug by all young people under the age 

of 25, especially the most vulnerable 

• increase the numbers of problematic drug users in treatment by 100% by 2008, and increase year-on-year 

the proportion of users successfully sustaining or completing treatment. 

As a result of the Drug Strategy, in 2004 there were 54% more drug users in treatment than in 1998, and the 

launch of an anonymous interactive drugs information portal (Talk to Frank) has been extremely successful 

nationwide, with 3.5 million website visits, and 675,000 phone calls between May 2003 and December 2004. 

In addition to this, drug-related crime has fallen, and in 2004/5 was a fifth lower than in 2002/3. 

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Case study 29 

Bobbies on the Beat 

The Bedfordshire Police Partnership Trust, a charity which works with the North Bedfordshire Community 

Safety Partnership, has been operating a Bobby Scheme since 1997 to support elderly and vulnerable 

victims of repeat crime. 

The scheme has targeted five areas which are among the most deprived in the borough in terms of low 

income, poor education, skills and training, barriers to housing services and child poverty. 

As well as providing general crime reduction advice and reassurance, the scheme offers a free service 

which includes a home security survey and installation of security equipment. 

Since its launch, in cases where the Bobby Scheme has responded, repeat victimisation has dropped 

to 1% across the county. Nationally, the percentage of repeat victimisation is 14%. According to the 

Bedfordshire Crime Study 2005, the rate of repeat victimisation for Bedfordshire is an average of 9%. 

v) Health 

In recent years national health policies have recognised the need to improve social inclusion to improve the 

overall health of the population. 


The public health white paper Choosing Health, which was launched in November 2004, recommends that 

health improvement and tackling inequalities should become integral to NHS mainstream planning and 

delivery of services. There is a particular emphasis on health inequalities and mental health issues 

including the mental health of children, older people and Black and ethnic minorities. 

The Choosing Health delivery plan highlights how the Department of Health and the NHS with other partners, 

within the framework of government policies, will help more people make more healthy choices and reduce 

health inequalities. It outlines the priorities for delivery at national, regional and local levels and how these 

will be achieved. 

Our Health, Our Care, Our Say: a new direction for community services 

The white paper Our Health, Our Care, Our Say: a new direction for community services, published in 

January 2006, sets a new direction for the health and social care system. It confirms the vision set out in 

the Department of Health green paper, Independence, Well-being and Choice and proposes a shift in the 

way in which services are delivered, ensuring that they are more personalised and that they fit into people's 

busy lives. The white paper aims to achieve four main goals: 

• better prevention services with earlier intervention 

• people to have more choice and a louder voice 

• more to be done to tackle inequalities and improve access to community services 

• more support for people with long-term needs.


The implementation plan stresses the importance of PCTs working with local authorities to deliver the white 

paper through local strategic partnerships and local area agreements. 

Local area agreements (LAAs) 

An underpinning theme for LAAs is about reducing inequalities in health through interventions which include 

both health care and broader determinants (SO6: 11). 

LAAs have some mandatory indicators to improve community cohesion. They also have indicators to reflect 

the needs of some socially excluded groups such as those with mental illness and the elderly, depending on 

local needs. There is a mandatory indicator on reducing inequalities in health in terms of ‘all age all cause’ 

mortality rates. 

Valuing People: a new strategy for learning disability for the 21st century 

The Government published its white paper, Valuing People, in 2001. Valuing People recognises rights, 

independence, choice, and inclusion as key principles for services for learning disability and recommends 

that the services need to be tailored to individual needs. 

Gypsies and Travellers 

Since Traveller poor health has been identified as one of the biggest areas of health inequalities in the region 

(A Review of the Health Needs of Gypsy Travellers in the East of England, GO-East, 2006), Government 

Office and the Regional Public Health Group have undertaken to champion Traveller health issues, lead 

on the spread of good practice and continue to raise the profile of existing gaps in information needed for 

monitoring Travellers’ health. This will be achieved through the local area agreement process, working in 

partnership with the voluntary and community sector (SO6: 11) and by influencing the single issue review 

of Travellers’ sites for the Regional Spatial Strategy. 

Climate change 

Climate change poses a global health threat through an increased incidence of: 

• heat-related deaths and illness 

• food poisoning 

• injuries during storm events 

• air pollution 

• skin cancer. 

(Climate Change and Human Health: risks and responses, World Health Organisation, 2003) 

In the East of England in particular there is an additional increased risk of flooding, due to its large low-lying 

areas. Flooding leads to disruption and displacement of communities and increased risk of disease and injury. 

Vulnerability to these impacts of climate change will depend on a range of factors including population density, 

existing health status, age and socio-economic status. 

For this reason The Regional Health Strategy, Healthy Futures (EERA, 2005), identifies the need to 

‘understand and plan for the impacts of climate change and the more sustainable use of resources 

within the region, in terms of health and health inequalities issues’ (SO6: 9). 

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3.1 – SO7: To improve access to services, especially for disadvantaged groups 

Promoting access in its broadest sense is fundamental to achieving social inclusion. A variety of mechanisms 

can be used to improve access to services, and so increase take-up of services. 

Improving access is often a case of reducing the need to travel by maximising the number of services 

provided within a local community. 

For example: 

• in rural areas mobile units such as mobile libraries carry community information as well as delivering a 

range of healthcare provision such as podiatry and screening services. Yet, mobile units are only effective 

if everyone in the community, including those with a physical disability, is able to access the vehicle. 

Advances in ICT mean there is scope to widen this range further to enable access to job opportunities 

through virtual job centres, on-line training, shopping and banking 

• the concept of the ‘one-stop shop’ reduces the need for services to be located separately. Village halls and 

community centres are again becoming hubs of community activity with a range of services being delivered. 

The village hall may include a local shop or Post Office service and in some rural communities the local pub 

has become the focus for service provision, including access to a cash point, if not other banking services 

• to thrive, market towns need to adapt to the demands of those living there and in the surrounding 

area. They can be effective and sustainable hubs for retail and professional service provision, 

helping to address social exclusion in the neighbouring hinterland. It is important not to overlook 

the role of the private sector in delivering services such as local shops and pubs. 

DEFRA’s Rural Services Standard sets out the levels of access to services which rural communities 

can expect to achieve. It followed publication of the Rural White Paper in Nov 2000, which set out the 

Government’s plan to deliver equitable access to everyday public services for people who live in rural areas. 

In 2003, the Government introduced a target to improve rural services, focusing on primary healthcare, 

post-16 education, public and community transport (SO7: 4), access to cash and e-Government information. 

Again partnerships are key to delivering many of the innovative schemes and initiatives already in place. 

In particular, partnerships involving the private sector to ensure that policies provide effective incentives 

and disincentives encouraging providers to be both proactive and responsible in their provision for 

disadvantaged consumers (Everyday Essentials: meeting basic needs, National Consumer Council, 2003). 

Case study 30 

The Participation Networks Forum (PNF) 

The PNF is a group of Essex voluntary organisations which aims to give a voice to adult social care 

service users and their carers. These include those with physical, sensory, learning and mental 

impairments. Sponsored and supported by Essex County Council’s Adult Social Care team, the 

PNF has been effective in influencing service improvements within the Council, for the benefit of 

people with disabilities and the wider community. 

A major piece of their work has been to develop the Disability Equality Scheme with Essex County 

Council. The PNF will be monitoring the effectiveness of the scheme during the next three years.


i) Financial services 

The Treasury-led Policy Action Team Report 14 has led to a number of important developments to improve 

access to banking. These are reflected in the range of local initiatives across the region that aim to encourage 

people to save, provide financial literacy training and access to loan finance at affordable rates (SO7: 1, 2, 3). 

Successful credit unions can help improve choice and access to financial services by offering fair, helpful 

and personalised services to all parts of the community. Many local Post Offices are now offering basic 

bank accounts following the introduction of direct credit transfer for the payment of welfare benefits. 

The Financial Inclusion Taskforce (FIT) was launched in 2005 to monitor progress on government objectives 

relating to financial inclusion. FIT has drawn up the following framework for action: 

• access to banking 

• affordable credit 

• face-to-face advice. 

This is consistent with the experience of Citizens Advice, which states that successful financial inclusion 

activities require three key elements: 

• delivery of financial literacy programmes 

• access to debt advice 

• access to affordable financial services (such as credit unions). 

Case study 31 

Moneysense Project 

This financial literacy programme funded by Essex County Council targeted junior schools, secondary 

schools, sixth forms, special needs schools and exclusion units in the Basildon area. Its aim was to help 

young people build on their sometimes limited knowledge of the financial world, equipping them to make 

more informed financial choices as they grow up. 

Through a series of presentations and workshops the programme explored such issues as how bank 

accounts and credit cards work, and some of the potential pitfalls of the latter. Older children were also 

taught about earning a salary, budgeting, paying rent and avoiding debt. 

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Case study 32 

Region’s credit unions respond to Farepak collapse 

Following the collapse of the Farepak Christmas savings club in 2006, credit unions in the East of England 

met to discuss how best to support Farepak customers the following year. 

Having drawn up a profile of Farepak customers and their requirements, the credit unions developed 

the Lock it Away Christmas savings account, which is regulated and protected by the Financial Services 

Authority. After a nominal joining fee customers are able to pay into their account using a PayPoint card, 

cheque, or standing order, at Post Offices or other participating retailers. 

The Lock it Away savings campaign has been marketed across the region by staff from existing credit unions, 

which hope to help 4,000 new members save a total of £1 million over the 12 months to Christmas 2007. 

ii) Information and advice services 

In an inclusive society individuals need to be empowered as much as possible to help themselves (SO7: 6). 

Voluntary sector advice services across the region provide good quality information, advice, support, 

advocacy and representation services to people concerning their legal rights and responsibilities. This 

may include advice on welfare benefit entitlements, dealing with debt, discrimination or for those who 

are threatened with homelessness. In 2006/7, for example, the Citizens Advice Bureaux in the region 

handled 164,593 enquiries relating to welfare benefits (National Association of Citizens Advice Bureaux, 

East of England branch). 

The advice sector is diverse, reflecting the diversity in society, and includes both national organisations and 

local independent advice centres rooted in their communities. There are more that 150 advice agencies in 

the region providing generalist to specialist services on a range of social welfare law subjects. 

Information and advice also needs to be provided in an accessible format, which means giving consideration 

to the presentation of material as well as the content, which should meet the Crystal Standard of plain English. 

It may be that other media are more appropriate, for example virtual, film, oral or hand-signing. 

ICT has an increasingly important role in improving access to services. As well as a generic source of 

information, ICT also has a key role in the delivery of public services, making them more accessible and 

creating more efficient, joined up services centred on the needs of customers. The Government is working 

towards having more of its services available online and has set several targets for ICT access. 

Due to national and regional changes, there are continued pressures on the advice sector. Forthcoming 

changes that will have considerable impact include: 

• changes in government policy in relation to the Community Legal Service that will affect the way that 

legal advice services are funded and organised 

• changes in legislation, for example around disability discrimination, welfare reform and mental health, 

that are likely to result in increased advice enquiries 

• the housing programme in the region that will result in increased demand for infrastructure services, 

including advice.


To deal with the changing funding profile for advice the sector’s infrastructure organisations have come 

together as a regional consortium to form Advice Alliance East, broadly adopting a regional version of 

the national advice umbrella, Advice Alliance. 

Advice Alliance East is working to ensure that regional and local government and other public bodies 

recognise the essential role played by advice and information services in promoting social justice and 

inclusion by enabling people to exercise their rights and to take up their responsibilities as citizens. 

In addition, Advice Alliance East aims to ensure that policy makers and funders take into account the 

voluntary advice sector's contribution to the local community and provide adequate support for the sector. 

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iii) Transport services 

Transport is important both in enabling people to access services, but also as a service in itself. To improve 

access to transport, we need to provide more efficient and effective transport options (SO7: 4), building on 

existing mechanisms such as concessionary fares, car pools and community transport schemes. These 

might include: 

• dedicated transport provision for specific groups such as jobseekers and people on training schemes 

• travel vouchers to promote flexibility and responsiveness to passenger needs 

• subsidised vehicle loans or hire, and payment for driving lessons conditional on participation in education 

or employment programmes 

• improved mechanisms for providing travel information and advice 

• pay-as-you-drive vehicle insurance to lower costs for low-mileage drivers 

• car pools that can help to share the costs of vehicle ownership. 

The main mechanisms for achieving the above include: 

• effective partnerships, for example LSPs and the rural transport partnerships currently operating in each 

county, to provide community transport solutions 

• local authority transport plans, which provide an important mechanism for ensuring appropriate links are 

made between transport access and the planning and delivery of services 

• cross-boundary working to maximise the opportunities for improved integration 

• regional planning guidance which incorporates accessibility targets to ensure minimum public transport 

service levels. 

Case study 33 

Quality Taxi Partnership 

In 2006, the Quality Taxi Partnership was established to improve taxi services in Basildon District and to 

encourage independent living amongst disadvantaged and socially isolated groups. One of only a few in 

England, the scheme’s initiatives include: 

• a subsidised taxi scheme for a wide range of excluded groups, run by Basildon District Council in 

conjunction with the primary care trust, Connexions, local housing associations and schools 

• driver training including passenger assistance, disability 

awareness and legal considerations 

• provision of new and improved infrastructure, including 

new rank, shelters, improvements to routes and signage 

• opening of bus lanes to taxi and private hire operators 

• piloting the use of CCTV in taxi and private hire vehicles.


3.1 – SO8: To develop social networks, community assets and promote community cohesion 

i) Social networks 

Social inclusion is also about prospects, networks and life chances. Developing community assets and 

building social networks can contribute to reducing social exclusion or its effects on individuals or society. 

Social capital is a new concept, which is variously defined but includes: 

• the level of social trust (how much people trust each other in general) 

• the level of participation in political and civic action by members of the community 

• the level of reciprocity (how much give and take there is between individuals within communities) 

• the degree to which the social networks people have access to are extensive and supportive. 

It would appear that building social capital could help mitigate the effects of exclusion throughout the lifecycle. 

For example, encouraging young people to be involved in community, civic and political life will help widen 

their social networks. It is equally important to ensure that older people can continue to make new, enriching, 

reciprocal relationships. The region scores highly on social support indicators compared with other regions 

in the UK. Sixty-six per cent of people reported having five or more people they could turn to in a crisis, 

compared with an average of 58% for the country as a whole (People’s Perceptions of their Neighbourhood 

and Community Involvement, Coulthard et al, London, Office for National Statistics, 2002). 

Possible mechanisms for building social capital include: 

1. encouraging the development of reciprocal relationships through: 

• Investing in activities which encourage socially excluded individuals to engage in community and 

voluntary activity 

• Regeneration teams building more reciprocal relationships between officers and community members 

(employing local people, officers more embedded within the community, co-mentoring schemes) 

• Encouraging Time Banks, credit unions and local exchange trading schemes and community 

investment projects, particularly in regeneration areas. 

2. encouraging wide social networks through: 

• Regional and local planning guidance encouraging civic space planning 

• Supporting self-help groups and other collective community action. 

3. encouraging more equal power relationships through: 

• Devolving decision-making and funding to community groups 

• Ensuring inclusive local planning processes 

• Employing local people as officers in regeneration schemes. 

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Case study 34 

Anselm Community Centre project 

St Edmundsbury Borough Council worked with the local community on an estate in Bury St Edmunds to 

deliver a new community centre. The estate had been identified as a pocket of deprivation which lacked 

a suitable meeting place for residents or venue for service providers. 

Opened in February 2007, the centre now provides activities and facilities for: 

• elderly and disabled people and their carers 

• those experiencing social isolation 

• women and children 

• young people 

• residents from Black and ethnic minorities. 

Involved in the project from the start, members of the local community have also increased their 

knowledge, skills and confidence. 

Several residents have become trustees and directors of the charity which runs the centre. Members of 

the local Women’s Group, who were previously often isolated from the wider community, are now sitting 

on the management group of the centre, making decisions on its day-to-day running.


ii) Community assets 

Using existing, and helping to further develop, community assets is important for achieving sustainable 

regeneration solutions (SO8: 2) and reducing grant dependency. Community and social enterprises can help 

to address poverty, unemployment and social exclusion among deprived communities in sustainable ways. 

As well as creating employment opportunities for those who face barriers to labour market participation, they 

provide goods and services to communities that can be socially excluded. They create wealth and reinvest it 

in disadvantaged areas. 

Involving local communities in cultural activities is also very effective in helping to develop a sense of identity 

and community as reflected in the role it increasingly plays in regeneration projects. Many historic buildings 

are now being used as artists’ studios, workspaces for the creative industries, craft shops and galleries, 

healthy living centres or local learning centres. In the short-term, local communities benefit from the inward 

investment; in the longer-term from the increased employment and improved vitality that the new cultural 

activities bring, together with the quality of the built environment. 

The Government is committed to promoting civil renewal and community capacity building. The Active 

Citizenship Centre was launched in December 2003 and has two main aims. Firstly, to bring together 

policy-makers, academics and members of the public to develop new ideas and draw on lessons learned. 

Secondly, to help develop policy-making and provide more support for existing government efforts to involve 

local people in identifying and solving the problems in their communities (SO8: 1). It is complemented by 

the Community and Voluntary Sector Strategy to further support the infrastructure of voluntary and community 

organisations and enable them to help shape and deliver high quality public services (SO8: 3, 4). 

Case study 35 

The Old Hemp Works community land trust, Halesworth 

In the face of high land costs, fragmented ownership patterns and limited opportunities for community 

involvement in planning community land trusts (CLTs) represent an increasingly viable mechanism for 

maintaining housing affordability and providing low cost workspace for local services. At the same time, 

CLTs capture increases in land value for the lasting benefit of the community. Giving ownership of land 

to local people also makes it easier to maintain thriving, sustainable communities with diverse social 

provision, greenspace and community facilities. 

Foundation East has set up a CLT at The Old Hemp Works in Halesworth, providing a legal infrastructure 

for local people to own the land there in perpetuity. The local community has been given the expertise to 

take on the democratic control of their assets, develop the site and access finance. 

After 40 years’ of disrepair the property is being developed into eight small business units and a 

community meeting room, which research identified as critical for the area to thrive. 

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iii) Community cohesion 

Nationally, the Government is committed to creating a cohesive society, which promotes equality and diversity 

and safe and strong communities for all. In Our Shared Future (2007) the recently-established Commission 

for Integration and Cohesion proposes four key principles to underpin integration and cohesion: 

• a sense of ‘shared futures’, with an emphasis on what binds communities, rather than what divides them 

• a ‘new model of rights and responsibilities, clarifying the obligations and rewards of citizenship, both for 

individuals and groups 

• an ‘ethics of hospitality’ which places emphasis on mutual respect and civility 

• a ‘commitment to equality’ (SO8: 6, 8 and SO7: 7), recognising the need to deliver ‘visible social justice’ 

and build trust in the institutions which arbitrate between groups. 

The latter principle will also be supported by the Government’s creation of a new single Commission of 

Equality and Human Rights (CEHR) from 1 October 2007, as an outcome of the Equality Act 2006. The 

purpose of the CEHR is to reduce inequality, eliminate discrimination, strengthen good relations between 

people and protect human rights. 

The CEHR will take on all of the powers of the existing Commissions as well as new powers to enforce 

legislation more effectively and promote equality for all. It will champion the diverse communities that 

make up modern Britain in their struggle against discrimination. It will also promote awareness and 

understanding of human rights and encourage good practice by public authorities in meeting their 

Human Rights Act obligations. 

Other mechanisms for developing community cohesion at a regional level include: 

• initiatives such as local and regional compacts as a means of recognising and valuing the diversity of 

knowledge, skills and experience of different communities and sectors 

• opportunities for people from different communities to meet and discuss issues and concerns that affect 

them all, to understand and respect each other’s cultures and to develop a shared vision for their 

neighbourhood (SO8: 7). 

Good examples already exist around the region: 

• use of local forum style meetings to explore issues of concern and to increase understanding of the UK 

culture and key services such as health, housing, education, legal help and welfare benefits. It is also 

important that different sections of the community are involved in planning and policy development as 

appropriate 

• regional networks and public bodies acting as a conduit for good practice to ensure that different parts 

of the region can learn from good practice and adapt this to their area. Regional bodies help disseminate 

information on the Government’s Community Cohesion Programme. Regional inter-faith networks have 

a key role in ensuring that prejudice and misconceptions about particular faiths are dispelled (SO8: 7) 

• EERA’s Strategic Migration Partnership (EERA-SMP) is in the process of producing a regional Refugee 

Integration Framework (SO7: 5) 

• Peterborough’s New Link centre provides a one-stop information service to asylum seekers, refugees 

and migrant workers, to help them integrate into the city (SO8: 5). The centre also provides advice 

and information to local communities on issues relating to asylum and immigration.

Action plan 


Case study 36 

Traveller site, Cottenham 

Pupils at Cottenham Village School have had lessons on the theme of conflict in the community, exploring 

themes of racism and prejudice towards Travellers. The lessons looked at how such prejudice is fuelled by 

myth, gossip, misunderstanding and the media, often leading to community conflict. 

Subsequently arrangements were made for pupils from the school to visit their local Traveller site with a 

questionnaire for their GCSE coursework. This looked at Traveller lifestyle and how relations between 

Travellers and the wider community might be improved. The pupils were made very welcome and their 

questions were answered in detail, changing their perceptions of Travellers and Traveller sites in a 

positive way. The Traveller residents, who are often reluctant to allow their children to transfer to 

secondary school, also reported being very impressed with the pupils from the village college. 

A DVD* of this project has now been produced and a number of excellent suggestions for improving 

community cohesion have been passed on by the pupils to members of the community with the 

influence to act upon them. 

* Copies of the DVD can be requested from: Team for Traveller Education, Cambridge Professional Development 

Centre, Foster Road, Trumpington, Cambridge, CB2 2NL, Tel. (01223) 508 700. 

Case study 37 

Gateway Protection Programme 

In December 2006 12 Congolese families from a refugee camp in Zambia started a new life in Norwich 

under the Gateway Protection Programme, a partnership between the UK Government and the United 

Nations High Commission for Refugees. Gateway provides a route to the UK for some of the most 

vulnerable refugees in the world, who are often also survivors of torture, rape or other severe trauma. 

Some of them will have spent up to ten years in a refugee camp. 

Since their arrival the refugees have received co-ordinated support, advice and help from a range of local 

agencies, which has been an invaluable factor in their successful integration into their new communities. 

The action plan which accompanies this strategy (see inside back cover) stems from the preceding analysis 

and findings of the strategy review undertaken by a multi-agency project team during 2007. 

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Glossary 

Glossary 

BME Black and minority ethnic 

CBL Choice-based lettings 

CDFI Community development finance institution 

CEHR Commission for Equalities and Human Rights 

CLG Communities & Local Government (formerly ODPM) 

CLT Community land trust 

COVER Community & Voluntary Forum for the Eastern Region 

DEFRA Department for Environment, Food and Rural Affairs 

DfES Department for Education and Skill 

DWP Department for Work & Pensions 

EAZ Education action zone 



EERA-SMP East of England Regional Assembly Strategic Migration Partnership 

EESCP East of England Skills and Competitiveness Partnership 

ERPHO Eastern Region Public Health Observatory 

ESOL English for speakers of other languages 

Fte Full-time equivalent 


ICT Information and communications technology 

IiC Investing in Communities 

IRS Integrated Regional Strategy


JRF Joseph Rowntree Foundation 

LAA Local area agreement 

LEA Local education authority 

LSC Learning & Skills Council 

LSP Local strategic partnership 

MENTER Minority Ethnic Network for The Eastern Region 

META Mobile Europeans Taking Action 

NHS National Health Service 

NOMS OASys National Offender Management Service Offender Assessment System 

ODPM Office of the Deputy Prime Minister (now CLG) 

OSEP Observatories Social Exclusion Partnership 

PCT Primary care trust 

PIU Performance Innovation Unit (now Prime Minister’s Strategy Unit) 

PRIME National organisation to help people over 50 set up in business 

PSA Parent support advisor 

PSA7 Public Service Agreement 7 

SEU Social Exclusion Unit 

SSA Sector skills agreement 

UKYP UK Youth Parliament 

YIPPEE Youth Involvement Participation Partnership of the East of England 

YOT Youth Offending Team 

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Acknowledgements 

Acknowledgements 

EERA would like to thank the wide range of stakeholders and partners who have contributed to this second 

edition of the Regional Social Strategy for the East of England. Particular thanks are due to the project team 

which reviewed and refreshed the strategy: 

• Keith Bennett (Chair, Social Inclusion Panel) 

• Sara Betsworth (Big Lottery Fund) 

• Nick Burfield (EERA) 

• Ila Chandavarkar (MENTER) 

• Andrew Cogan (COVER) 

• Sally Fishwick (Natural England) 

• Catherine Gregson (Public Health Group) 

• Ed Hale (Citizens Advice) 

• Joella Hazel (MENTER) 

• Cllr Theresa Higgins (Social Inclusion Panel) 

• Katerina Lagoudaki (EEDA) 

• Helen Mann (Learning & Skills Council) 

• John McLeod (Learning & Skills Council) 

• John Meggison (Essex Police) 

• Cllr John Metcalf (Social Inclusion Panel) 

• Toyin Oremakinde (Public Health Group) 

• Cllr Jane Pitman (Social Inclusion Panel) 

• Mark Proctor (EERA) 

• Chris Rowland (Care Services Improvement Partnership – Eastern Region) 

• Andrew Seager (Citizens Advice) 

• Vanessa Tilling (GO-East) 

• Nigel Tomlinson (The Environment Agency) 

• John Wilkinson (EEDA) 

• Jen Wingate (Inspire East) 

• Clare Witcombe (GO-East) 

• David Wood (Rural Action East) 

• Neil Wood (Jobcentre Plus)

Photographs 


EERA would like to thank Natural England, EEDA, The Environment Agency, Welwyn Hatfield Borough Council, 

Waveney District Council, the Green Light Trust and St Edmundsbury Council for photographs provided. 

Contact 

Mark Proctor, Social Policy Officer 



Flempton 


Suffolk 

IP28 6EG 

(01284) 729 449 (direct line) 

(01284) 728 151 (main switchboard) 

mark.proctor@eera.gov.uk 

www.eera.gov.uk/socialstrategy 

Please contact us if you have any difficulties accessing this document and we will do our best to help. 

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