DD2771 - Planning London Datahub Pilot with the Greater Manchester Combined Authority

1.1.    The Greater London Authority (GLA) Act 1999 places responsibility for strategic planning in London on the Mayor. It requires him to produce a strategic spatial strategy for London; and to keep it under review. The Mayor can also intervene in the planning process, through his power to review strategically important applications; and call them in to be determined through the application referral process.
1.2.    In 2019 the GLA carried out a procurement for the Planning London Datahub (PLD) (which replaced the London Development Database (LDD)). This spend (approved under MD2466) funded the development of an up-to-date, automated data-collection and monitoring system for London planning data.
1.3.    The GLA Planning team has to operate as both a strategic policy body and a local planning authority. It therefore requires a range of tools and functionality; and clear, robust business processes to support its functions.
1.4.    There are several benefits of an open and automated service for the PLD:
•    automated data is collected daily via borough back-office system connectors
•    data is provided as it is created in the boroughs’ back-office systems, rather than only when approval has been granted
•    those submitting planning applications can provide data through machine-readable formats, rather than through PDF documents only
•    there is a clearer, more transparent picture of what is happening on the ground for Londoners; small and medium-sized enterprises; the government; and others interested in London’s growth.
1.5.    In April 2024, the GLA and the Greater Manchester Combined Authority (GMCA) received a grant of £300,000 through the Strategic Software Project (2025) [No 31/7638] from the Ministry of Housing, Communities and Local Government (MHCLG). This was to fund a pilot project to replicate the PLD system for all 10 local authorities in the Greater Manchester area. (The grant must comply with the requirements of the Government Communication Service Branding manual in relation to the funded activities.) The intention was to see if the PLD could be replicated in another UK region, with the longer-term aim of enabling this as a national data service for Planning.
1.6.    The funding for the pilot project was allocated as follows:
•    £200,000 for the GLA
•    £100,000 for the GMCA.
1.7.    It was originally intended that the GLA would procure three suppliers – Idox, Arcus and the Planning Portal – to develop and configure their systems, to send data from the ten Greater Manchester Authorities to the PLD system. However, the GMCA has since advised that, under its procurement rules, any services intended for the GMCA must be procured directly by them – rather than by the GLA on its behalf. This decision therefore seeks approval to transfer £120,000 from the GLA to the GMCA, so that the GMCA can procure the relevant services directly.
1.8.    The supplier, AtkinsRéalis (which maintains the PLD) is also required to make adjustments to the system, to cater for the inclusion of the 10 Greater Manchester authorities. As the GLA owns the PLD’s intellectual property, and has a contractual relationship with AtkinsRéalis, it is required to procure its services to make these changes, using the funding provided by MHCLG.
1.9.    There have been several challenges since the launch of the PLD – particularly around enabling core data to be updated as applications are amended (because of, e.g., community engagement in the planning process or other factors). For example, there have been changes to numbers of units, floor space and design – meaning that boroughs often require manual intervention to amend core data sets for major schemes. The type of connector used by the Planning Portal limits the flow of data. The Planning Portal has now put in place a JSON connector. This allows applicants to directly update data; and, as part of a culture-change programme with developers and boroughs, to maintain the data in a live format, as part of the planning process. This improvement to the PLD is an intended aspect of the GLA work funded through this programme.
1.10.    This decision is therefore to: 
•    transfer £120,000 to the GMCA, to procure services required for the pilot
•    approve spend of £30,000 by the GLA on services required from AtkinsRéalis
•    approve spend of up to £50,000 on consultants/temporary staff to assist with project management, data analysis and research into possible future improvements to the functionality of the PLD.
1.11.    We have considered best value for money. The Planning Data and Digital team concluded that going out to market to procure new suppliers would be far less cost-effective than continuing with existing ones. These suppliers have delivered very similar work for the GLA as part of the PLD project; seeking separate companies to do this work would be much more expensive, as we would have to create a replica system to achieve this. The services will be procured through a direct award via G-Cloud 14.
1.12.    The pilot project was also intended to act as a pathway to further investment by MHCLG, to improve the PLD ecosystem. These improvements will enable better data quality overall; and build on our objective of becoming a leading source of planning data in the industry. These improvements, building on the pilot project, include the following:
•    A two-way JSON connector for back-office systems. With this, planning applicants can submit updates to their application data just before the decision is made. This will save local authorities time and resources that would otherwise be spent updating the data themselves. It will also empower developers, and encourage them to take ownership of their data.
•    The planning application forms, available on the Planning Portal, will be reviewed and updated.
•    There is potential for the national availability of data that provides comparative data sets, showing the performance of delivery in London.
•    Better data quality.
•    Culture change in the development community, around its relationship to data.

2.1.    The outputs and objectives for the GMCA Pilot Planning Datahub project include:
•    transferring funds to the GMCA, as outlined, enabling them to procure key suppliers and successfully deliver the pilot Planning Datahub project in Greater Manchester
•    configuring the PLD system, to cater for the additional data from the ten Greater Manchester authorities
•    collating evidence and learning to inform an application for further funding from MHCLG, to build the two-way connectors with back-office system providers; and update planning application forms, to improve data accuracy on application submission
 

3.1.    The GLA is subject to the public sector equality duty (PSED) under section 149 of the Equality Act 2010. The Equality Act 2010 requires the identification and evaluation of the likely potential impacts, both positive and negative, of GLA decisions on those with protected characteristics. The Mayor must have due regard to the need to eliminate unlawful discrimination, harassment and victimisation; and to advance equality of opportunity, and foster good relations, between people who share a protected characteristic and those who do not. This may involve, in particular, removing or minimising any disadvantage suffered by those who share a relevant protected characteristic, and taking steps to meet the needs of such people. In certain circumstances compliance with the Equality Act 2010 may involve treating people with a protected characteristic more favourably than those without it.
3.2.    The project is considered unlikely to have a particular impact, or difference in impact, on any persons with a protected characteristic. However, we have made several considerations:
•    Day to day, there would be some internal changes to the organisation in the form of business processes. However, this is not expected to create any adverse impact on staff with protected characteristics. We will monitor this; any matters that arise will be managed in line with HR policies, and the GLA’s commitments to equality, diversity and inclusion. 
•    Externally, this project should help support more transparency in the PLD, and therefore the planning of London. It will allow information to be more accessible and searchable. 
•    Provisions for compliance with the PSED were included in the procurement process.
 

Procurement
4.1.    We will work with Transport for London’s (TfL’s) procurement team to secure a new contract for the £30,000 development services from AtkinsRéalis, through a direct award on the G-Cloud 14 framework. The framework permits this approach in accordance with the GLA’s Contracts and Funding Code (the Code). 
4.2.    We will also work with TfL’s procurement team to secure the services of an external consultant and/or the Planning Portal for the £50,000 funding. This will also be via a direct award on the G-Cloud 14 framework, which permits this approach.
4.3.    This shared-learning opportunity will be funded through the grant from MHCLG.
Risks
4.4.    The key risks relating to this project are outlined in the table below:

4.5.    Consideration has also been given to the Subsidy Control Act 2022; and whether transferring £120,000 to the GMCA constitutes a subsidy. The Planning Data and Digital team concluded that this is not the case. This is because the suppliers are not getting favourable market terms, and the procurement does not affect competition or trade. As described in section 1.11, quotes from other suppliers would require a complete replacement of the systems already in place. The cost of this would far exceed value of the work being procured. 
Conflicts of interest
4.6.    No officer involved in the drafting or clearance of this document has any conflicts of interest to declare.
 

5.1.    Approval is sought to spend £200,000, consisting of:
•    a transfer of £120,000 to the GMCA, to pay for supplier costs
•    spend of up to £30,000 for AtkinsRéalis to make amendments to the PLD
•    spend of up to £50,000 to assist with project management, data analysis and research into possible future improvements to the datahub functionality. 
5.2.    The total funding for this project will be met from the MHCLG Modern Planning Software grant that was received 2024-25. As this income was not treated as income in advance at year end, this funding will need to come from reserves. This sits within the Digitalisation programme budget. All spend will take place in 2025-26.
5.3.    All appropriate budget adjustments will be made.
 

6.1.    The foregoing sections of this report indicate that the decisions requested of the Executive Director of Good Growth concern the exercise of the GLA’s general powers – falling within the GLA’s statutory powers to do such things considered to further, or that are facilitative of, or conducive or incidental to, the promotion of economic development and wealth creation, social development, and environmental improvement in Greater London. In formulating the proposals, in respect of which a decision is sought, officers have complied with the GLA’s related statutory duties to:
•    pay due regard to the principle that there should be equality of opportunity for all people
•    consider how the proposals will promote the improvement of health of persons, health inequalities between persons and contribute towards the achievement of sustainable development in the UK
•    consult with appropriate bodies.
6.2.    In taking the decisions requested, the Executive Director of Good Growth must have due regard to the PSED – namely the need to eliminate discrimination, harassment, victimisation and any other conduct prohibited by the Equality Act 2010; and to advance equality of opportunity, and foster good relations, between persons who share a relevant protected characteristic and persons who do not (section 149 of the Equality Act 2010). To this end, the director should have particular regard to section 3 of this report.
6.3.    All procurements of works, services and supplies required for the project must be undertaken in accordance with the Code; and, where applicable, in accordance with the Procurement Act 2023 and any associated secondary legislation or guidance.
6.4.    Officers must liaise with TfL’s procurement and supply chain team, which will determine the appropriate procurement strategy in line with the Code and the Procurement Act 2023. Officers must ensure that suitable contractual documentation is put in place between, and executed by, the chosen service provider(s) and the GLA prior to the commencement of any works, services or supplies.
6.5.    As set out in paragraph 3 of this report, it is indicated that the contribution of £120,000 to the GMCA amounts to the provision of grant funding and not payment for works/supplies/services. Officers must ensure that the funding is distributed fairly; transparently; and in accordance with the GLA’s equalities policy, and with the requirements of section 12 of the Code. Furthermore, officers must ensure that an appropriate funding agreement is put in place between, and executed by, the GLA and the GMCA before:
•    any commitment to fund is made
•    any funding is paid to the GMCA. 
6.6.    The Subsidy Control Act 2022 requires that grant funding complies with its subsidy control principles. The officers have set out at paragraph 4.5, above, how the proposed grant complies with those principles.
 

7.1.    The project will be delivered according to the following timetable: