Corporate Transformation Plan - Annual Report 2024-25

Executive summary

This annual report sets out progress in year two of Swansea Council's Corporate Transformation Plan (CTP) 2023-28. It reflects the council's commitment to delivering real and lasting change through a focused programme of service reform, investment, and organisational development.

Thirteen programmes form the core of the plan, spanning adult and children's services, housing, education, digital innovation, workforce transformation and sustainability. Over the past year, we have seen measurable progress across most areas. Preventative models in social care have deepened, housing and school modernisation programmes have continued to expand, and digital investment is now visibly improving access, automation, and performance insight across services.

At the same time, we have strengthened the conditions for long-term change. The Interdependency Matrix is helping us better manage the relationships between programmes, while clearer operating models and benefits tracking are enabling more disciplined delivery. The Workforce and OD Transformation Programme continues to support the culture, skills and leadership required to deliver change at scale.

Crucially, the council is also actively managing the strategic risks associated with transformation. These include financial sustainability, delivery capacity, inter-programme dependencies and the challenge of maintaining momentum in a complex and evolving policy environment. Delivery is supported by clear governance arrangements, with oversight provided by the Corporate Transformation Board.

The foundations for transformation are strong, but continued progress depends on delivery discipline, collaboration across services, and the ability to adapt in response to challenge. The council remains committed to ensuring that transformation is not only ambitious, but achievable, and that it continues to deliver for communities now and in the future.

1. Introduction

This is the second annual report on Swansea Council's CTP 2023-28. It provides an update on the progress made across all the programmes that sit at the heart of the council's transformation agenda, each designed to support better outcomes, improved services, and long-term organisational sustainability. 

The CTP is underpinned by the council's vision for a Successful and Sustainable Swansea, as set out in the Corporate Plan 2023-28 and shaped by the council's Well-being Objectives. The vision is ambitious and wide-ranging:

"In 2028 Swansea is a place that has a thriving mixed-use city centre and local economy. It is a place where people can gain the skills and qualifications they need to succeed in life, where everyone can achieve their potential and where communities are resilient and cohesive. Swansea is a place where human rights are respected, and people are safeguarded from harm and exploitation. It is a place where nature and biodiversity are maintained and enhanced, and carbon emissions are falling."

The CTP translates this vision into a structured programme of change. It started in 2023 with twelve programmes with a further programme on homelessness added in April 2024. The plan now therefore includes thirteen interlinked programmes - eight¹ that are service-specific, focusing on areas such as adult and children's services, education, housing, and regeneration; and five² that are cross-cutting, targeting key enablers such as digital transformation, workforce development, organisational design, and climate action.

Together, these programmes aim to ensure that the council is equipped to meet the needs of its communities, respond to future challenges, and deliver services that are financially, socially, and environmentally sustainable.

1. Transforming Adult Services, Child and Family Services Transformation, Transforming Additional Learning Needs, Right Schools Right Places, Regeneration Programme, More Homes Programme, Homelessness, and the Future Waste Strategy.
2. Future Community Hub Model, Enabling Communities Programme, Net Zero Programme, Digital Transformation Programme and Workforce and OD Transformation Programme.

Programme oversight and governance arrangements

During 2024-25, governance arrangements for the Corporate Transformation Plan were streamlined to strengthen oversight and reduce duplication. The previous structure, which included both a Cabinet/CMT Transformation Board and a separate Transformation Delivery Board, was replaced by a single Corporate Transformation Board (CTB), bringing together the Cabinet and the Corporate Management Team.

The CTB meets quarterly to review progress, provide strategic direction, and ensure alignment with the council's wider policy and financial priorities. Updated Terms of Reference reinforce its role in overseeing delivery, managing interdependencies, and monitoring risk across the transformation portfolio.

 2. Corporate transformation programmes

2.1 Transforming adult services

The Transforming Adult Services Programme is dedicated to delivering strategic change programmes under the themes of Prevention and Early Help, Enabling and Promoting Independence, and Prioritising Resources. The programme involves collaborative efforts across the Service, Directorate, and Regional Partnership to enhance adult social care services.

Key milestones achieved

• Implementation of the revised organisational model for Assessment and Care Management Teams,
• Establishment of more 'early help' and preventative roles within the Common Access Point,
• Revised model of delivery for Internal Homecare Services - utilising existing resource to offer a greater proportion of resource in support of reablement at home,
• Growth of residential reablement offer to include Tŷ Westfield dementia services,
• Day Services remodel first phase development completed,
• Commissioned Domiciliary Care provider framework re-fresh and review of block contract pilots,
• Revised performance monitoring framework and refresh of targets.

Outcomes / benefits achieved

• Increase in services enhancing Early Help offer and viable routes to 'step down' from managed care interventions.
• Remodelling of services to meet community needs, including internal residential care provision.
• Prioritisation of available resources to increase capacity across teams and ensure timely support.
• Improvement in performance reporting across various service areas.
• Support for stability within the external domiciliary care market.

Success measures achieved

• Number of enquiries received into CAP which resulted in no ongoing referral to social work = average of 46% of all enquiries received. 
• 55 referrals to community wellbeing received via CAP in first 3 months of pilot. 102 people supported to explore alternatives to social care.
• In February 2025, the number of initial assessments completed resulting in a new care and support plan was 88, which represents a reduction of approximately 19.3% compared to September 2024 when there were 109 assessments.
• Average number of Homecare reablement starters per month (September 2024- February 2025) = 57 per month. This represents a 30% increase on the previous 6 months.
• The overall number of people in receipt of reablement at home in February 2025 = 109. 
• The number of people leaving Bonymaen House with ongoing care support needs mitigated or reduced = 80% of all discharges February 24- February 25 (212 of 265 discharges)
• Total number of people returning home with a package of care following assessment and re-settlement in Ty Westfield house = 37.5% of all discharges. 
• Expansion of referrals to assistive technology by teams outside of therapies increased by 33%.
• Assessment and care management re-organisation alongside associated process reviews has reduced enquiries from existing clients into CAP by 39% since September 2024. 
• Waiting lists have reduced across the service with particular improvement for new or 'initial' assessments with a reduction of approximately 51% (186 clients) when comparing February 2024 to February 2025.

Financial implications

In 2024-25 £990,000 of savings identified in the MTFP has been achieved. The programme has achieved success in 2024-25 by maximising Welsh Government Grants. However, sustainable funding remains uncertain, necessitating consideration of alternative delivery models. We have established a Target Operating Model for the service for 2025-26 to 2028-29, which is aligned to the CTP and the revised MTFP.

Conclusion

In 2024-25, the Transforming Adult Services Programme laid the groundwork for long-term strategic change. The establishment of revised Assessment and Care Management functions, internal Homecare resource alignment, and domiciliary care commissioning approaches reflects a shift in adult services operation. The focus on prevention, independence promotion, and resource prioritisation aligns with financial planning commitments and ongoing challenges in Health and Social Care. In 2025-26 the programme will continue to focus upon Prevention, Promoting Independence, and Prioritising resources as we meet financial planning commitments and the ongoing challenges across all areas of Health and Social Care.

2.2 Child and family services transformation

The Child and Families Services Transformation Programme is focused on enhancing support for children, young people, and families by prioritising prevention, early intervention, and enablement. The programme aims to:

• Enable workers to spend more time with families.
• Reduce paperwork and processes burden.
• Focus on 'what matters' and the voice of the child and young people.
• Foster a shift in leadership thinking and behaviour.
• Cultivate a greater sense of shared purpose and identity across the service.
• Empower and trust the workforce in their roles.

Key milestones achieved

• Development of additional registered residential provision within Swansea.
• Redesign of Homelessness Service Prevention Service for young people 
• New Parent and Child Placements support in the home introduced to support families to remain together aligned with our award winning Born into Care work. 
• Positive inspection of our Fostering Services with findings aligning with planned developments to expand and continue developing the service.
• Outstanding Inspection Report from Care Inspectorate Wales for Tŷ Nant Residential Home.
• Implementation of the new supported accommodation pathway for care experienced and homeless young people to expand the offer and choice.
• Development of expertise, supervision, and training within residential homes to embed a therapeutic approach and consistent quality care for children and young people.
• Successful recruitment and attraction campaign engaging potential foster carers creatively.
• Academy model supporting the recruitment and retention of newly qualified social workers embedded as part of the 'grow our own' strategy.
• Positive Youth Justice Service thematic inspection around Out of Court Disposals. Swansea was the only Welsh area included.

Outcomes / benefits achieved

• Opportunities created across the service for children, young people, and parents to express their voices confidently and support us to understand their experiences.
• Expanded the offer of our internal therapy team for teams across the service to fostering and residential children's homes.
• Blended model of youth work continues to increase reach and engagement with young people within the city centre and local communities.
• Initiatives like Neurodiversity Lead Worker in Early Help and Behavioural Specialists providing targeted support to families to prevent escalation of need.
• Creation of specialist social worker post to retain staff in supported care planning teams and attract experienced external candidates.

Success measures achieved

• More children and young people supported to live in family settings: 34% live with parents or relatives; foster care placements increased to 52.55% from 50.6%.
• Reduction in children born into care: 17% reduction from April-December 2023 to the same period in 2024.
• Youth homelessness prevention: 92.7% of young people maintained their housing; 72 awareness sessions conducted.
• Children placed close to home: 65.5% of care-experienced children placed within Swansea.
• Reduction in statutory intervention: 9% reduction since April 2024.
• Feedback from staff about their well-being and work-life balance was positive.
• Retention rate of staff across all teams remained stable.

Utilisation of grant funding remained efficient, staying within the agreed core budget.

Financial implications

In 2024-25, £150,000 of MTFP savings were achieved, supported by effective use of Welsh Government grants. With future funding uncertain, we have developed a Target Operating Model for 2025-29, aligned to the Corporate Transformation Plan and revised MTFP, to guide sustainable service delivery.

Conclusion

The achievements of 2024-25 reflect the continued commitment and resilience of Child and Family Services in delivering timely, high-quality support to children, young people, and families. Positive outcomes and performance measures highlight the impact of a strong preventative focus, early intervention, and collaborative working, all of which have helped maintain a safe and effective service despite ongoing challenges.

Delivery of Medium-Term Financial Plan savings has relied on a robust early help offer to reduce the need for high-cost, commissioned care. However, the service's continued dependence on grant funding presents a significant risk to sustainability.

As a demand-led service, forecasting remains complex. Nonetheless, we are strengthening our evidence base, through tools like the Sufficiency Strategy and the three-year Commissioning Plan, to better understand and plan for future need.

2.3 Enabling communities programme

The Enabling Communities programme is dedicated to fostering inclusive, resilient, and cohesive communities through collaborative efforts with partners and the public with a particular focus on:

• Increasing resilient communities;
• Collaborating with Communities to respond to crises and opportunities;
• Embedding co-production approaches across the council;
• Corporate Volunteering.

Key milestones achieved

• Shared definitions of community resilience and self-reliance co-produced.
• 'Together we can' self-assessment action plan baselined. 
• Community stakeholder and asset mapping completed. 
• Activities to develop relationships with community leaders commenced. 
• Co-production Policy completed with input from the Service Transformation Committee.
• Corporate Volunteer Handbook and Toolkit developed. 
• Consistent baseline volunteering data set established.
• Briefing for community co-production and social value approach co-produced with Co-pro Lab Wales.
• Programme Brief developed. 
• Programme controls established. 

Outcomes / benefits achieved

• Enhanced community stakeholder engagement and relationship building.
• Defined approaches to community resilience, crisis response, co-production, and volunteering.
• Establishment of tools, policies, and strategies to support community empowerment and involvement.

Success measures achieved

• Baseline assessments completed for community resilience and self-reliance.
• Initiation of community-led initiatives and crisis response preparations.
• Evaluation of approaches for community co-production and responses to crises and opportunities.
• Development and publication of co-production policies and toolkits.
• Review of baseline data and systems for corporate volunteering.

Financial implications

There are no savings identified in the MTFP associated with the programme which is focused on building capacity and resilience. However, this area is heavily reliant on Welsh Government Grant funding and as sustainable funding remains uncertain, necessitating consideration of alternative delivery models aligned to the CTP.

Conclusion

This year in 2024-25, the Enabling Communities programme has continued exploring opportunities to enhance our relationships with communities especially around resilience, crisis response, co-production approaches, and volunteering with the council. Despite ongoing financial and resource challenges, the programme has made substantial progress, and workshops are underway to reprofile our plans for 2025-26 under revised governance and priorities. Moving forward, continued efforts are needed to consolidate achievements, improve our frameworks for capturing lived experience and more sustainable models of community-based support especially around early help and prevention approaches.

2.4 Transforming additional learning needs

The Transforming Additional Learning Needs (ALN) Programme is focused on delivering the 2022-2027 Additional Learning Needs and Education Tribunal (ALNET) Strategy and transforming provision to support sufficient specialist places (SSSP).

Key milestones achieved

• Proposed model for Specialist Teaching Facilities (STFs) approved by Cabinet for phased implementation adding over 60 specialist places.
• Provision to support learners with neurodiversity, while diagnosis awaited, strengthened.
• A new local authority behaviour policy co-constructed.
• Innovative provision for Welsh medium learners with ALN piloted.
• Outreach work for supporting children (receiving childcare) with an ALN pre-school commenced.
• New platform for recording ALN procured with training provided to school staff.

Outcomes / benefits achieved

• Better local provision for learners with an ALN;
• Shared vision for meeting needs of learners with an ALN in Swansea;
• Wider provision available for Welsh medium learners;
• Availability of provision in Swansea increased.

Success measures achieved

• Nearly all tribunal cases upheld in favour of local authority provision.

Financial implications

There are no savings identified from this programme, beyond the £257,000 delivered in 2023-24, due to increasing demand and statutory requirements. Technically, the cost of additional STF places comes from the schools' delegated budget. However, doing nothing would be more costly to Education's overall budget and could result in diminished provision elsewhere.

Conclusion

Early Years provision to ensure children with an ALN transition into schools smoothly has progressed this year. More support has been afforded to support learners with neurodiversity. More places have been created locally to support learners with specific needs. Continued collaboration and focused efforts are required to address demands and pressures with additional learning needs to ensure there is capacity and competency within schools and beyond to meet the needs of learners effectively.

2.5 Right schools in right places

The Right Schools in Right Places Programme is a ten-year initiative aimed at reviewing and optimising Swansea Council's school infrastructure to meet current and future educational needs effectively. The aim is to ensure that the school stock aligns with pupil cohorts including demand for English-medium, creation of Welsh-medium places, faith education, and additional learning needs. Ensuring value for money and equality of provision are key aims of the programme.

Key milestones achieved

• Statutory proposal approved to amalgamate two special schools and relocate to a purpose-built facility by September 2025, increasing planned places by 100;
• Statutory proposal approved to review Specialist Teaching Facilities (STFs) across the county, increasing planned places by 61;
• Approval from Cabinet to consult on an amalgamation of Blaenymaes and Portmead Primary Schools, initially on existing sites, with the longer-term aim to build a new replacement school in 2031;
• Completion of several capital projects, including Welsh Government Community Focused Schools, additional learning needs and universal free school meals grant projects;
• Approval in principle of the Strategic Outline Programme (SOP) by the Welsh Government under Sustainable Communities for Learning (SCfL);
• Analysis of gathered data to prioritise capital projects aligning with pupil cohorts and demand;
• The Strategic School Provision Plan (SSPP) has been drafted, incorporating demographic information, policies, and conclusions about school place needs, which will be subject to further development and consultation.

Outcomes / benefits achieved

• Delivery of approved capital projects, with improving learning environments;
• Effective grant spending, including enhancing facilities across schools for learners with additional learning needs;
• Increased planned places for learners with additional learning needs;

Success measures achieved

• Delivery of capital projects, ensuring the school estate aligns with pupil cohort and demand.

Financial implications

The council contributes towards capital projects, with the Welsh Government's Sustainable Communities for Learning Programme providing at least 65% of the capital funding. The programme aims to reduce backlog maintenance expenditure and diminish revenue maintenance costs which are funded by schools.

Conclusion

Improved learning environments have been delivered, benefitting learners across Swansea, including those with additional learning needs. The programme continues to respond to changing pupil cohorts and developments outlined in the local development plan (LDP), to deliver a transformed schools' estate. Overall, significant strides have been made in aligning Swansea's school infrastructure with current and future educational needs.

2.6 Regeneration programme

The Regeneration Programme focuses on capital investment initiatives in Swansea's City Centre, waterfront areas, and strategic employment sites.

Key milestones achieved

• Construction complete and handover at 71/72 Kingsway achieved. 
• Progress in detailed design and costing for Castle Square redevelopment, with construction set to commence in spring 2025. 
• Completion of Debenhams acquisition and ongoing marketing for prospective tenants. Procurement commenced for strip-out works. 
• Multiple awards received for the Hafod Copperworks Powerhouse restoration project. 
• Construction works underway at Tawe Riverside and Hafod Copperworks LUF projects. 
• Advancement in masterplan and building design for Swansea Central North with Urban Splash 
• Completion of Palace Theatre construction, with occupation by tenant.

Success measures achieved

• Construction of 71/72 Kingsway complete and tenant discussions advanced with fit outs for occupation to commence;
• Tramshed Tech Ltd in occupation at Palace Theatre development, focusing on modern workspace for tech and creative sectors;
• Planning consent secured for Castle Square, with final designs underway;
• Skyline Enterprises planning application to be determined in March 20025 for leisure destination at Kilvey Hill. If approved the project is anticipated to create jobs and boost the local economy;
• Stage 1 designs and business plan progressing for Swansea Central North, Civic Centre development and St Thomas sites with Urban Splash.

Financial implications 

There are no savings identified as being achievable from this programme by the end of 2026-27. Capital projects are assessed individually, leveraging government grants and investment partners within the council's affordability envelope determined through medium-term financial planning and annual budget consideration.

Conclusion

The council has a robust strategic framework which guides development activities, with visible progress seen across the city. Strong partnership arrangements ensure maximum benefits from regeneration schemes, including social benefit clauses. Overall, the Regeneration Programme demonstrates significant progress in revitalising Swansea's urban areas, attracting investment, creating jobs, and enhancing the city's appeal as a place to live, work, and visit.

2.7 More homes programme

The More Homes Programme is committed to delivering 1,000 affordable homes over a decade through a blend of new builds, property conversions, and acquisitions includes buy back of former council properties sold under the Right to Buy legislation and Section 106 Affordable Housing Planning Agreements with private developers.

Key milestones achieved

• Completion of SPARKS centre property conversion scheme in Blaenymaes (4 units).
• Acquisition of 36 former Right to Buy properties during 2024-25.
• Planning permission secured for Brokesby Road scheme (Bonymaen).
• Tender awarded to Pobl to act as the council's development partner for two HRA sites in Penderry ward.
• Commencement of Brondeg (Manselton) new build scheme (13 units) - due for completion January 2026
• Agreements made with Persimmon Homes and Pobl Housing Association for section 106 property acquisitions. 
• Handover of first low-cost home ownership homes for sale from Persimmon Garden Village development (3 units).
• Appointment of Employer's Agent to commence feasibility work on Gorseinon Business Park new build scheme.
• Appointment of Powell Dobson architects to develop Tudno and Emrys Estate (Penlan) estate regeneration Master Plan, including new build element.

Outcomes / benefits achieved

Overall, since its commencement, the More Homes Programme has achieved:

• Delivery of 309 units additional homes to the council's housing stock, including:
  • New build schemes totalling 88 units completed.
  • Conversion projects totalling 25 units finished.
  • Acquisition of 193 former Right to Buy properties.
  • Acquisition of 3 low-cost home ownership units as part of s106 agreement with Persimmon Homes. 
• Full expenditure of WG Social Housing Grant Allocation during 24/25 (£26m) to fund affordable housing developments via registered Social Landlords and the Local Authority.

Success measures achieved

• Corporate KPIs show 43 additional affordable housing units delivered by the Local Authority during 24/25 (including 3 units for low-cost home ownership).
• Data awaited for additional units delivered by Registered Social Landlords and through Section 106 Agreements/other sources - available in April.

Financial implications

There are no savings identified as being achievable from this programme by the end of 2026-27. A review of HRA Capital budget concluded that cost savings measures were required to reduce borrowing requirements to ensure that the HRA Business Plan remains viable over the next 10/30 years. However, as agreed by Cabinet and council, the More Homes Programme remains a key priority for capital investment. Funding of £57.3 million over 4 years (up to 2028-29) has been allocated in the HRA Capital Programme budget to take forward the programme.

Conclusion

Despite challenges, since its commencement the programme has delivered 309 additional homes to the council's housing stock. Internal capacity improvements and outsourcing the design and delivery of some sites will expedite project delivery. Opportunities to work directly with private developers on "package deals" are being explored to introduce new approaches to increase delivery and drive down costs. Rising construction costs and site challenges require ongoing feasibility studies for accurate planning and costing of schemes.

2.8 Homelessness programme

To ensure the council can fulfil its statutory homelessness functions there is a need to reduce reliance on expensive and inappropriate Bed and Breakfast accommodation. This can be achieved by working innovatively and collaboratively with other council services and external partners to create additional temporary accommodation capacity across the city.

Key milestones achieved

• Introduced emergency measures to ensure best use of council's own stock, for example: de-designation of OAP bedsits and flats, changes to lettings principles, encouraging those faced with homelessness to widen areas of choice, prioritising those in temporary and supported accommodation.
• Progressing with the introduction of a council managed temporary supported accommodation project in the city centre. First project (Llys Glas) expected to open in September 2025 with a second project being explored for 2026
• Increasing awareness and partnership working with other agencies / services.
• Working with the Welsh Government to introduce a private rented leasing scheme (Leasing Scheme Wales) by the end of the year to increase housing options.

Outcomes / benefits achieved

• Successfully moved 378 households on from temporary or supported accommodation 2024/25 between April 24 - Jan 25;
• Prevented homelessness for 54% of households between April 24 - Sept 24;
• Worked with Probation Service to ensure the introduction of SDS40 went smoothly for those released from prison with no fixed abode when scheme launched;
• Worked with the Home Office to ensure successful outcomes following changes to timescales for decisions in relation to those seeking asylum;
• Rough sleeping kept to low levels as a result of working in partnership with the voluntary sector and health.

Success measures achieved

• More Homes programme has delivered 43 additional units of accommodation during 2024-25.
• Increased number of units of temporary accommodation for both single persons and families.
• Continued to meet with our statutory homelessness duties and fulfil obligations in respect of the council's No-one left out approach.
• Rapid Rehousing approach has ensured that people in temporary accommodation have received the right support at the right time to move-on into permanent accommodation.

Financial implications

Rising demand and rising costs of temporary accommodation, in particular Bed and Breakfast accommodation, have put pressure on budgets. Additional budget has therefore been made available from 2025-26. The opening of the temporary supported accommodation projects will reduce the current levels of spending from quarter 2 2025-26.

Conclusion

Despite high levels of move on from temporary accommodation the numbers of households presenting as homeless continue to cause concern. This is a national challenge and not peculiar to Swansea. Measures such as opening a council managed temporary supported accommodation project, signing up to Leasing Scheme Wales and reviewing lettings principles and how we prioritise allocations will continue to have an impact on the numbers. Continued opportunities to work with key partners on joint initiatives will be sought.

2.9 Net zero and fleet programmes

The Net Zero Programme aims towards making Swansea Council a net zero business by 2030, through a comprehensive plan comprising thirty transformative actions. Without significant increases to budget and resources it is difficult to see how this can be deliverable, but it is right to note that our contribution will continue to play a part in the Welsh Government ambition to have a collective net zero public sector by 2030 across Wales.

Key milestones achieved

• Reduction of scope 1 and 2 emissions for the 2024-25 period.
• Contract procurement for phase 2 of the public buildings retrofit programme.
• Initiation of the ULEV Transition Strategy 2021-2030, resulting in over 150 ULEV vehicles and fleet charge points.
• Continuation of the street lighting installation programme.

Outcomes / benefits achieved

• Reduction in carbon emissions across various sectors.
• Progress in retrofitting public buildings for energy efficiency.
• Expansion of the ULEV fleet and charging infrastructure.
• Ongoing efforts to reduce waste and promote circular economies.

Success measures achieved

• Continued reduction in the council's carbon footprint.
• Enhanced focus on emissions reduction in scope 1 and 2 activities.
• Increased utilisation of renewables since 2019.

Financial implications

With the exclusion of scope 3 emissions, the council is aiming for a reduction in emissions of 80%, although this is theoretically achievable, due to funding constraints around the Education estate for retrofit the likelihood is that this figure would be more like 50% for scope 1 and 2 as Education currently accounts for 47% of the utilities emissions.

Conclusion

Whilst lots of good work continues, the pace is not fast enough due to lack of budget and resource to support refit schemes, EV schemes and so on, hence the project remains on the corporate risk register.

New contracts have been agreed for continued refit schemes across the public assets, but there is difficulty with funding from educational directorate to support such improvements. Fleet budgets face significant accumulative inflationary pressures when renewing vehicles and the Green Fleet 'premium' for EVs further increases the funding gaps

Data from the last round of retrofit high-level assessments suggests an increased cost per tonne of carbon emissions reductions. The new indicative cost has risen to £11,000 per t/CO²e from £7.5,000 per t/CO²e. This brings the estimated building retrofit costs to £178 million, which last year was estimated at £101 million.

2.10 Future community hub model

The Future Community Hub Model Programme aims to establish a central hub, Y Storfa, in the former BHS building on Oxford Street, with satellite hubs providing a range of services to the community.

Key milestones achieved

• Completion of RIBA 4 for the design of Y Storfa in September 2023, with a construction contract awarded to Kier for refurbishment.
• Progression to RIBA 5 with demolition work underway since October, and main refurbishment set to commence in June. 
• Internal design of Y Storfa agreed. 
• Managed service provider appointed.
• Development of a decant programme from the Civic Office to feed into the overall delivery programme for Y Storfa. 
• Establishment of a new customer contact service model and front of house staffing structure to support MTFP savings. 
• Initiation of a staff training programme and agreement on opening hours for Y Storfa. 
• Staff and public consultation undertaken on the wider library network as a framework for 'community hubs.'
• Final report submitted by Urban Foundry on the work of the library service, buildings, and opportunities to improve the visibility of the services they provide with even greater collaboration. 
• Discussions initiated with Cabinet members and Trade Union representatives on a proposed staffing model to support the delivery of a Hub network, whilst continuously improving the library service, staff opportunities and financial resilience.

Outcomes / benefits achieved

• Transfer of front of house contact staff to Property Services to facilitate development of a 'One team' approach at Y Storfa.
• Fuller understanding of the scope of the work needed to deliver expectation and savings in respect of whole programme. 
• Acquisition of additional resources through Shared Prosperity Funding. 
• Learning from the Clydach and Gorseinon Hub Models under consideration. 
• Community Hub model as a cascade from Y Storfa to the smaller district libraries agreed in principle.

Success measures achieved

• Progress on Y Storfa, including completion of RIBA stages, construction commencement, design, and staff transfer. 
• Library service element of the programme remains in the scoping phase, with success measures focusing on current activities and potential savings. 
• Library staffing model to support a Hub network, opening hours and job profile review has been presented to Trade Union representatives and consultation will shortly commence.

Financial implications

When the CTP was approved, £580,000 of savings were identified for delivery by 2026-27. This was later revised, removing a historic £400,000 saving no longer considered achievable. The remaining savings have been delivered through staffing changes, operational and procurement efficiencies and updated fees and charges. A further £150,000 is forecast through the proposed Hub model staffing structure, creating new roles and development opportunities for staff in the process. The creation of the Hub model is supported by grant funding, enabling a new library brand and routes to qualification, improved access and profile for the library service. Consultation is now underway with customers, stakeholders, trade unions and staff.

Conclusion

Strong progress has been made on the development of Y Storfa—the council's new model for community hubs. Core principles for how these hubs will operate have been established, following a programme of public consultation and engagement with staff, partners, and stakeholders. This work has been supported by Urban Foundry, whose recently completed report sets out a clear vision and identity for the hub network. The recommendations emphasise not only the importance of a strong and recognisable brand, but also the wider social value of delivering services in local communities and the vital role played by staff. We are now reviewing these recommendations and exploring how they can be taken forward, including through the use of available grant funding.

2.11 Future waste strategy programme

The Future Waste Strategy Programme aims to optimise the balance between service cost and recycling performance while considering factors like carbon impact and operational ease for residents.

Key milestones achieved

• Completion of initial modelling report to review waste collection methodology and strategy.
• Ordering of first tranche of replacement waste vehicles.
• Completion of 4 week seasonal garden waste trial (Dec 23/Jan 24), 12 week seasonal garden waste trial (Dec 24/Feb 25) and trial of reusable containers.
• Award of grant funding for purchase of reusable containers.

Outcomes / benefits achieved

• Delivery of first tranche of replacement waste vehicles improving fleet reliability and reducing breakdowns.
• Successful trial of seasonal garden waste collections, freeing resources for other waste streams without significant issues.
• Facilitation of reusable container design finalisation through trial.
• Award of grant funding for reusable containers, aiming to save around 10 million single-use plastic bags annually.

Financial implications

When the CTP was approved, up to £600,000 in savings was identified from the Waste Programme by 2026-27, subject to the final model. While no savings were expected in 2023-24 or 2024-25, targets are built into the 2025-26 budget and rely on timely approval of the Future Waste Strategy. The programme may face inflationary pressures, particularly for vehicles, but is expected to reduce downtime and maintenance costs. Seasonal garden waste collections and the rollout of reusable containers could deliver further savings or cost-neutral outcomes through operational efficiencies.

Conclusion

The Future Waste Strategy Programme has made strong progress in exploring and testing a range of waste collection options, with early outcomes and financial modelling supporting the overall direction of the programme. Trials of reusable containers and seasonal garden waste collections have confirmed their viability, and initial modelling has provided greater clarity on the long-term implications of different service models. However, due to the wider impact of other changes to the collection service, public consultation and corporate approval of the new Waste Strategy were delayed during 2024. As a result, a revised and urgent timeline is now required to secure formal approval and move the programme into delivery.

2.12 Workforce and OD transformation programme

The Workforce and OD Transformation Programme supports the delivery of the Workforce Strategy 2022-2027, focusing on themes of Leadership and Management, Workforce Fit for the Future, Employer of Choice, and Employee Wellbeing and Inclusion. The programme aims to cultivate a capable, skilled, motivated, and valued workforce aligned with organisational values and sustainable development principles.

Key milestones achieved

• Conclusion of HR and OD transformation exercise in September 2023, facilitating focus on workforce planning and organisational design.
• Delivery of all 2023-24 'Leadership and Management' objectives in the Workforce Strategy.
• Values and behaviours have been refreshed.
• Leadership behaviours have been reviewed.
• Workforce communication and engagement strategy delivered.
• Coaching and Mentoring approach developed.
• Workforce plans for each service area.
• New agency supplier contract completed with contract launch in September 2024.
• E-learning launched in Oracle Fusion.
• New induction and onboarding experience for new starters implemented.
• Launch of shared cost AVC product to add to employee benefit range.
• Development of new Organisational Development offer, providing ILM qualifications for individuals at all levels.
• Continuation of Welsh language training with 43 employees enrolled.
• Reconfirmation of commitment to the Dying to Work charter.
• Reaccreditation of Disability Confident employer status.
• Achievement of SEQOHS certification for occupational health services.
• Housing and Public Health have successfully piloted a Development Needs analysis, and this is being rolled out to all areas of the council.
• Corporate Services Directorate completed first annual cycle of new Performance Module in Fusion with all performance objectives and annual appraisals completed in 2024-25.
• 55% of all HR policies have been reviewed in 2024-25 with the remainder scheduled as part of a work programme for 2025-26.

Outcomes / benefits achieved

• Increased focus on delivery of workforce planning support;
• Consistent approach towards employee relations support in HR and OD;
• New system in place to monitor and track employee relations casework progress reported through to PFM;
• HR policy development programme in place to update all HR policies with 55% of all HR policies complete;
• Managers better informed about training and development offer for staff;
• A clear understanding of workforce skills and training requirements in Housing and Public Health;
• Greater number of staff have completed e-learning, including mandatory training;
• More staff benefitting from leadership and development opportunities;
• Savings of around £70,000 generated from AVC launch, providing opportunity to reinvest in staff wellbeing offer.

Success measures achieved

• The mean (average) gender pay gap has remained stable at circa 2% and the median gender pay gap has reduced from 3.7% in 2023-24 to 3.4% in 2024-25.
• Corporate Services piloted the new performance management tool with 100% completion rates of objective setting in 2024-25.
• Time to hire reduced to 43 days compared to 74 days at the end of the previous year.
• Number of employees willing to use Welsh skills in the workplace increased by 13%.

Financial implications

When the CTP was approved, savings of £190,000 were identified as achievable from the Workforce and OD Transformation Programme by the end of 2026-27. To support delivery of the programme, £285,000 of Transformation funding has been used to resource three temporary HR and OD business partnering roles over a two-year period. In March 2025, the Programme Board approved a further £51,000 to be spent in 2025-26, focused on developing a new approach to Employee Relations.

Conclusion

Progress in 2024-25 has been positive, with new ways of working now embedded across the HR and OD service. Over the course of the year, the focus has been on upskilling team members and developing the capability needed to lead and support organisational change. This investment in building capacity, both in terms of skills and service design, has taken time to embed, but is now starting to yield visible results. The latter part of the year has seen a marked increase in the number of initiatives delivered, indicating that the programme is moving into a more active phase of implementation. While some longer-term indicators are still emerging, the achievements to date reflect a clear trajectory towards the council's strategic workforce objectives, with a strong foundation in place to accelerate delivery and impact in 2025-26.

2.13 Digital transformation programme

The Digital Transformation Programme has the following objectives:

• Ensure a consistently positive customer experience across all council services.
• Facilitate citizen empowerment through digital skill development.
• Digitise council processes end-to-end wherever possible.
• Design and deliver digital services around people's needs.
• Maintain safe, efficient, and supportive digital infrastructure.
• Enhance decision-making and performance through improved business intelligence.
• Develop the necessary capacity and capability to deliver the digital strategy.
• Foster Swansea as a Smart city with digital infrastructure supporting the local economy.

Key milestones achieved

• Key milestones achieved include good progress on the implementation of the 16 projects, eight of which are funded from the £2 million Digital Transformation fund.
• An end of year review of progress for both the Digital Strategy and Digital Transformation programme was completed and presented to the Scrutiny programme Committee in March 2025
• Sustainable procurement options are being considered within each project.
• A benefits tracker has been developed and is kept under review as projects progress.

Outcomes / benefits achieved

• Significant improvements in customer access achieved through web, phone, and face-to-face interactions with abandoned calls significantly improved. Phone Access Review near completion.
• Creation of the Swansea Account for residents to log in and track service requests. Several automation processes have been completed making it easier and quicker for service requests to be logged.
• Examples of benefits delivered by automation include the Accounts Receivable Team. To date, the process has chased 676 outstanding invoices totalling £1.4 million. Universal Credit Processing: Manages over 4,000 Universal Credit applications, automating rent increase calculations and related support processes.
• Delivering tools to help with data management including a new AI pilot using Microsoft CoPilot. In addition, Schools, and Education Management Information System (MIS) projects are in progress for reporting and data management.
• A digital skills and competency framework and training plan has been completed.
• Small cells have been installed to improve mobile congestion, the Gigabit Broadband Voucher Scheme is underway, and an Internet of Things (IoT) project with 15 gateways is underway. Sensors have been installed in litter bins providing almost real-time updates on public waste bins, helping to reduce litter from overflowing bins since they are emptied only when they are full, rather than on a set schedule. This saves time and reduces emissions by avoiding trips to empty bins. Water Safety Sensors: These sensors provide almost real-time monitoring of water safety stations in the Marina, which improves public safety.

Success measures achieved

Projects are still implementing therefore not all data is available however, early success measures achieved include:

• Reduced abandoned calls and improved access for residents. Abandoned calls have improved across both the corporate call centre (30% in January 2024 to 20% in January 2025) and all other call centres (34% in January 2024 to 25% in January 2025).
• Automation improvements in Accounts Receivable and Universal Credit Processing. Automation of processes also for bag requests, fly tipping, recruitment, pensions, building control site visits, planning application comments and free school meals.
• Operational efficiency improvements through IoT data utilisation around litter bins and water safety.
• Commercial waste improvements for business customers live, as a result the new system.
• City Deal projects underway. New technology has been implemented reducing mobile network congestion during events and other busy periods. The full fibre project is underway improving connectivity and competition.

Financial implications

The savings target for this programme is £628,000 by 2026-27. Following budget setting for 2025-26, this has been adjusted to £600,000, reflecting a change to one of the original savings proposals. To date, £351,000 has been delivered. In addition, the programme is supporting the delivery of a further £150,000 in savings through its enabling role within the Future Waste Transformation Programme.

Conclusion

The Digital Transformation Programme has made strong progress since its approval by Cabinet in April 2023, with clear momentum now building across a range of projects. While the full realisation of benefits will take time, early impacts are being identified and tracked through a formal benefits management process. Some delays have been experienced due to challenges in market testing and procurement, and capacity constraints within high-demand service areas remain a risk. These are being actively managed through the Digital Transformation Programme Board.

Looking ahead, priorities for 2025-26 include completing all major procurement activity by March 2026, maintaining regular benefit tracking, and continuing monthly progress reporting to the Programme Board. An annual review will also be undertaken to assess progress and inform the development of a refreshed project pipeline aligned with the council's digital ambitions through to 2028.

3. Role of service transformation committees

In 2024-25, the council's four Service Transformation Committees (STCs) provided vital Member-led insight and support to the CTP, ensuring that complex transformation activity remained grounded in local priorities, lived experience, and strategic ambition. Working across key themes - Climate Change and Nature Recovery, Economy and Infrastructure, Education and Skills, and Social Care and Tackling Poverty - the Committees helped shape policy direction, test ideas, and strengthen programme delivery.

Notable contributions included:

• The Education and Skills STC co-developing the Swansea Principles of Pupil Progression and shaping the Respect, Rights and Responsibility Behaviour Policy, both of which support transformation in schools and inclusion.
• The Social Care and Tackling Poverty STC influencing the design of assistive technology pilots, the Early Help approach in Adult Services, and the council's refreshed Tackling Poverty Strategy, embedding a stronger preventative and person-centred focus.
• The Climate Change and Nature Recovery STC advising on the Future Waste Strategy, Local Area Energy Plan, and biodiversity initiatives such as No Mow May, strengthening the environmental and sustainability dimensions of the transformation programme.
• The Economy and Infrastructure STC engaging with the implementation of the Shared Prosperity Fund, maintenance of active travel routes, and the development of Swansea's Local Development Plan (LDP2)—helping align economic regeneration and infrastructure investment with long-term community needs.

STC discussions fed into relevant programme boards and informed quarterly updates to the Corporate Transformation Board. This structured pathway ensured Member perspectives directly influenced programme design, risk management, and the alignment of transformation with the council's Corporate Plan and Medium-Term Financial Plan. As the transformation agenda continues to grow in scale and complexity, the contribution of STCs remains critical in helping to shape direction, surface challenge, and support delivery that is democratic, inclusive, and accountable.

4. Interdependency analysis

The CTP brings together a wide range of programmes, each with its own priorities and delivery arrangements. But in practice, transformation doesn't happen in isolation. Many of the improvements we're aiming for rely on different parts of the plan working together. As the programme matures, the relationships between programmes - and the dependencies that sit beneath them - are becoming more important to understand and manage.

To support this, the Corporate Transformation Board uses the Interdependency Matrix as a live tool to track and assess how programmes interact. This includes where they are enabled by shared resources, rely on similar delivery pathways, or contribute to a shared outcome. The matrix has been a helpful mechanism for surfacing not only where progress is mutually reinforcing, but also where there may be friction or risk.

There are some clear synergies. The Digital Transformation programme is a strong enabler across multiple areas—supporting improved access, automation, and data use in Adult Services, Child and Family Services, and the development of the new Community Hub model. Likewise, the Workforce and OD programme underpins the shift in culture and practice across services, supporting new operating models and building the skills and capacity needed for change. The preventative focus running through Adult Services, Child and Family Services, and Enabling Communities has also opened up opportunities to align our work and reduce demand on more intensive, higher-cost services.

The matrix also highlights the growing interdependencies between capital investment programmes, particularly Regeneration, More Homes, and Right Schools in Right Places. These programmes increasingly share funding routes, procurement frameworks and delivery pressures—particularly around the council's ambitions for net zero—meaning a coordinated approach is essential to avoid duplication and ensure collective impact.

At the same time, the matrix helps to surface tensions. Several programmes remain reliant on short-term grant funding, raising questions around sustainability and long-term planning. Internal capacity is another challenge—especially across enabling services like HR, Digital and Procurement—which are supporting multiple programmes at pace. And as co-production and engagement become more central to our approach, we need to ensure coordination to avoid duplication and consultation fatigue.

Looking ahead, the Interdependency Matrix will remain a key tool for the Corporate Transformation Board as we continue to manage shared risks, align delivery efforts, and maximise the benefits of collaboration. This joined-up approach will be vital if we are to deliver sustainable change across the system, rather than in silos. As the plan evolves, so too will the interdependencies within it—and maintaining visibility of these links remains essential to the success of the transformation as a whole.

5. Strategic risks and mitigations

The Corporate Transformation Plan is one of the council's most significant undertakings - and a key strategic risk, with failure to deliver posing serious implications for financial sustainability, statutory performance, and future service demand. The plan is formally logged as a strategic risk and is actively managed through a defined set of governance structures and control measures.

Several other strategic risks are also identified in the Register that directly linked to transformation programmes. These include:

• Financial sustainability, particularly where programmes are reliant on short-term or external funding (e.g. Digital, Net Zero, ALN, Enabling Communities), or where delivery is tied to MTFP savings. If implementation is delayed, or funding is not secured, there is a risk that service redesign cannot be sustained or that financial targets will not be met.
• Workforce sustainability, which impacts delivery across multiple programmes. The Strategic Risk Register highlights risks relating to recruitment, retention, and skills development, particularly in critical areas such as Adult Services, Digital, and ALN.
• Capital delivery risk, especially within the More Homes and Regeneration programmes, where inflation, market volatility and planning dependencies can create delays or cost pressures.
• The Net Zero target, which is linked to a red-rated risk in the Register. Delivery depends on access to capital funding, skilled capacity, and a supportive policy environment, and while a costed plan is in place, scaling at pace remains a significant challenge.
• Internal capacity constraints, particularly in corporate enablers such as HR, Procurement and Digital, which underpin delivery across the entire transformation portfolio.

To manage these risks, the council has many specific control measures in place including:

• Each transformation programme is governed by a dedicated programme board, with clear roles, defined milestones, and reporting arrangements.
• The Corporate Transformation Board provides cross-cutting oversight, challenges progress, tracks interdependencies, and escalates risks.
• The Interdependency Matrix is reviewed quarterly to identify pressure points, shared risks, and sequencing challenges across programmes.
• Risks associated with individual programmes are incorporated into the Corporate Risk Register where appropriate and reviewed regularly by Corporate Management Team, Cabinet and the Governance and Audit Committee.
• Financial risks are assessed through the Medium-Term Financial Planning process, with transformation-linked savings subject to additional scrutiny.
• Workforce pressures are addressed through the Workforce and OD Transformation Programme, supported by service-level workforce plans.
• Business cases, benefits tracking, and post-project review mechanisms are embedded to ensure that investment decisions are evidence-based and linked to real outcomes.

These controls are helping to maintain grip, improve visibility, and support timely decision-making. While the overall risk environment remains challenging, the governance and delivery mechanisms now in place give the council a firm foundation to manage risk proactively and deliver the plan in a way that is both ambitious and achievable.

Conclusion

This second Annual Report on the Corporate Transformation Plan (CTP) provides a rounded view of the council's progress in delivering meaningful change across services, systems, and outcomes. The thirteen programmes within the plan are increasingly embedded in the way we work, with clear signs of impact in areas such as prevention, digital access, education infrastructure, and community resilience.

The year has seen momentum build across most programmes, supported by stronger governance, improved use of data, and a clearer understanding of what long-term change requires. The growing use of the Interdependency Matrix has helped us plan and deliver more coherently - ensuring programmes align, risks are surfaced early, and shared enablers are used more effectively.

At the same time, the report recognises that transformation carries risk. The council has taken deliberate steps to identify and manage these - whether in relation to funding, workforce capacity, delivery complexity or public expectation. The strategic risk register reflects this reality, and the council's response has been to strengthen the controls and governance that sit around the plan: programme boards, cross-cutting oversight, financial scrutiny, and clearer alignment with the Medium-Term Financial Plan.

As the plan moves into its third year, the focus must remain on delivery - translating strategy into outcomes, and ambition into impact. This means continuing to work across services and with partners, learning from what's working, and addressing challenges with openness and agility.

The CTP remains an essential part of the council's future readiness. It is not just a set of projects, but a way of working that connects improvement, innovation, and financial resilience. By maintaining that connection—and keeping risk and opportunity in view—we can continue to build an organisation capable of meeting both current and future needs.