Annual Self-Assessment 2024-25

SA1 - Well-being Objectives

SA1.1 - We will improve the provision of education and learning, equipping our learners with lifelong skills and knowledge they will need for the future

Assessment of current performance - how well are we doing?

  • We wanted to improve school standards and pupils’ skills levels, especially Language, maths, science and the gap in attainment between pupils from low-income families and those who are not.  Outcomes from school inspections undertaken in 2024-25 have been positive and in April 2025 none of Pembrokeshire’s schools are in a follow up category with Estyn.  Based on our own assessment, three of Pembrokeshire’s schools are of cause for concern (which in total educated 15% of pupils), a reduction from last year.
  • We used standardised, termly assessment to measure pupils’ core skills against the national average.  Results were significantly lower for boys compared to girls, as well as weaker outcomes in Year 3 compared to older cohorts.  Furthermore, data showed numeracy as the weakest-performing core indicator, with a local drop of nearly one-third of a grade compared to a national decline of one-fifth.
  • In terms of attainment at GCSE, the three-year average capped 9 point score for Pembrokeshire’s mainstream schools was 363.5.  Welsh Government calculate modelled outcome results for schools that take into account their level of deprivation and compare this to the actual result for June 2024’s exams.  Two of Pembrokeshire’s schools’ results were more than 10 points higher than their modelled result, whilst three had actual results that were more than 20 points lower.
  • Literacy deep dive reviews were successfully delivered in the autumn term, with positive feedback, especially regarding the involvement of peer headteachers.   The findings are helping shape support provided for schools and messages at leadership network meetings.
  • Retrieval practice (techniques to strengthen memory and retention) has been embedded in around one-third of schools, including all secondaries and 12 primary schools.
  • We implemented the Raising Attainment for Disadvantaged Youngsters deep dive as a consistent framework for closing the attainment gap.  It reinforced the importance of leadership ownership, targeted planning, and consistent evaluation when supporting disadvantaged learners.  We were pleased that outcomes for pupils entitled to Free School Meals in science improved significantly, with their average grade rising by a third, a key success compared to national patterns.
  • We worked on increasing attendance and reducing exclusions and it is a clear example of where a preventative approach is resulting in improved outcomes and reduced demand on other services. Initiatives to improve attendance include extending the number of schools that have access to a Family Engagement Officer and by undertaking targeted attendance reviews with schools. Overall primary school attendance was similar for the 2024-25 financial year compared to previous years.  Secondary school attendance improved by 0.8 percent points. Attendance figures for both primary and secondary schools are close to the Welsh average.   Analysis of data suggests that the asymmetric week is generally not helpful in securing high levels of attendance.
  • Exclusions were considered in detail by Schools and Learning Overview and Scrutiny Committee in November 2024.  The Committee concluded the decline in fixed-term exclusions reflects a shift toward inclusive, supportive, and proactive approaches to managing behaviour in Pembrokeshire. By focusing on addressing root causes, increasing mental health and Additional Learning Needs (ALN) support, involving families, and offering alternatives to exclusion, schools create a more positive environment where students feel supported and are less likely to face exclusion.
  • We strengthened oversight and support for Elective Home Educated children.  Two additional officers are now in place enabling 266 annual home visits up to end 2024, with the child spoken to in 70% of visits. There has also been an increase in formal intervention.
  • Strong progress was made this year in improving school leadership through the 50Penfro|Pembs50 school leadership development programme.  This has addressed gaps created by changes to national training schemes and helping to ensure a sustainable pipeline of skilled and confident school leaders and is an example of how we are managing workforce issues.
  • We implemented a robust approach to managing mobile phone use in schools through collaborative working, and this is now beginning to show a positive impact on behaviour and learning environments. For instance, 96% of staff reported improved pupil concentration and 94% reported fewer behavioural challenges.  The policy was praised by the Senedd's Petitions Committee, which identified it as a sensible and well-balanced approach for the Welsh Government to consider as a model for other local authorities.
  • The Early Years Team has made significant strides in improving the quality of provision, particularly in supporting ALN, enhancing play opportunities, and upgrading environments through the effective use of capital funding.  The Play Sufficiency Report was updated and considered by Cabinet at its 28 April 2025 meeting.  The report was based on extensive consultation and engagement with providers, families and young people.  It noted: the comprehensive access to play opportunities provided by the Council and its partners; the trained workforce; and the breadth of provision for younger children.  It noted challenges such as the limited budgets available for developing play providers, training, and outreach programs and the need to widen provision for young people with additional learning needs.
  • To better support pupils with ALN, we have halved the length in delays in issuing Individual Learning Plans.  Support for ALN sits within a wider framework of a whole school approach to mental health and well-being.  Almost all schools have access to Diploma trained Trauma Informed Schools practitioners and training is being rolled out across a wider cohort of professionals that support young people, for instance youth workers (and the Youth Service’s reach extended to 17.5% of Pembrokeshire’s 11 – 25 aged population, well above the national average of 14.4%).
  • The most complex and controversial issue the Council committed to undertake in 2024-25 was a review of the organisation of Pembrokeshire’s schools. In essence Pembrokeshire has too many school places for the number of children it has and is likely to have in future.  By addressing this mismatch, we can meet four objectives: improving standards; extending Welsh medium provision; creating sustainable education communities; and ensuring schools are housed in better quality buildings. 
  • Following discussion by Schools and Learning Overview and Scrutiny Committee, in July 2024 Council established a politically balanced working group to examine evidence and to bring forward proposals to a future Council.  In May 2025 Council considered the working group’s recommendations and agreed to commence statutory consultation on discontinuing: Manorbier VC School; Cilgerran VC school; Ysgol Clydau with Cilgerran and Ysgol Clydau to be replaced by a single 3-11 community school.  Council also agreed to undertake a review of English and Welsh medium, primary and secondary provision in the Tenby cluster.
  • Our school building programme is managed by the Sustainable Communities for Learning Strategic Programme Board and its minutes are reported to Cabinet to ensure transparency (e.g. 25 Sept 2024 and 1 May 2025). Major projects currently include preparing the strategic outline cases for developments at Milford Haven Secondary School and Portfield School (due to be considered by July 2025 Council).
  • A progress report on the Council’s Welsh in Education Strategic Plan 2022-2031 was considered by Cabinet at its 28 April 2025 meeting.  The report concludes that targets of at least 33% (or an aspirational target of 37%) of Year 1 learners are taught through Welsh by 2031 can only be achieved by changing existing schools to Welsh medium or by establishing new Welsh medium provision.

Evidence - how do we know?

Improvement actions - what can we do better and how?

  • Undertake projects designed to support the preventative agenda for 0-25 year olds and the 0-25 Prevention Programme Board.
  • Focus on improving standards particularly literacy for younger pupils and numeracy across all ages.  Current attainment levels signal both a significant challenge across Wales and reinforces the need for sustained Pembrokeshire improvement efforts.  The causes of this decline in standards are complex and include many factors outside of schools’ direct control e.g. increasing child poverty; the legacy of interrupted early years provision during COVID; and excessive use of social media and mobile phones by young people.
  • Increase parental engagement in children's learning by 20% over the next academic year through the implementation of a comprehensive parental involvement strategy.  This will be complemented by an improved tracking system for Early Years.
  • Continuing to improve school attendance to meet our target.
  • Refresh and implement actions in Whole-School Approach to Mental Health & Wellbeing Strategy.
  • Continue to progress both the sustainable communities for learning programme and our school re-organisation.

 

SA1.2 - We will ensure the appropriate provision of care and support, focusing on prevention and ensuring vulnerable people are safe

Assessment of current performance - how well are we doing?

  • The Council produces an annual report of the Director of Social Services.  This report is likely to be considered by Council in autumn 2025 and contains much more detail about this area.
  • Social care is the second highest spending Council function with its spending for 2024-25 virtually the same as Education.  There have been significant increases in social care spending as a result of the increasing costs of delivering service, as well as increases in demand and complexity of care.  These are commented on in the Resources section.
  • In April 2024, CIW carried out inspection activity in accordance with the Social Services and Well-being (Wales) Act 2014. They acknowledged during the visit that a significant level of transformational change was already taking place within Pembrokeshire, however did also highlight some areas of concern, with particular reference to consistency of adult safeguarding practice and timeliness of assessments and reviews. 
  • In response an Improvement Board for Social Care was set up. This met monthly and was chaired by the Chief Executive. A paper to Cabinet’s July 2024 meeting has details of its structure.  The board has overseen the transformational change that was driven by the social are team, for instance: reducing our review and assessment backlogs; providing a strategic direction to the adult safeguarding team (we are no longer an outlier for the number of referrals); reinstating the practitioner forum; and a much stronger focus on the scrutiny of improvement data.
  • We wanted to re-design the front-of-house process for accessing Adult Social Care through service reconfiguration.  This is a two-year project, and the first phase was completed in 2024-25.  We used Vanguard methodology to reduce waste/unnecessary referrals within the system.  For complex cases, we have adopted an innovative method of structuring case discussions between different professionals involved in care (e.g. the Citizen’s Advice Bureau and Pembrokeshire Association of Voluntary Services) called Fishbowl discussions (opens in a new tab).  The outcome has been greater capacity at the front door of social care and giving people more independence by recognising their strengths.
  • The success of the redesign of front-of-house processes and adult safeguarding is demonstrated by improved waiting times for assessments of need which is monitored through our performance management processes.  On 7 July 2025 Cabinet considered performance across the 2024-25 year and noted the improvement in this area.
  • As a result of 2024-25 budget decisions, we accelerated changes to day services in line with Welsh Government strategy on inclusion and independent living.  The Anchorage building was closed and day opportunities were reconfigured.  Individuals who received the service were offered alternative placement within the community.  We supported development of a social enterprise to provide services at Bro Preseli. Lee Davies Day service concluded on 31st March 2025 and has been replaced with services within the community. Oversight of these changes has been provided by the Social Care Overview and Scrutiny Committee visited Pembroke Dock library to see how the re-modelled Day Services are working.  Their report (opens in a new tab) went to its June 2025 meeting.
  • During 2024-25, the pressure on children’s services as a result of the ever-increasing demand and complexity of need has continued to build. This is most starkly evidenced by the continued increase in the numbers of young people looked after and the numbers of children requiring care within residential settings.  Cabinet’s June 2025 paper Children’s Services: Operation SALUS Phase 2 summarises work on how the Council has responded to these challenges.  Cabinet’s 10 February 2025 paper describes how prevention work will be resourced and taken forward into 2025-26 and beyond.
  • We opened West Lodge Children’s Residential Home, the first in-house full-time residential home in the Authority’s history.  This enables care for children which is far closer to home, responds to Welsh Government’s ‘Elimination of profit’ agenda and is resulting in financial savings.  At the time of writing the unit is looking after three children with one vacancy.  This will be used as the blueprint for addition facilities (see Social Services Commissioning Plan 2025-2035).
  • During 2024-25 we launched two effective prevention projects.  In September 2024 we launched our pilot ‘Parent and Baby Early Intervention Project’ and feedback from parents and professionals alike suggests that the intervention has achieved meaningful change.  The Step-Up Step-Down fostering pilot provides specialist foster carer support in the form of respite for children and mentoring to parents, along with creating communities of support involving groups of parents and carers.  Both of these projects will be supported in 2025-26 through our Accelerated Change Programme.
  • The Preventions 0-25 year old agenda is an integral thematic within the new Transformation and Innovation programme.  Work will be overseen by a programme board reporting directly to the Transformation and Innovation Board which will provide strategic direction and challenge.
  • We commissioned an external support to review current arrangements and make recommendations around future transitions service design is needed by children with complex needs and disabilities when they reach adulthood.
  • The continued flow of Unaccompanied Asylum Seeking Children (UASC) into the service has resulted in increasing pressures on staff. Whilst the cohort of UASC is capped at 23 for Pembrokeshire, those young people turn 18 and are then supported by the leaving care team, and so the numbers of former UASC continues to grow year on year.
  • We want to grow the for not for profit/ social enterprise sector both for adults’ and children’s services and a result a commissioning team was established. Good progress has been made to secure local market capacity and work with local providers. An Action for Children care home established so additional not for profit capacity created in the market.  We continue to support the micro-enterprise sector through Catalyst 4 Care work.
  • A ten-year commissioning plan for social care was developed throughout 2024-25 and was agreed by Cabinet at its June 2025 meeting.  The strategy plans for development of older adults’ services (e.g. growing the Council’s own domiciliary and residential care services), adults, especially those with learning disabilities, children where alongside the focus on prevention, there are plans to grow the Council’s own residential care capacity and grow in-house foster carers and technology enabled care.  Delivering the plan will require the use of capital funding (much of it via grant) as well as ‘invest to save’ funding.
  • A new unpaid carers Information, Advice and Assistance service was commissioned, which started in October 2024. 
  • Whilst Adult’s social care changed to the Eclipse IT system in 2023-24, in 2024-25 Children’s services changed to this system and went live in December 2024.  This necessitated working on over 200 processes and forms. Whilst there were some ‘teething problems, the additional workflow functionality and generation of task lists is facilitating smooth transfer of cases, monitoring of workloads and tracking of tasks being delivered against target waiting times.
  • The financial support team liaise with customers so that they pay contributions towards the cost of their care in accordance with the Social Care and Wellbeing Act. It has implemented Vanguard process mapping to make financial assessment processes more efficient and have re-designed the Direct Payment process to reduce the need to clawback funding.  In 2024-25 the team recovered an additional £2.785m.  The annual percentage recovery rate for residential is 99% and 94% for non-residential debt.  This debt will be a key focus for 2025-26, and this is an area which has received investment through the Accelerated Change Programme.

Evidence - how do we know?

Improvement actions - what can we do better and how?

  • Deliver the 0-25 Preventions programme agreed on 3 April 2025, reporting to Cabinet and the Transformation and Innovation Board as appropriate.
  • Deliver the second stage of the re-design the front-of-house process for accessing Adult Social Care.  A review of the service model is being undertaken jointly with the Health Board, the third sector and colleagues in the Contact Centre.  The potential for using Artificial Intelligence to direct people to the correct service will also be explored.
  • Restructure the front of house services into a ‘preventions and child protection’ service area, alongside implementation of the 0-25 preventions board to coordinate wider preventions approach across the service.
  • Redevelop the transitions service through re-establishing an identified team will enable the 0-25 Preventions Board to improve the experience of children with disabilities as they move from children’s to adults’ services.
  • Deliver the Social Care Commissioning Strategy 2025-2035 and the capital projects outlined within it.  We will develop and publish a refreshed Market Stability Report which the plan will respond to and will provide a health check of the social care market.
  • Develop additional residential children’s home capacity.
  • Further strengthen our in-house Foster Care offer to increase the number of in-house foster carers.
  • Implement Eclipse Person. This functionality will enable us to implement the ‘digital front door’ enabling people to make referrals online. 

 

SA1.3 - We will enable the delivery of affordable, available, adaptable and energy efficient homes

Assessment of current performance - how well are we doing?

  • A report on the progress of the Housing Strategy 2024-2029 over the last year will be taken to Services Overview and Scrutiny Committee on 17th June 2025. It describes how the Council has been supporting the priorities it set out in the Housing Strategy since it was agreed by Cabinet in December 2023. The report highlights how, despite significant budget pressures, there is a high level of work taking place that is helping to reduce and address housing challenges in Pembrokeshire. This work has been conducted alongside third sector and wider housing partners.
  • A review of the progress of the Rapid Rehousing Plan went to Services Overview and Scrutiny Committee in November 2024. The review highlighted that Pembrokeshire is still in the midst of a serious housing crisis and unprecedented levels of homelessness. Despite a reduction in homelessness figures, the use of temporary accommodation (TA) remained significantly high in 2024-25, with average length of time spent in temporary accommodation or on waiting lists both increasing. This was primarily due to the number of single-person households requiring TA and a lack of 1-bed units which were affordable or available as social rent. Work remains ongoing to identify opportunities for reducing the reliance and costs of temporary accommodation provision.
  • Stock condition surveys of Council owned housing have been commenced to help provide a more accurate picture of the true costs of compliance with the Welsh Housing Quality Standard (WHQS) 2023.  As evidenced by the Housing Revenue Account (HRA) Business Plan, agreed by Cabinet in March 2025, achieving compliance with the WHQS is not possible without significant reliance on borrowing and additional funding from Welsh Government. The HRA Business Plan also sets out the 5-year capital programme from 2025-30. This will support planned maintenance related to the WHQS 2023 requirements, such as decarbonisation, floor coverings, noise insulation, water butts and more.
  • The Affordable Housing Team has worked throughout the year to develop the new Homebuy scheme for Pembrokeshire. This scheme, funded by the second homes council tax premium, will be offered to eligible first-time buyers as an interest free loan, to be used towards the purchase of a property in a preferred area of the county. The scheme aims to support those who already have a deposit saved, want to purchase their own home and get a mortgage, but are struggling to find an affordable property. The Homebuy Scheme was officially be launched in June 2025.
  • Despite initial delays, two of the main housing development schemes, Old School Lane (Johnston) and Tudor Place (Tiers Cross), were both fully completed and tenanted in June 2024, with a total of 44 new homes. Later in the year, phase 1 of Glasfryn (St Davids) was completed, with 7 new homes ready and available for new residents by January 2025.
  • The Council’s Gypsy Traveller Accommodation Assessment (GTAA) was amended and approved in 2024, based on Welsh Government queries. The GTAA identified that the total unmet need from 2025-2033 is 30 pitches. As a result, Cabinet agreed in May 2024 that financial provision should be made in the Capital Programme for 2024-25 onwards, to facilitate any necessary site acquisition costs, site investigation report(s), where needed, site remediation works, and other related survey and investigation work required for the site(s) put forward. Capital improvements were undertaken throughout the year and a Welsh Government grant of £86,602 was secured.
  • Pembrokeshire County Council remained the largest social housing provider in the county during 2024-25. As of February 2025, there were 5,853 properties in PCC’s residential housing stock. Housing stock numbers continue to increase due to the active acquisition and build programmes. Similarly, demand for council housing remained high throughout the year, with 332 bids for PCC properties from April 2024 to January 2025.
  • The Council have continued to provide adaptations to homes of all tenures but particularly for private sector housing. 317 small and medium disabled adaptations (up to £10,000) were completed in 2024-25, a 28.9% increase from the year before. There were also 26 completions during the year under the Disabled Facilities Grant (up to £36,000). A review of the Adaptations and financial assistance policy has also been undertaken and agreed by Cabinet in March 2025.
  • The number of people on the Choice Homes @ Pembrokeshire Housing Register decreased steadily throughout the year, from 5,181 in April 2024 to 3,661 by March 2025. This was due to the implementation of the Annual Review Process for applications held with Registered Social Landlords (RSLs). As the applications have not been reviewed for a number of years, the decrease in applications are likely to be visible until May 2025 when all application reviews will have been completed.

Evidence - how do we know?

Improvement actions - what can we do better and how?

  • Successfully launch and implement the Homebuy Pembrokeshire scheme.
  • Continue and complete the review of the Building Maintenance service.
  • Implement work following the review of the Choice Homes Allocations Policy.
  • Expand and develop building maintenance Service Level Agreements (SLAs) for relevant services.
  • Housing development programme – implementation and number of social homes brought into the HRA.
  • Review of homeless temporary accommodation provision to provide more appropriate and affordable solutions.
  • Complete council housing condition surveys and identify Target Energy Pathways for achievement of WHQS 2023.

 

SA1.4 - We will deliver our economic ambition through supporting growth, jobs and prosperity and enable the transition to a more sustainable and greener economy

Assessment of current performance – how well are we doing?

  • This well-being objective is delivered through our Pembrokeshire Recovery and Regeneration Strategy 2020-2030.  Now in its fifth year of delivery, the plan will be refreshed in 2025-26.  This will ensure synergy with the refreshed South West Wales Regional Economic Delivery Plan which is due to be re-published in autumn 2025.
  • One of the key outcomes we track is Pembrokeshire’s claimant count rate, a measure of unemployment.  The rate (an estimate of unemployment) has changed little over 2024-25 at 3.3% for much of the year (and very little changed from 2023-24 levels).  26% of claimants for out of work benefits were aged over 50, a slightly higher proportion than the year before.
  • There is anecdotal evidence that the outlook for sectors such as hospitality is less positive and continued high retail vacancy rates. The 2023 Retail Survey once again identified higher than UK average vacancy levels in all town centres apart from Narberth and Milford Marina and whilst vacancy rates in some towns fell (e.g. Milford), it increased in others (e.g. Haverfordwest).  This intelligence feeds through to our town regeneration programmes (see below).
  • This well-being objective can only be delivered through effective partnership. In January 2025, we re-launched the Pembrokeshire Economic Ambition Forum, whose purpose is to comment on the Council’s economic development plans and provide focused feedback from key industry sectors and Pembrokeshire’s major businesses.  The Forum is chaired by the former CEO of Valero’s Pembroke Refinery with representation from major employers, both senior member and officer representation from the Council and with representation from young people.
  • The Forum has discussed how Pembrokeshire’s Economic Regeneration and Recovery Strategy 2020-2030 might be updated (and noted the progress made against its objectives) as well as discussing developments in the energy industry within Pembrokeshire; which spans refining, LNG, as well as developments within year such as Floating Offshore Wind (the Crown Estate awarded 4.5GW licences for the Celtic Sea in June 2025) and hydrogen (both RWE at Pembroke Power Station and Haush in Pembroke Dock).
  • The Celtic Freeport offers tax relief and other benefits to industry aims to foster green economic growth and advance skills development around the Haven estuary and Neath Port Talbot.  During the year, the Celic Freeport appointed its first permanent Chief Executive who has completed the final setting up tasks such as developing plans for Skills, Innovation and Net Zero plans submitting the Full Business Case (which was not possible until after a new UK Government was in place following the General Election).  The Celtic Freeport was launched in March 2025 and the Freeport’s Final Business Case being accepted by both the UK and Welsh Governments in June 2025.  Successful achievement of this milestone means that the Freeport can focus on delivery in 2025-26 and beyond.
  • As part of the Council’s Accelerated Change Programme bids (most of which were for preventative work in early years and children’s social care) we invested £186k over 2025-26 to support the team that manages the Council’s contributions to the Freeport programme and in order to maximise its benefits for Pembrokeshire.
  • We continue to work with colleagues across the region on the Swansea Bay City Deal.  Now in its ninth year (and with funding for another six years) the City Deal had funded workboat pontoons at Port of Pembroke, contributed to Fibre/Broadband roll out (e.g. Digital Champions) and skills programmes (e.g. Pembrokeshire Passport to Employment which is focused on the renewable energy sector).  Full Fibre Broadband availability increased by 17% over 2024-25 and stands at 65% with a target to increase this to 99%.
  • We continued to deliver on a range of regeneration projects in our main towns.  These are funded through a range of sources including the Transforming Towns Project, UK Government regeneration funding and the Shared Prosperity Fund.
  • In Haverfordwest, the £26m Heart of Pembrokeshire project is progressing, 69% of which has been funded from external funding grants.  A report to April 2025 Cabinet gives the position at year end.  Essential repair work has been undertaken on the Inner Bailey of the Castle, a complex task as it is both a scheduled ancient monument and the need to avoid damage to protected species.  Repair work to Castle Back walls are due to start on site in August 2025.  Haverfordwest Castle Community Interest Organisation has been set up which will run the tourism attraction/museum within the Castle grounds in the old gaol building.  Funding has also been secured for public realm work around Castle Square which will be completed in 2025-26.
  • The ground floor of the Western Quayside was occupied from November 2024 by Waldo Lounge and funding was secured for the public realm space and the fit out of the adjacent Foundry building.  Significant progress has been made with regards to retaining wall, paving and bin stores. Fabrication of the signature footbridge is complete, and this is due to be installed in August 2025.
  • At its May 2024 meeting Cabinet received at update on the Pembroke South Quay regeneration project, a complex and high-risk site due to the poor condition of buildings, heritage and ecology conservation and its constrained nature. Once complete this will host the Henry Tudor Centre (tourist attraction), a library and a social care facility Cabinet weighed the risks and benefits of the project and appointed a contractor to undertake construction which started in July 2024 and is expected to complete by July 2026.  At its July 2024 meeting, Cabinet agreed to award the Henry Tudor Trust a 50-year peppercorn lease to operate the attraction as well as underwriting some the Trust’s costs for the first three years if it is not able to attract external grants.
  • We are considering options for the next phase of Withybush Food Park Incubator Units following receipt of tenders in autumn 2024.  A redesign of the scheme is being commissioned with cost plan up to concept design stage.
  • Funded via the Shared Prosperity Fund, we have continued to host monthly Drop-In Business Support at the Business Innovation Centre in Pembroke Dock.  This is one of the services provided by the Council's business support team who aim to foster a successful enterprising and entrepreneurial culture within the Pembrokeshire economy.  Cabinet continues to be updated on the Shared Prosperity Fund, a key source of regeneration funding for instance, at both its January and April 2025 meetings. Approximately £7.750m (both capital and revenue) is available for Pembrokeshire in 2025-26 in what is likely to be its final year prior to a transition to a new funding model.
  • Tourism is one of Pembrokeshire’s key industries. We worked with partners to develop a revised destination management plan for 2024 to 2028.  The plan’s vision is for Pembrokeshire to become a global leader in regenerative tourism.  This is to be delivered through three strategic priorities: regenerative, events and seasonality and well-being and active. 
  • The plan is managed by Visit Pembrokeshire, a partnership between the Council and other public bodies and the sector itself.  Visit Pembrokeshire updated Councillors on its work on promoting tourism (as well as the progress it has made in achieving greater financial independence from the Council) in November 2024.  In April 2025, the current administration ruled out implementing a discretionary visitor levy (the legislation which gives the Council to power to consider this is still being considered by the Senedd) before the next set of Council elections in 2027.  July 2025’s Cabinet considered how the Council will continue to support Visit Pembrokeshire whilst reducing the financial contribution the Council makes to the partnership.
  • We continued to improve public transport.  The £18.1m Haverfordwest Public Transport Interchange is now being constructed (ground-breaking ceremony in April 2025) with 90% of funding coming from external sources. Part of the site is being used to fabricate the Signature Bridge, but this has not impacted on the planned completion of June 2026.  In October 2024, Cabinet agreed additional capital funding for a transport interchange at Milford Haven train station.
  • We planned for the changes that will be required because of bus franchising (considered by Cabinet 4 November 2024).  All public transport routes were retendered in 2024-25 allowing a number of improvements to be made.  In parallel, we are reviewing school transport (some of which is provided by the bus network), and this will be a substantial piece of work for 2025-26.

Evidence – how do we know?

Improvement actions – what can we do better and how?

  • Effective regeneration projects are often long term and subject to changing economic conditions as well as the practical difficulties which can beset construction projects.  Many of the projects underway in 2025-25 will continue into 2025-26 and beyond, the Council has retained its commitment to delivering these key projects, often in challenging circumstances. The July Cabinet Outturn report comments on the effectiveness of capital programme, substitution of grant funding for planned PCC spend in order to maximise grant draw-down.
  • Review and renew Pembrokeshire’s Economic Development Strategy.
  • Plan for the replacement to the Shared Prosperity Fund, which is anticipated to be the Local Growth Fund.
  • Continue to support the Freeport now that it is fully operational. The Council and partners have a significant opportunity to attract inward investment in the industries of the future.  As examples from elsewhere in the UK show, new technologies such as Floating Offshore Wind are subject to risk and rising costs and a collaborative approach will be required to secure investment.
  • Restructure and re-organise regeneration resources. In May 2025, the Council agreed a new Target Operating Model and the resulting restructure had a larger operational impact on regeneration than on many other services.  There will be a need to restructure and re-organise regeneration resources; never a simple task given the reliance on changing external finance and the need to respond to both local and regional partnership working.

 

SA1.5 - We will promote and support initiatives to deliver decarbonisation, manage climate adaptation and tackle the nature emergency

Assessment of current performance – how well are we doing?

  • The Council is committed to doing its part to meet the challenges presented by the climate change and nature emergencies and becoming a net zero Council.  For context, in 2019 the Council voted to announce a climate emergency and to produce an action plan which could steer the Council towards becoming a net zero-carbon local authority by 2030.  This agenda cuts across a range of Council services and needs to be tackled through an integrated and holistic approach and the Council’s Net Zero action plan has been developed to address this. 
  • The Council is currently planning a review of the Net Zero action plan which will include a cost analysis of the affordability and deliverability of our net zero commitments.  Governance arrangements have also been strengthened to ensure this key Council priority receives sufficient oversight and direction.  Decarbonisation is one of the four thematic programmes under the new Transformation and Innovation Board and this Board will oversee the delivery of this work.
  • In addition, the Council’s activity continues to be focused on meeting its legal duties such as the Environment Act and the Environmental Protection Act, and policy directives as set out in Welsh Government’s strategies “Towards Zero Waste” and “Beyond Recycling”.
  • A new Environmental Services Strategy was agreed by Cabinet on 28 April 2025. This strategy outlines our approach to improving waste prevention, reuse, recycling, and the sustainability of Pembrokeshire’s streets, beaches, and green spaces. The strategy also emphasises engagement, compliance, and behaviour change to support the county’s environmental goals, including becoming a net carbon-neutral council by 2030.
  • We publish detailed information on our carbon emissions on our website. 
  • Pembrokeshire’s Public Services Board (PSB) through its Well-being Plan has established a Well-being Objective which reflects the Council’s Well-being Objective around this theme.  As a statutory partner of the PSB, this commitment means that in addition to its own activity as an organisation the Council will work collaboratively with its partners to tackle shared challenges. A key element of this work has been the production of a Climate Adaptation Strategy for Pembrokeshire and a Climate Adaptation Toolkit, designed to help communities in Pembrokeshire plan and prepare for climate change.
  • Pembrokeshire remains one of the top performing Recycling Authority in Wales, and the UK. Continuing to perform above the Welsh average and the Statutory Recycling Target for Wales at 72% in 2023-24. (2024-25 figures are currently being verified by Natural Resources Wales and Welsh Government).
  • Following a successful funding application to Welsh Government, plans are being made to roll out of Re-use facilities at Waste and Recycling Centres (WRC’s) across Pembrokeshire in 2025-26.   
  • The new Pembrokeshire Eco Park to enable enhanced recycling segregation and an efficient and effective service opened in Autumn 2024.  These high recycling rates continue to have the desired impact of reducing the amount in tonnage of residual waste collected, a trend which has continued for several years.  Further details can be found on our website.
  • We are also continuing to educate households on ways to reduce their residual waste arising through waste minimisation, reuse and recycling schemes – linking with the national “Be Mighty” campaign from Welsh Government. We have also supported with the roll out of Workplace Recycling Regulations, the next step to supporting changing behaviours to recycle whether you are at home, work, school or visiting our county.   
  • A new trade waste service has been developed and rolled out in line with the Welsh Government Workplace Recycling Regulations, enabling the segregation of recycling from businesses across Pembrokeshire. This is in addition to the commencement of an initiative fund project surrounding compliance with Businesses duty of care including holiday homes across Pembrokeshire.
  • We have continued to achieved street cleansing levels above the Wales average through the LEAMS (Local Environmental Audit and Management System) analysis for Street Cleanliness and the % of street graded B or above. 
  • The Council continues to work closely with local community energy groups to ensures that the community is involved in the arena of clean energy and sustainability. One project with Egni Co-op has enabled the successful installation of rooftop solar PV alongside engagement events run in leisure centres and schools. This includes the successful rollout of Energy Sparks in 35 schools.
  • The Council runs the successful Sustainable Schools Award Scheme (SSAS). The scheme seeks to promote sustainable development and global citizenship in Pembrokeshire’s schools. It takes a holistic approach to this and encourages schools to embed sustainability and a global outlook throughout their activities.
  • We are continuing to develop accessible, low-carbon transport systems and infrastructure that encourages active travel (walking, wheeling and cycling), improves public transport options and reduces the reliance on private vehicles. By prioritising sustainable mobility and integrating environmental considerations into transport projects (such as the Fflecsi Bus Service, the Haverfordwest Public Transport Interchange or the E-Bike Scheme), the Council is leading by example in reducing emissions, improving air quality and creating safer, healthier communities.
  • By investing in low-emission and electric vehicles for the Council’s fleet, optimizing travel routes to reduce fuel use, and supporting the shift to sustainable transport modes, Pembrokeshire is working towards removing carbon.  It also includes integrating electric vehicle (EV) charging infrastructure, adopting smart technologies to manage traffic flow efficiently, and designing infrastructure that supports energy-efficient operations (e.g., LED street lighting and sustainable construction methods). These measures directly reduce emissions from council-owned vehicles and transport-related infrastructure, contributing to the wider decarbonisation of the Council’s operations.
  • In terms of reducing emissions from our vehicle fleet, on 2nd December 2024, the Fleet Transition Plan was adopted by Cabinet to provide direction for the vehicle replacement programme and adoption of Ultra Low Emissions Vehicles (ULEV). Currently, the existing fleet of 501 vehicles consist of 54 electric vehicles (EVs), which equates to 10.8%. The adoption of the Fleet Transition Plan means that any vehicle replacements will be low carbon, subject to a Technical, Economic, Environmental, and Practicable (TEEP) assessment. We have implemented a ULEV Fleet Transition Plan which we see EVs purchased to replace ICE, where feasibly possible.
  • Since 2019, a total of 73 public EV chargers have been installed across 34 sites, these are managed through a charge-point operator. In 2024, 4 rapid chargers were installed across Withybush, Thornton, Templeton, and Fishguard depots to enable the charging of fleet vehicles and funding was secured from the Welsh Government Energy Service to install a further 15 chargers across the Eco Park and Thornton Depot. These fleet chargers are installed to enable the Fleet transition, and to ensure that Council owned vehicles can be charged as efficiently as possible. This is supported by the implementation of solar panels and battery storage energy solutions at the Eco Park, just one of the many sustainable solutions which have been incorporated into this facilities design. 
  • The Council has also built its first net zero in operation school, Ysgol Bro Penfro. The school is heated by air source heat pumps and hosts a large solar array to generate as much renewable electricity as it uses.
  • The forthcoming Celtic Freeport and Milford Haven: Energy Kingdom seeks to further our goals by providing green energy and off-shore energy supplies to the nation.  Working together with our private partners, local businesses and encouraging investment in Pembrokeshire, advancement in this area is leading to more economic opportunities to invest in smarter, greener infrastructure. 
  • The new Welsh Housing Quality Standard (WHQS) 2023 applies to our housing stock which represents an updated and ambitious set of guidelines, with particular emphasis on decarbonisation, tackling climate change, and improving the overall quality of life for tenants. We continue to proceed with a programme of decarbonisation works on our properties which include installations such as air source heat pumps, wall insultation, efficient heating systems and PV panels.  We receive grant of £1.2 million from Welsh Government under the Optimised Retrofit Programme with match funding expected from the HRA to undertake retrofit measures on our housing stock. £39 million has been identified in the Business Plan over the next 10 years to progress on the programme of installing retrofit measures on the housing stock. 
  • The Council leads and co-ordinates the work of the Pembrokeshire Nature Partnership which exists to co-ordinate, promote and record existing and new actions to conserve, promote and enhance nature in Pembrokeshire, including the National Park, the inshore waters and seabed around the Pembrokeshire coast to 12 miles offshore.  The Conservation Team (through the Pembrokeshire Nature Partnership) has continued to deliver projects in collaboration with internal PCC service areas (as well as with the PCNPA and other external bodies). These projects are centred around the protection and enhancement of biodiversity across the county and contribute to the Council’s biodiversity duty under the Environment (Wales) Act 2016. Revenue and capital grants to a value of £2.7 million were drawn into the county for the financial years 2023-2025. A further two years of grant funding has recently been confirmed.
  • Collaboration between Environmental Services and the Conservation Team including the Nature Partnership continue to focus on improving public spaces and there has been a number of changes in maintenance practices and design of spaces (such as Fortune Frolics in Haverfordwest) to develop spaces which meet the needs of users while also supporting our duties under the Environment Act. 

Evidence – how do we know?

Improvement actions – what can we do better and how?

  • Review Net Zero Action Plan and continue to strengthen governance arrangements around the Council’s approach to decarbonisation through the Transformation and Innovation Board.
  • Implement the Environment Services Strategy, including the introduction of re-use shops at WRCs and continued initiatives to increase recycling and reduce residual waste.
  • Ongoing actions to decarbonise the transport system, continuing the transition of the Council’s fleet to ULEV and improvements to the charging network.
  • Public transport improvements - modal shift is important in terms of reducing travel to achieving carbon reduction.
  • Coastal and flooding impacts: develop forward schemes at Newgale, Amroth, Tenby, Pembroke and Lower Priory and Havens Head.
  • Maximise opportunities for affordable warmth solutions in private sector housing in support of Welsh Government target to achieve EPC A for those in fuel poverty by 2030 and all housing tenures by 2050.
  • Maintain and enhance biodiversity and promote ecosystem resilience in line with Section 6 duty.

 

 SA1.6 - We will support our communities, maintaining positive relationships with them to help to build active, resourceful, connected, sustainable and creative communities

Assessment of current performance – how well are we doing?

  • The work of the Public Services Board Strengthening Communities Group supports the delivery of our corporate priority to make communities more resourceful and sustainable and builds on the pivotal role our communities can play around new ways of working and creating transformational relationships with traditional service providers. 
  • Membership of this group – Health, Social Care, PAVS, MAWW Fire, PLANED and Welsh Government - reflects its focus on strengthening and empowering our communities to meet the challenge of future slimmed-down public services alongside promoting working with local people on the things that matter most to their communities.  The work of the group is focused on the objectives of Active, Connected, Resourceful and Sustainable communities.
  • A Volunteering Strategy for Pembrokeshire has been produced and will be published in June 2025.  Developed by PAVS with input from PVON (Pembrokeshire Volunteer Organisers’ Network), members of town and community councils, local communities, Pembrokeshire County Council and other Public Services Board members, the strategy aims to aims to support and inspire individuals, organisations, and businesses to engage in meaningful volunteer activities that benefit volunteers, the volunteering ‘ecosystem’ and the wider community.
  • A stakeholder group for Community profiles and Well-being plans was established in late 2024 with communities from across Pembrokeshire invited to apply to co-create their own plans and profiles. Following selection, four communities were selected with two (Crymych and St Davids) choosing to go forward and develop their own plans.  The plans demonstrate the value of engagement and co-production, however, the projects were only funded in the short term so discussions are underway to ensure that the momentum behind these projects is not lost due to lack of funding.
  • Training on the Most Significant Change (MSC) story gathering methodology was delivered by Together for Change, Swansea University and PCC in June 2024.  The first set of stories have been collated and considered at two panel discussions and a small selection of these were presented at the PSB meeting in February 2025 to promote discussion about how such qualitative evidence can influence decision making.
  • The Enhancing Pembrokeshire Grant enables Pembrokeshire County Council to work in partnership with local communities and organisations and support them to mitigate the local impact of second homes. It has supported many projects, helping restore the viability of communities and well-being of local residents, and has attracted money from other grant sources into Pembrokeshire.
  • A number of smaller grants have been awarded during 2024-25 to support community hubs; culture, arts and festivals; play areas; improvements to facilities that contribute to strengthening and improving services at the heart of communities, improving accessibility to Pembrokeshire’s vulnerable and older residents; and activities that connect communities including the Haverfordwest Mosque events calendar planned by Lamphey Community Council and Templeton Community Council.
  • Larger grants have also been awarded, including those for projects supporting young people to recognise their own potential, build confidence/raise self-esteem and improve their employability skills and to help them prioritise emotional well-being through community opportunities.  Another project has supported the purchase of a 'Green Bus' for Bloomfield Community Centre, Narberth, promoting sustainable, accessible transport for those with mobility challenges and filling gaps where there is no public transport.
  • The Council has refreshed its approach to working with town and community councils.  A new Working Better Together network has been established as a means of progressing information sharing, relationships building and discussing areas of mutual concern.  Over the past twelve months these bi-monthly meetings have discussed the community boundary review, developed a cost neutral way of supporting town and community councils to meet their duty to have a website, and are exploring how a Clerks network could facilitate information sharing and mutual support for Clerks.
  • The Council continues to work with town and community councils (as well as other public bodies, such as Pembrokeshire Coast National Park Authority) on joint funding models for community-based services.  For instance, in November 2023 Tenby Town Council provided funding to maintain 2023-24 opening hours into 2024-25.

Evidence – how do we know?

Improvement actions – what can we do better and how?

  • The delivery group for the PSB Strengthening Communities project will continue to use the Most Significant Change process and methodology to support partnership working and decision making.
  • The group will also support ongoing delivery of key activities to support communities including Keep Well roadshows, Live Well for Less and Keep Warm, Keep Well campaigns.
  • The 2025-26 Enhancing Pembrokeshire Grant will continue to offer targeted support to community groups building upon last year’s work that focused on areas of low response.  Alongside this, scaling up community ideas could increase the scope and potential of projects, making more effective use of the grant.  With reduced funding and staff capacity this financial year, there will be a single funding round in the autumn. But we will continue our enabling a broader advisory and supportive role to communities. So, communities have greater opportunities to develop community-based ideas and activities, which could result in more related and collaborative projects of strategic benefit to Pembrokeshire. Most importantly, it will continue to make a real difference to the vibrancy of communities.
  • Rebrand and refresh the Intranet volunteering page and volunteering newsletter.
  • Continued development of a new Community Strategy.
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ID: 14284, revised 27/10/2025
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