Policy paper

Defra Strategic Asset Management Plan - Executive Summary

Published 30 October 2025

Introduction

We have had a successful period of delivery over the last few months when we aimed to conclude our commitments for the 2024-25 financial year as well as mobilising critical new activities in the new financial year. This included Defra’s year-end purchasing and accounts work, delivering Defra’s people agenda including year-end performance process as well as rolling out a new SCS framework to better drive delivery and accountability across the Department. Tightening our device and asset management which will reduce waste and improve our green credentials. And Property and HR teams have been working hard on our long-term location vision for the group which will enable our leaders to better plan where and how their teams work for the next 20 years. 

Looking ahead to this financial year, Defra group is keen to embark on an ambitious programme of reform and investment – rethinking how we design and deliver policies and services in a better way, to live within our means, become high performing, and with a keen focus on our customers. This is an ambitious task, and alongside a difficult economic outlook, delivering these reforms will take collective change across the group – becoming more integrated, innovative and cost conscious. Defra’s Group Corporate Services is perceived as a real asset not least for its unique shared services model across government, which others are now looking to learn from with a view to deliver great value.

Scope – Defra group

Defra group vision

‘Improving nature, delivering growth.’ 

We improve and protect the essentials of life: food, water, land, and air. We drive economic growth, enhance nature, strengthen food security and protect animals, people and property from disease and flooding. Our impact extends beyond borders, sharing expertise and shaping policies globally.

Stronger together, Defra group is a network of organisations, collaborating across teams, professions and with partners to a shared vision. We’re applying science, data and innovation to transform how we work, creating efficient services that benefit people and communities. Through bold choices and careful prioritisation, we strengthen resilience and deliver ambitious outcomes.

• We are building an inclusive, dynamic workplace and investing in our people. Working together, we continually improve our services to customers, enhance living standards and create a more sustainable future.

Over the last year we have developed a revised Defra group outcomes framework which better represents what Defra Group is seeking to achieve.

Defra group Property Mission

Better - The estate needs to be fit for purpose and in a good condition, enhancing wellbeing and inclusive.

Greener - Decarbonisation of the estate, adaption for the impacts of increasing natural capital, and making better use of our resources.

Smaller - Our estate will be right-sized to meet our needs (still enabling Defra group to deliver), as well as responding be efficient and affordable.

Property - Priorities for 2025/26

Core aim: Deliver a smaller, better and greener estate enabling smarter working

Theme	Priority objectives	Measures of success
Run:	- Efficient day to day running of our estate portfolio, while delivering windfall opportunities to reduce in- year run costs – deliver RDEL and CDEL run cost savings. - Agree (Q1) and deliver (Q4) Asset Maintenance Plan with ISS	- In-year run costs reduced. - Asset Management Plan delivered on time - Incidents resolved on time
Change:	- Robustly manage delivery of the property change portfolio (”Open, Safe and Secure”) - Implement and regularly review portfolio prioritisation to enable increased confidence in financial forecasts. - Deliver digitised solutions to better utilise property data and enable data-led decision making.	- Prioritised projects list delivered on time/ budget - Delivery monitored at portfolio level e.g. RIDDORS, Tier 1 incidents etc - Deliver the Master Data environment and develop improved ISS Data flows on asset condition.
Transform:	- Sign off and Location Strategy 2045 with ExCo+ and successfully implement 1st year of delivery - Review ways of working on Weybridge site to ensure better alignment between DgP, APHA and NBC Programme. - Secure funding to enable the transformation efforts.	- Endorsement from ExCo of 2045 Strategy. Delivery of 1st year. - Better alignment between DgP, APHA and NBC Programme, including development and implementation of a new operational delivery model
People:	Property - Promote Government Property Profession career framework - Increase GPP accreditation level from 76% to 80% - To manage delivery of services with aging profile of workforce and likely larger attrition. Identify succession plans for critical posts. - Adopt more digitisation and innovation in our standard approach - Increase People Engagement to 75% by 2028 (now 62%) and make DgP a great place to work GCS level - To increase EDI focus with GCS People Promise, published and regular drum beat of outreach.	- People Engagement increased to 75% by 2028. - GPP accreditation level increased to 80%. - Succession plans produced. - Digitisation and innovation adopted in standard approach. - Increased EDI focus within GCS with regular outreach activity.
Users:	- Manage expectations on delivery given Spending Review, people and our dilapidated estate pressures - Rigorously challenge operational property strategic need and commence Operational Property Strategy to layer on top of the Locations Strategy 2045 - Deliver Locations Strategy messaging taking people through the change journey – working closely with HR	- Communications and engagement plans agreed and delivered
- Change outcome delivery; achieve milestones for closures and shrinkage of office footprints as set out in the Locations Strategy 2045

Defra group Property Ambition

Sustainable and inclusive property and workplaces that enhance wellbeing, engagement and productivity.

That put people in the places they need to be to do their best work and among the communities they serve.

That give choice over where and how people work so that they are empowered to work in the smartest ways.

• Attract a diverse and talented workforce.
• Sustainable, aspiring to the highest environmental standards.
• Meet the needs of the business and customers it serves now and in the future.

Facts & Figures (March 2025)

• 290: No. of Properties
• 28,286: Total FTE assigned to a Defra group property
• 1,604: Home workers
• 340,329: Total NIA m²*

Sites with most Defra group FTE: 

• London - 2 Marsham Street
• Bristol - Horizon House
• York - Kings Pool
• Newcastle - Lancaster House
• Warrington - Richard Fairclough House

Offices with largest NIA m²:

• York - Kings Pool
• London - 2 Marsham Street
• Bristol - Horizon House
• Workington - Chapel Bank Works
• Newcastle - Lancaster House

No. of sites

Category	Total	%
Office	114	39%
Depot	73	25%
Store	53	18%
Laboratory	21	7%
Land	17	6%
Other	6	2%
Other/Store	6	2%

NIA m² by type of site

Category	Total	%
Depot	46,847	14%
Laboratory	122,432	36%
Office	152,315	45%
Office/Store	440	0%
Other	1,735	1%
Store	16,560	5%

FTE by type of site**

Category	Total	%
Depot	1,286	4%
Laboratory	2,360	8%
Land	0	0%
Office	24,509	82%
Office/Store	25	0%
Other	16	0%
Store	90	0%
Home	1,604	5%

FTE figures based on Feb 2025 SOP data. 

*Excluding land holdings

**Some sites are multi-use and have depot, store, laboratory and office elements combined. It is not possible to split FTE/NIA by space type, these have therefore been grouped by each site’s main use.

Defra group Property and Workspace

• Our workplaces enable smarter working, interoperable technology and policy to facilitate collaboration between teams and departments. Either newly constructed or refurbished, our workplaces within Defra group are varied and include both office and operational facilities (including depots, laboratories, border control points). 
• We are creating our workplaces in the right places that enable our colleagues to be closest to the communities they serve, or the colleagues they need to collaborate with. We are making sure we are well located and easily accessible to our people and partners. We take a group approach to our estate – meaning that our buildings are available for colleagues across the group to choose to work from. 
• We are designing work settings, which enable our people to choose the most appropriate space for the activities being undertaken across our estate, including operational facilities.  The spaces will be designed to world class inclusive and accessible design standards to ensure they can be easily used by a wide and diverse range of people. In 2024 we published an updated Workplace Design Guide which is an essential part of transforming our estate, allowing us to create spaces that drive operational effectiveness, support our teams and new ways of working, while helping us deliver on our sustainability goals and provide an inclusive estate. It reflects our ambition to be better, greener and smaller.

Defra 2045 Locations Strategy

We have sought and received agreement from Exco for our Property and Location Strategy which focusses on our office estate and opportunities to streamline our portfolio.  The aim of our strategy is to help us achieve our goal of a better, smaller and greener estate by; 

• Consolidating into fewer total locations
• Rationalisation of accommodation at lease breaks and lease expiry
• Remaining in locations that suit our needs
• Relocating to better quality and more sustainable offices
• Delivering an Office estate that will be considerably smaller
• Aligning with the Government Property Strategy

As part of this strategy, we started by assessing a total of 49 offices, and grouped these into sites we recommend are retained and sites for further review. Of these we have identified a minimum of 16 offices/locations to retain and 33 locations for further review. This does not include operational facilities as these sites mainly deliver local services via our partners.  

We will work with GPA, OGP and other Government Departments to look at where our strategic locations allow shared placemaking ambitions 

Our properties will be more expensive as we improve the quality of our properties going forward. Even by reducing the estate there will likely be an increase in cost if we are to deliver better quality and more sustainable properties.

Property Functional Standards CIAF

In 2022 the Government published its Government Property Strategy 2022 – 2030 aimed at transforming the public estate, delivering savings and achieving better value for money. Part of the delivery of this strategy was the development of a series of Functional Standards. The Property Functional Standard 004 has a variety of themes demonstrating maturity as well as a number of ‘shalls’ for each theme. It is expected that all those ‘shalls’ will be met by 2030. 

Cabinet Office produced a series of Continuous Improvement Self-Assessment Frameworks to support Departments in running an annual self-assessment and developing plans to tackle weak areas. 

In Defra we have just completed a baseline of our CIAF and I am delighted to say that our overall assessment is ‘Good’ with 89% of shalls met or partially met. We will continue to work towards achieving everything set out in the Government Property Strategy.

Capacity and Capability

Theme 1 in our Property Function self assessment shows an overall mark  of  ‘good’. We are excellent at learning and development but need to improve on assurance and continuous improvement and on strategic workforce planning. We have a programme ongoing to address workforce planning.

We continue to make significant progress in developing our capability required in the delivery of property services and WP&FM services to our clients.

DgP have developed a COO function and a Portfolio Management team – designed to give us a greater level of control, reporting capability and the ability to make data driven portfolio wide decisions essential for property services delivery – strongly supported by Minerva. Following the 22/23 SAMP we have continued to develop our capabilities to deliver transformation (Minerva) and examples of where we have developed are strategic partnering, project delivery, workplace management expertise, supplier management, change management, stakeholder management and a developing CRM model. 

We continue to work with GPP and IWFM and the career framework  to determine any gaps in skills and capabilities and how we fill them – the Fast Stream Programme and Apprentice Scheme being good examples of the support to build long term capability. We want to attract and retain the best talent and provide the highest level of support and training as we transform our estate and ensure our teams feel they are aligned and involved with the transformation and that it is not ‘done to them’. As we continue to manage cost pressures we will seek out innovative ways to protect front line safety, operational and delivery roles. We will champion hybrid and blended working and continue to design portfolio and workplaces to reflect our new working practises.

Data and Management Information

Our Property Functional Standard overall assessment for Theme 2 is ‘Good’ yet although we need to do quite a lot of work in some areas such as whole life costs, condition surveys, asset management and financial management. We have a n entire programme dedicated to improving our asset management.

We have seen a significant effort to develop essential skills in Data and Digital service delivery via our Minerva Transformation programme. DgP are creating an integrated, data driven, asset management and Building Information Management (BIM) capability, empowered by digital technologies, automation and Artificial Intelligence (AI) which aligns with property policies, standards, and industry best practice. This will allow DgP to optimise asset performance, enhance operational efficiency, deliver value for money and facilitate informed decision-making based on accurate data and management information - ultimately, driving sustainable growth and maximising value for money. This demands a focus on key capabilities to ensure delivery of the vision. Through the process of developing the future operating model for WP&FM we are, concurrent to this, focussing on centralised data ownership, estate digitisation capabilities and asset management capability

Defra Group Property is now the owner of all property related master data across Defra. Considerable work has been undertaken to improve data quality, consolidate data sets and implement master data governance processes.

Data and Management Information

Our property Functional Standard overall assessment for Theme 2 is ‘Good’ (we have not got answers to the risk questions although we need to do quite a lot of work in some areas such as whole life costs, condition surveys, asset management and financial management. We have an entire programme dedicated to improving out asset management).

We have developed a Defra Group Property data dictionary, which defines all of the data that DgP uses to manage the Defra estate. This data dictionary is based on ‘Facilities Management Standard FMS002: Asset Data’ and ‘Data Standard GovS004-PDS010’, and has been used by our Facilities Management (FM) partner ISS to configure their system to ensure the interoperability of data.

Our property master data management processes are now live, with updates provided to relevant stakeholders.

Plans for FY 25/26: 

• We plan to increase the use of DgP master data across other systems and processes that reference location, for example IT, HR and financial systems; and those of our Arm’s Length Bodies (ALBs).
• We will implement a master data management platform, to manage and publish our master data, integrating it with other systems wherever possible.
• We continue to support the central digital asset register (Insite) and the transfer from E-Pims and we apply Government Property Standards for Data

Building Information Modelling (BIM)

• The DgP BIM team continues to provide leadership across Defra and with various capital project delivery teams, supporting them to deliver their BIM and Information Requirements.
• The Minerva Programme has initiated a number of digitisation activities, including:
  • The creation of photogrammetric models of the whole Defra estate;
  • Campus wide models, where appropriate;
  • Proof of concept initiatives, such as smart sensors in buildings and drone surveying; and
  • Digital Twins for the Defra estate.
• The Minerva Programme is also deploying a Common Data Environment (CDE) which will act as a repository for all ‘business as usual’ models, documents and artefacts. This is being done in conjunction with the development of a DgP wide data strategy; and our FM partner ISS, to ensure that we only have 1, single source of the truth.
• The Environment Agency (EA’s) have their own BIM/IM team, which is responsible for all of the EA’s operational flood assets. The EA has been operating BIM processes for more than a decade and are a leader in this space across the BIM industry.

Whole Life Asset Management

• Defra group is developing an iterative approach to WLAM, working towards the standards within BS 8544 Guide for life cycle costing of maintenance during the in-use phases of buildings and BS ISO 15686-5:2008 Buildings and constructed assets - service life planning - life-cycle costing. 
• To ensure all our assets have been adequately captured, DgP undertook a full asset verification exercise across both the EA and Defra estate.  All sites have been surveyed in partnership with our FM Provider to create an accurate and up-to-date asset list which will ensure that not only are the current assets being maintained appropriately but will also improve Defra group’s capability to undertake complete WLAM.  This work has been in line with Government Functional Standard GovS-004 Property and Facility Management Standard FMS-002: Asset Data. 
• This new asset register, and way of working will provide us with datasets and information, upon which we can further develop our understanding of the estate and will be critical to Defra group adopting the latest cross government approach to asset management.   It will be a central plank of the asset management strategy currently being developed and implemented across DgP. 
• Construction Cost and Operating Costs are fairly well defined however disposals costs will need further work streams to be developed to ensure that the full Life Cycle Costs (LCC) can be determined and realised.

Operational – Workplace & FM Strategy

Theme 4 of our Property Functional Standards self assessment is showing as overall ‘Better’ – this is an area we have worked very hard on.

• Workplace and Facilities Management (‘WP&FM’) Services make it possible for Defra Group to operate its property portfolio (over 300 properties) for 26,000 colleagues. These essential services include asset maintenance in line with Health and Safety requirements and bio-security regulations. Without these services, the estate (including offices, science laboratories, flood depots etc) would be unsafe and unable to operate, with severe consequences for the UK economy and environment given the frontline nature of much of Defra Group’s activity. 
• Defra historically has been spending approximately £69.6m per annum on Workplace and Facility Management services, of which £46.0m per annum was with MITIE across two Total Facilities Management (‘TFM’) contracts, and the remaining £23.6m split between the Defra team and smaller suppliers of ancillary services. Both contracts came  to an end in early 2024. We have successfully designed, reprocured, implemented and are currently operating new models of WP&FM services with a value of £866m to 2030/31.

In addition we are meeting broader Defra Group strategic aims;

a) Clear accountability for bio-security compliance, protection of the UK from animal pathogens while securing Global Britain’s position as a core international trading partner in products of animal origin and a hub for world-leading animal, plant and environmental scientists and improving the environment within a generation.

b) The project operating model underpins HMG’ priorities for Sustainability and social value creation, supporting Net Zero, Levelling Up and enabling Global Britain.

Operational – Workplace and Facilities Management Strategy continued

Theme 4 of our Property Functional Standards self assessment is showing as overall ‘Better’ – this is an area we have worked very hard on.

• The 10-year project forecast costs are £39.6m more than the OBC Do Minimum scenario over 10 years. The project has transformed WP&FM across the portfolio and unified two separate operating models by utilising an integrated delivery model delivered by our new partner ISS and managed with a fit for purpose Defra Intelligent Client. Even in the early stages we have seen significant change - enhanced working relationships between Defra and its delivery partners, improved contractual risk apportionment and seen the control of critical services move to within Defra. The new model has allowed a clear focus on further enablers to be developed across the portfolio – Asset Management, BIM development and implementation, digitization of the estate and a focus on policies and standards. In addition, the project continues to be a key enabler for the new services forming an integral element of the wider corporate services transformation programme
• The objectives of the project are being realised; 

a) Successful implementation of the WP&FM Target Operating Model that meets the Critical Success Factors (e.g. addressing unacceptable compliance risk).

b) We have Implemented an affordable WP&FM contract that delivers Value for Money.

c) Implementation of a strategic WP&FM contract management approach that drives contract efficiencies and savings and provides a platform for further efficiencies. 

d) We are meeting the required Sustainability/Social Value targets required of DgP operations (Run & Maintain).

e) The contract provides workplace solutions that are flexible to accommodate the demand for change from the business and linked programmes e.g. Corporate Service Transformation.

Sustainability and Stewardship

Theme 5 in our Property Function self assessment shows an overall mark of  ‘better’ with the focus  being on improving our score on Conservation, Remediation & Adaptation

Sustainability Strategy

Following the publication of the sustainability strategy last year we have agreed carbon targets for Defra Goup Property to meet in the short and long term. We will be working on a Property Sustainability Strategy in 2025/26.

Climate Change & Decarbonisation

We are currently delivering the 1st stage of our decarbonisation plan with most project due for completion in 25/26. We are awaiting our SR outcome to understand the implications on all of our property projects that were due to start in 25/26.

We have completed an initial assessment of the climate change risks associated with our property portfolio. This will allow us in the upcoming year to assess how we can improve our properties against the future risks of climate change. 

Energy efficiency: building fabric & Energy efficiency: appliances, plant and equipment

We’re embedding building fabric and energy efficiency into our property programmes and have additional funding within the SR for specific sustainability projects. This will be supported by the standards required within our Design Guide.

Managing and running our buildings

We’re working through the Functional Plan (an OGP requirement) and we have Net Zero Plans for each of our buildings, although these are at varying stages of maturity.

Using our buildings

We’ve begun to create leadership groups for each property with an aim of one for each of our properties; they are tasked (along with other duties) to encourage the use of the building in a sustainable way.

Engagement Transactions and Contracts

Our Property Functional Standard overall assessment for Theme 6 is ‘Better’.  We will continue to work to maintain and improve on these high standards especially around communication.

Professional Services Procurement

Defra obtains estates professional and legal services through a combination of intra-government providers and external specialists. 

Legal services in respect of commercial property transactions are provided by Government Legal Department with additional support offered by the Environment Agency Property Law Unit. Where specialist additional resource and capability are required, these are obtained by call from Crown Commercial Services legal contracts, with individual instructions being awarded by the respective legal team off the call contract or in line with Defra Procurement policy for matters involving fees of less than £10,000. The delivery of legal services is supervised by the commissioning lawyers with additional technical and transactional oversight from the in-house qualified surveying staff.

Estates Professional, Transactional and Advisory services are provided via a partnership contract used jointly by Defra and the Government Property Agency. The contract covering commercial property management and transactional services was let to BNP Paribas by GPA following a formal open tender in 2022 off the Crown Commercial Services Framework Contract RM6168. Supplement services which cannot be provided via this contract are procured in accordance with Defra Procurement policy which requires competitive quotations below £10,000 and a competitive exercise of existing government framework contracts in all other instances.

Property Transaction Due Diligence

In addition to qualified in-house commercial surveyors, Defra engages competent property advisors and lawyers. We would usually follow appropriate due diligence relative to the transaction but in addition to land registry requisitions, local authority searches and planning and environmental enquiries we would normally consider a variety of other factors.

Property Selection

In sourcing and selecting property we follow the sequential analysis and due diligence set out above, but our starting position is always routed in understanding the purpose of the property and the operational and business needs it is required to serve.  Defra is a place based public service organisation so the location and utility of the property we choose is linked directly to the public services we deliver. Whilst there is some scope of centralisation of policy and administrative functions, a greater proportion of our staff are pointed towards the delivery of services to the public which necessitates selecting property based on a matrix of location and purpose.

Governance and Strategy

Our Property Functional Standard overall assessment for Theme 7 is ‘Good’.  This is partly because we have no governance with separate jurisdictions overseas. Our Property Strategy has just been cleared for implementation so that will improve in subsequent years, and we need to be more overt in the use of guidance (where appropriate).

All parties recognise that successful delivery of the Defra group vision, the ‘One Defra’ approach and the statutory roles of ALB partners rely on strong enabling corporate services and commitment to effective partner relationships. Defra group Corporate Services and our partners commit to work to a genuine set of shared principles.

a. It is a partnership model, where we work together as part of one Defra group to ensure each partner has the underpinning corporate support to deliver their core and statutory responsibilities: it is not a contractor/supplier model.

b. We have a shared vision and are committed to each other’s success and to the overall Defra group outcomes;

c. We show mutual trust and respect for each other and encourage our teams to do so at every level. Where there are differences or affordability issues, we work together to resolve constructively;

d. We operate within and alongside the wider Defra group and independent NDPB governance structures;

e. We communicate regularly and share information in advance about our plans and priorities between partners the Defra group Corporate Services Functions to succeed together;

f. A whole system perspective will be taken in decision-making and prioritisation. Acting on behalf of the Group considering relative priorities, costs and implications; and

g. We deliver on our reciprocal responsibilities to make this a successful partnership, which are set out in the Defra Group Corporate Services Governance Framework.

Finance

Defra Group Property continue their financial maturity journey through Financial Maturity Board (launched in 2020/21).  Business ownership of financial forecasts helps to ensure that key risks are understood and mitigated, resources are directed to our highest priorities and enables us to articulate the costs of running the Group Estate. To achieve this, we are concentrating on the development of the financial capability of our teams, improved financial conversations and use of available tools to better support robust budget management and decision making.  

Throughout 2025/26 the key focus will continue to be the internal development of our team members and improving budget holder responsibilities. Rolling out Brilliant Basics. Working collaboratively with Finance we will prioritise and deliver finance initiatives under four key areas:

• One Version of the Truth
• Training and Development – Budget Holder/ FBP & MR responsibilities/ Forecasting & Budgeting/ Project Manager application/ Financial Management Improvements (building in 24/25 lessons learned/ monthly finances/ invoicing/ receipting/ time recording/ budget management controls
• Evolving with our Finance Partners
• Growing and Embedding our Continuous Improvement Activities.

DgP produced 3 spending review bids for HMT consideration covering safe, secure Estate/ IFRS16 and Office Rationalisation. In addition, the operational run costs of property have been subject to department review with savings identified over the SR period which DgP will be held accountable to deliver. Funding for 25/26 is agreed. Subsequent years are subject to Departmental Business Planning over Summer 2025.

[Places for Growth]

Places for Growth is fully aligned with Defra group’s ambitions to deliver growth and build thriving communities across the UK, where people have real opportunities to progress their careers.

We have already aligned Core Defra’s workforce strategy, Spending Review planning and property strategy with the objectives of the Places for Growth programme. Core Defra made a commitment to relocating 1,100 roles out of London by 2027 and has already made significant progress in relocating 760 roles. And we have a longer-term ambition for 50% of Senior Civil Service (SCS) posts to be based outside London by 2030.

The closure of Nobel House in 2023 has been a key milestone, enabling us to optimise our London footprint. Place Leaders have also been appointed in our major hub offices to actively foster a strong local culture and sense of identity.

We currently have hubs in Bristol, York, Newcastle, and London. We are further committed to creating outstanding workplaces across the Defra group estate, including within the devolved administrations. 

Our 2045 Locations Strategy will be a foundation stone for future workforce planning efforts that may see the number of Defra Hubs rise above 4, to give more choice of locating policy teams outside of Greater London.