The production and distribution of cash
Public Accounts Committee
Closed
Inquiry
Ten years ago, cash was used in six out of every ten transactions - but by last year this was down to less than three in 10. The outbreak of COVID-19 may have accelerated this trend, with market demand for notes and coins declining by 71% between early March and …
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6
Recommendations
19
Conclusions
1
Report
1
Oral session
4
Letters
1
Event
Activity timeline 7 events
27 Apr
2021
2021
20 Apr
2021
2021
16 Apr
2021
2021
25 Mar
2021
2021
1 Feb
2021
2021
4 Dec
2020
2020
Report published
19 Oct
2020
2020
Oral evidence
Oral evidence sessions 1 session
19 Oct 2020
View on parliament.uk
Production and distribution of cash
Anne Jessop · Royal Mint
Chris Hemsley · Payment Systems Regulator
Dr Ben Broadbent · Bank of England
Nikhil Rathi · Financial Conduct Authority
Sarah John · Bank of England
Sir Tom Scholar · HM Treasury
Reports 1 report · click to expand
| Title | HC No. | Published | Items | Response |
|---|---|---|---|---|
| Thirtieth Report - The production and distribution of cash | HC 654 | 4 Dec 2020 | 25 | Responded |
Recommendations & Conclusions
25 results
2
Recommendation
Deferred
Thirtieth Report - The production …
We are not convinced that the public bodies understand how declining access and acceptance of...
We are not convinced that the public bodies understand how declining access and acceptance of cash can adversely affect many people’s lives. Some consumers prefer to use or rely on cash—particularly the elderly and lower income groups; those in rural …
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Government Response
The government agrees with the recommendation to set out how it will incorporate community needs into its plan for cash access, but defers specific action. It states it is considering responses to a Call for Evidence and will outline next steps in due course.
HM Treasury
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3
Recommendation
Deferred
Thirtieth Report - The production …
No one is in overall charge of making sure that people and businesses have access...
No one is in overall charge of making sure that people and businesses have access to cash. The responsibilities and accountabilities of the different bodies for the functioning of the cash system are not clear. Five public authorities have responsibilities …
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Government Response
The government agrees with the recommendation to assign overall responsibility for the cash system to a single body, noting the FCA may be well-positioned. However, it is currently considering responses to its Call for Evidence and will set out next steps in due course, deferring a concrete commitment.
HM Treasury
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4
Recommendation
Accepted
Thirtieth Report - The production …
The Bank of England seems to lack curiosity about the huge volume of notes not...
The Bank of England seems to lack curiosity about the huge volume of notes not used or held for day-to-day transactions. The Bank estimates that 20%-24% of issued notes are used or held for cash transactions. This leaves about £50 …
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Government Response
The Bank of England accepts the recommendation and commits to conducting surveys over the next year to understand household and small business use of banknotes as a store of value. It will also engage with HMRC and the National Crime Agency for additional information.
HM Treasury
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5
Recommendation
Accepted
Thirtieth Report - The production …
The Bank of England’s stock of notes seems high and it is not clear to...
The Bank of England’s stock of notes seems high and it is not clear to us how the Bank decides upon what is an appropriate stock level. The Bank holds stocks of notes well above its own policies for minimum …
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Government Response
The Bank of England accepts the recommendation, committing to review its documentation around stock decisions and contingency requirements to ensure it clearly records the main factors contributing to final decisions on print volumes and stocks by December 2021.
HM Treasury
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6
Recommendation
Not Addressed
Thirtieth Report - The production …
The continued reduction of coin use, possibly accelerated by Covid, is likely to put further...
The continued reduction of coin use, possibly accelerated by Covid, is likely to put further pressure on the Royal Mint’s ability to deliver a profit on its UK coin manufacturing operations. Coin use has declined over recent years, and the …
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Government Response
The government's response is a boilerplate text about the Bounce Back Loan Scheme and does not address the recommendation for HM Treasury and the Royal Mint to outline plans for sustainable and cost-effective coin manufacturing.
HM Treasury
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1
Conclusion
Not Addressed
Thirtieth Report - The production …
On the basis of a report by the Comptroller and Auditor General, we took evidence...
On the basis of a report by the Comptroller and Auditor General, we took evidence from HM Treasury, the Bank of England, the Financial Conduct Authority, the Payment Systems Regulator and the Royal Mint, about the production and distribution of …
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Government Response
The government's response does not address the Committee's introductory statement about taking evidence, instead focusing on different policy matters like cash access legislation and cashback.
HM Treasury
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7
Conclusion
Acknowledged
Thirtieth Report - The production …
When asked who would pay for the increasing cost of maintaining the cash system the...
When asked who would pay for the increasing cost of maintaining the cash system the FCA acknowledged that the economics of the cash system is changing. It suggested that further thought will need to be given to how to support …
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Government Response
The government agrees with the Committee's observation regarding the changing economics of the cash system and the political nature of cost allocation, but provides no specific commitments.
HM Treasury
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8
Conclusion
Acknowledged
Thirtieth Report - The production …
The Treasury informed us that a lot of work had been commissioned, from both government...
The Treasury informed us that a lot of work had been commissioned, from both government and outside government, to understand how rapid changes in the cash system were impacting on those still reliant on cash. This work indicated that 2 …
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Government Response
The government agrees with the Committee's observation regarding ongoing research into cash reliance and SME access to services, but offers no specific commitments or new actions.
HM Treasury
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9
Conclusion
Acknowledged
Thirtieth Report - The production …
The FCA and PSR are working with the University of Bristol to provide a map...
The FCA and PSR are working with the University of Bristol to provide a map of access to cash across the country and the different ways in which cash can be accessed, including bank branches, post offices, cash machines and …
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Government Response
The government agrees with the Committee's observation regarding the ongoing work by FCA and PSR to map access to cash but provides no specific actions or commitments to accelerate the work.
HM Treasury
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10
Conclusion
Accepted
Thirtieth Report - The production …
We asked the witnesses what they are doing to meet differing needs for cash within...
We asked the witnesses what they are doing to meet differing needs for cash within rural areas, for example where people might want privacy when withdrawing money and where others, on a budget, might not wish to be tempted to …
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Government Response
The government agrees with the Committee's observations and commits to protecting access to cash, with a target implementation date of Spring 2021. It highlights ongoing efforts and is considering responses to its Call for Evidence, with next steps to be set out in due course.
HM Treasury
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11
Conclusion
Acknowledged
Thirtieth Report - The production …
The FCA and PSR acknowledged that there is not likely to be one solution to...
The FCA and PSR acknowledged that there is not likely to be one solution to meeting the cash access needs of local communities. Both organisations recognised that creative solutions will be needed that are community-based, reflecting the make-up of the …
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Government Response
The government acknowledges the committee's observation regarding the need for flexible, community-based solutions for cash access. It reiterates its commitment to protecting cash access and will outline its next steps after considering responses to a Call for Evidence.
HM Treasury
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12
Conclusion
Deferred
Thirtieth Report - The production …
We challenged the Treasury on who is responsible for the performance of the cash system.
We challenged the Treasury on who is responsible for the performance of the cash system. It accepted that it was ultimately responsible for proposing legislation to 20 Qq 39–40 21 Q 40 22 Q 41 23 Q 43 24 Q …
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Government Response
The government agrees with the implied recommendation (based on its own proposal) to clarify responsibility for the cash system. It states it is considering responses to its Call for Evidence regarding giving a single authority, such as the FCA, overall responsibility and will set out next steps in due course.
HM Treasury
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13
Conclusion
Deferred
Thirtieth Report - The production …
There are gaps in the current distribution of powers and responsibilities.
There are gaps in the current distribution of powers and responsibilities. We asked, for example, who is responsible for monitoring the resilience of the cash machine network and for taking action should part of it fail. The PSR told us …
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Government Response
The government agrees with the implicit recommendation to address the lack of a single organisation responsible for monitoring the cash system. It reiterates its proposal from the Call for Evidence to give a single authority, potentially the FCA, overall responsibility, but defers action to set out next steps after considering responses.
HM Treasury
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14
Conclusion
Thirtieth Report - The production …
Coins are produced for the whole of the UK by The Royal Mint (the Mint)...
Coins are produced for the whole of the UK by The Royal Mint (the Mint) under a contract with the Treasury, which also acts as the Mint’s sole shareholder. The Bank of England (the Bank) is responsible for producing notes …
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HM Treasury
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15
Conclusion
Accepted
Thirtieth Report - The production …
The demand for notes has increased in each of the past 25 years.
The demand for notes has increased in each of the past 25 years. According to Bank figures, in July 2020 the number of notes in circulation reached a record high of 4.4 billion, with a monetary value of £76.5 billion.40 …
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Government Response
The Bank of England agrees with the Committee's observation and commits to conducting surveys over the next year on households' and small businesses' use of banknotes as a store of value, and to engage with HMRC and the National Crime Agency for additional information.
HM Treasury
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16
Conclusion
Accepted
Thirtieth Report - The production …
During the Covid-19 pandemic, between March and July 2020, there was a significant increase in...
During the Covid-19 pandemic, between March and July 2020, there was a significant increase in the value of notes in circulation.42 The Bank told us this is probably explained by people hoarding cash, and because less cash than usual was …
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Government Response
The Bank of England agrees with the Committee's observation and commits to conducting surveys over the next year on households' and small businesses' use of banknotes as a store of value, and to engage with HMRC and the National Crime Agency for additional information, which addresses the underlying reasons for increased notes.
HM Treasury
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17
Conclusion
Accepted
Thirtieth Report - The production …
The Bank estimates that 20%-24% of notes in circulation are used or held for day-to-...
The Bank estimates that 20%-24% of notes in circulation are used or held for day-to- day transactions. In 2018 it estimated that up to a further 5%, or between £1 billion and £3.5 billion, was held by UK households as …
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Government Response
The Bank of England, treating the conclusion as a recommendation, commits to conducting surveys over the next year to understand how households and small businesses use banknotes as a store of value. It will also engage with HMRC and the National Crime Agency for additional relevant information to address the lack of data.
HM Treasury
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18
Conclusion
Not Addressed
Thirtieth Report - The production …
Once printed, the Bank holds contingency stocks of all notes at its premises to avoid...
Once printed, the Bank holds contingency stocks of all notes at its premises to avoid shortages. The Bank sets its minimum contingency stock level by considering potential supply and demand shocks, and benchmarks itself against the practice of other major …
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Government Response
The Bank of England's response does not directly address this conclusion, which details the Bank's high contingency stock levels and associated costs. Instead, it commits to reviewing documentation around stock decisions and ensuring factors are clearly recorded, which relates to a different recommendation.
HM Treasury
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19
Conclusion
Not Addressed
Thirtieth Report - The production …
According to the Bank, it is not unusual for it to maintain high stocks.
According to the Bank, it is not unusual for it to maintain high stocks. It told us that it is more efficient to have long print runs of each note denomination—often lasting up to a year—as short print runs require …
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Government Response
The Bank of England's response, despite stating agreement, does not directly address the content of this conclusion which explains the Bank's current practice and rationale for maintaining high stocks. Instead, it commits to reviewing documentation around stock decisions, which relates to a different recommendation.
HM Treasury
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20
Recommendation
Accepted
Thirtieth Report - The production …
The NAO found, however, that it was not clear from the documentation shown to them...
The NAO found, however, that it was not clear from the documentation shown to them what process the Bank operated to decide upon adequate stock levels, and how the cost implications of doing so were taken into account when building …
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Government Response
The Bank of England accepts the recommendation, committing to review its documentation regarding stock decisions and contingency requirements. This review will ensure clear recording of the main factors influencing final decisions on print volumes and stock levels by December 2021.
HM Treasury
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21
Conclusion
Accepted
Thirtieth Report - The production …
The Mint’s UK coin production has reduced by 65% over the last ten years, from...
The Mint’s UK coin production has reduced by 65% over the last ten years, from about 1.1 billion coins made in 2010–11 to 383 million in 2019–20. This reflects the overall fall in production demand over the period, although production …
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Government Response
The government agrees with the Committee's observations on reduced coin production and outlines how HM Treasury and The Royal Mint are improving business efficiencies, reducing manufacturing costs, and enhancing forecasting accuracy to manage the impact of declining coin use.
HM Treasury
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22
Conclusion
Accepted
Thirtieth Report - The production …
The decline in demand has been particularly rapid in recent years.
The decline in demand has been particularly rapid in recent years. This has been in part due to the emergence of contactless payment methods affecting small cash transactions in particular.51 But also, in 2017–18, a Mint-run exercise to recall the …
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Government Response
The government agrees with the Committee's observations on declining coin demand and outlines how HM Treasury and The Royal Mint are improving business efficiencies, reducing manufacturing costs, and enhancing forecasting accuracy to manage the impact of reduced transactional cash use.
HM Treasury
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23
Conclusion
Accepted
Thirtieth Report - The production …
Since 2017 coin stocks have continued to rise.
Since 2017 coin stocks have continued to rise. At the end of March 2020, they significantly exceeded the target buffer stocks, which the Treasury set for the Mint to avoid shortages and be prepared for any uncertainties, in all denominations. …
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Government Response
The government agrees with the Committee's observations on rising coin stocks and outlines how HM Treasury and The Royal Mint are improving business efficiencies, reducing manufacturing costs, and enhancing forecasting accuracy to manage the impact of reduced transactional cash use and stock levels.
HM Treasury
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24
Conclusion
Accepted
Thirtieth Report - The production …
Since March, the disruption caused by Covid-19 has, we were told, led to increases in...
Since March, the disruption caused by Covid-19 has, we were told, led to increases in demand, as many businesses and consumers hoarded coins in the early months of the 46 Qq 84, 85; C&AG’s Report, para 3.30 47 Q 88–90 …
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Government Response
The government agrees with the Committee's observations on coin demand fluctuations due to Covid-19 and details how HM Treasury and The Royal Mint are improving forecasting and operational measures to ensure appropriate coin availability despite declining long-term use.
HM Treasury
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25
Conclusion
Accepted
Thirtieth Report - The production …
This could bring further financial pressure to bear on the Mint’s UK coin operations.
This could bring further financial pressure to bear on the Mint’s UK coin operations. The Mint has worked hard in recent years to make coin-making more profitable. It has undertaken a series of actions to reduce costs and increase efficiency, …
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Government Response
The government acknowledges the financial pressures on the Royal Mint and describes ongoing efforts to improve business efficiencies, reduce costs, and accurately forecast coin demand. The response details existing measures rather than new commitments.
HM Treasury
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Correspondence 4 letters
27 Apr 2021
Correspondence from Tom Scholar, Permanent Secretary, HM Treasury, re The production and distribution of cash cashback without purchase, dated 20 April 2021
Parliament page
20 Apr 2021
Correspondence from Tom Scholar, Permanent Secretary, HM Treasury, re The production and distribution of cash, dated 9 April 2021
Parliament page
16 Apr 2021
Correspondence from Public Accounts Committee Chair Meg Hillier, re The production and distribution of cash, dated 25 March 2021
Parliament page
1 Feb 2021
Correspondence from Tom Scholar, Permanent Secretary, HM Treasury & Chris Hemsley, Managing Director, Payment Systems Regulator, re Thirtieth Report of Session 2019–21: ‘The production and distribution of cash’, dated 28 January 2021
Parliament page