Andy Burnham was right: this Prime Minister can’t handle devolution

Chris Game

Negotiate? Look what happened last time!

“Unlike previously, there will be no negotiation with local leaders … financial support will be allocated on a uniform per capita basis”.  Simply a Guardian report, not a Prime Ministerial quote, but it didn’t need to be. What happens after December 2nd, the local restriction tiers to which we’re allocated, affects every person in every English locality differently.  But discussing, never mind attempting to negotiate, with experienced elected representatives who live in and know those localities – nah! It will only complicate things, and besides, look what happened last time!

Pleasingly, thanks to ITV News and Facebook, we can. The date was October 20th; the place – Manchester’s Barbirolli Square; media briefing convenor and main speaker – Greater Manchester Mayor Andy Burnham; in attendance – several leaders of Greater Manchester councils; topic – Prime Minister Johnson’s imposition of the most stringent Covid lockdown restrictions on Manchester city region and refusal to increase the ‘standard’ £60 million financial support even to Burnham’s ‘bare minimum’ £65 million, that had prompted the latter’s accusation that the PM was “playing poker with people’s lives.”                                                                                  

It’s both melodramatic and genuinely climactic – when Burnham learns (about 32 minutes in), from a council leader’s mobile phone, the breaking news that the PM was punishing the Mayor’s protest, and Mancunian citizens, by peremptorily withdrawing the previously promised £60 million. That it later had to be restored – not by the PM, but by Health Secretary Matt Hancock – seemed merely to confirm all initial impressions.

The following weekend, Burnham and London Mayor Sadiq Khan wrote a joint Viewpoint column in The Observer/Guardian – ‘Mayors are a force for good. And it’s time Johnson recognised that’.   

The theme is easily conveyed: “The UK nations and regions should have been the government’s biggest ally in the battle to control the spread of this virus … As mayors … we are uniquely placed to help … [we] work hand in glove with local NHS leaders and regional health experts … we have strong links with local business leaders and understand the strengths of our local economies.  Crucially – we have shown ourselves capable of reacting to events more quickly and devising more innovative solutions than national government.”

 

“Prime Minister, you can’t handle devolution!”

It was the next paragraph, though – tone and content both – that really hit home: “However, the government has at times treated us as the enemy.  Westminster has sadly shown it is not mature enough to deal with devolution (my emphasis).  The government may have all the money and power, but ministers simply cannot cope with differences, disagreements or compromise.”

Remind you of anyone?  Top 20 Movie Quote?  Jack Nicholson/Tom Cruise courtroom scene?  “You can’t handle the truth!”  Yes, Nicholson’s Colonel Jessup defending his issuing a ‘Code Red’ in ‘A Few Good Men’.  I thought so, anyway, so please bear with me.  Some brief, imagined extracts from a kind of role-reversed “You can’t handle devolution!” speech, with Andy Burnham doing the Nicholson/Jessup lines and Johnson as Cruise/Lieutenant Kaffee:

Johnson:            “You questioned my Tier 3 lockdown order?”

Burnham:          “You bet I did.”

Johnson:            “I demand to know why.”

Burnham:          “You want answers?”

Johnson:            “I want the truth!”

Burnham:          “YOU CAN’T HANDLE THE TRUTH!   Prime Minister, we live in a world where so-called ‘local’ and devolved governments manage and finance over 1,600 separate services.  A world that has responsibility for 400,000 care home beds – in homes that have seen 40% of all Covid-19 deaths.  We’re expected to fund all this with one single local tax that you cap and inadequate grants that you either ring-fence from the start or cut later when it suits you.

Who’s going to handle that scale and scope of responsibility? You, Prime Minister?  You have your graphs of aggregated infection and death rates and make your big decisions shutting down whole communities.  But most of those communities – our communities – are in the poorest parts of the country, where poor housing, pre-existing health conditions, and decades of neglect and financial discrimination mean infection and death risks are the highest.

We, our local councillors and officers have greater responsibilities than you can possibly fathom. You have the luxury of ignoring and compounding what we know – that, despite your collective and repeated ministerial failings and private sector contracting obsessions, we have saved lives, and our existence, while inconveniencing and incomprehensible to you, saves lives.

You don’t want the truth, because deep down in places you don’t talk about at parties, you WANT us out there … you NEED us out there.  You and your manifestoes promised “full devolution across the UK”, and “an English Devolution White Paper … so every part of the country has the power to shape its own destiny.”  The truth is that there is no White Paper.  The truth is that YOU CAN’T HANDLE DEVOLUTION!”

 

When Johnson was a Mayor himself

‘Irony’ is among the most misused words in the English language, but we do seem to have a case here of either situational irony or straightforward duplicity.  A decade ago, Johnson was Khan’s predecessor as Mayor of London. Especially in his second term ‘Heineken Tory’ period, he very deliberately used London as a headline illustration of how devolved government in the UK generally was centrally over-controlled and under-funded, compared to other countries’ systems.

He established a London Finance Commission, chaired by LSE Professor Tony Travers, which swiftly produced a neatly entitled report – Raising the Capital – with some seriously radical content.

Impossible here to summarise satisfactorily, the Commission concluded that London’s growing, changing population placed increasingly acute pressure on local services, while its existing sub-national governments lacked the powers to provide effective solutions.

Under 7% of tax paid by London residents and businesses was redistributed directly by locally elected bodies; 74% of London’s funding came through central government grants – compared with Berlin’s 25%, Paris’s 17% and Tokyo’s 8%.

Taxation powers were merely one part of the required reform.  But the Commission recommended (p.11) that “the full suite of property taxes” – council tax, business rates, stamp duty, capital gains tax – be devolved to London governments, which should have responsibility for setting tax rates, revaluation, banding and discounts. There was plenty more, but the point here is less the Commission than the CommissionER. 

Ever the catchy phrase-seeker, Johnson launched his report by referring to tax-enfeebled London as “an economic and political giant but a fiscal infant …”  However, while his Commission’s proposals were for London, the Mayor himself seemed more ambitious.

So, come the 2013 Conservative Party Conference – in Manchester, by happenstance – there he was, leading a cross-party campaign with the London Councils and Core Cities Groups – the latter comprising then, pre-devolution, the Leaders of the eight major English cities, including Sir Richard Leese, then-as-now Leader of Manchester City Council and also Burnham’s Deputy Mayor, whose mobile phone would be the one conveying to Mayor Burnham the PM’s Greater Manchester lockdown news.

Piquant, isn’t it!  Because, back then, Johnson was asserting that England was much too centralised and calling for a comparable suite of fiscal reforms for England’s largest cities. Ever the historian manqué, it would be an “historic and significant move … a partial but practical answer to the conundrum of English devolution … good not just for the cities involved, but for the country at large.”

 

What changed, what didn’t – the current state of English devolution

Financially, of course, nothing fundamentally changed.  London could still be tagged a tax-enfeebled “fiscal infant”, the difference being that it is now blatantly treated as such by its former Mayor.  As recently, when the now PM resorted to apparently “lying to Parliament” about Mayor Sadiq Khan’s financial management of Transport for London, before grudgingly granting a £1.8 billion bailout and dropping demands for fare increases. Greater Manchester, London – you may sense a certain pattern emerging.

Greater Manchester Combined Authority (GMCA), as it happens, was the first of these new devolution models to have been launched – by the Labour Government back in 2011, although its actual Treasury-negotiated ‘City Deal’ didn’t happen until November 2014, shortly after the Scottish independence referendum. It established the pattern, though, for the now 10 CAs – 8 Mayoral, 2 (West Yorkshire and the North East) currently non-mayoral – set up by two or more neighbouring councils wishing to co-ordinate responsibilities and powers over services such as transport, skills training, economic development, housing and social care.

However, since the most recently created, North of Tyne, was in November 2018, the policy has effectively stalled.  The October 2019 Queen’s Speech promised a White Paper with plans for “unleashing regional potential in England”, replicated almost verbatim on p.29 of the Conservative Manifesto: “full devolution across England … so that every part of our country has the power to shape its own destiny.”  

 

“Full devolution across England” – or have things gone backwards?

In normal times one would now turn straight to the Institute for Government’s Policy Tracker for the first 100 days of the Johnson Government.  As comprehensive as ever, it compared ‘Commitment’ to ‘Current status’ for some 28 policy fields – one of which was to “Publish an English Devolution White Paper” … “Yet to commence”.

In fairness, it was far from the only such pledge, and the first Covid cases had been diagnosed about halfway through the 100 days.  Understandably, the agenda changed, as in July did the proposed title – to the ‘Local Economic Recovery and Devolution White Paper’, though the envisaged content and appearance dates stayed as vague as ever.  Through the summer it was to be September, then the Conservative Conference in October, then “Autumn”, then “on the back burner, pending a rethink” or simply “in due course”.

But, while ministers did their thing, local councillors recalled Robert Jenrick, Housing, Communities & Local Government Secretary, opining that he saw no “long-term future” for two-tier local government.  Cue serious speculation about just how large and non-local single-tier ‘local’ authorities might be – 300,000 minimum? 500,000? 1 million? – drawing lines on maps and speculating about how many fewer councillors there might be.

Meanwhile, ministers specifically responsible for local government came and went – one, Simon Clarke, just possibly, I suggested in these columns, because he became overly enthusiastic about anything describable as “the greatest decentralisation of power in our modern history”.  

I may have been wrong in detail, but right in practice. For Sir Bob Kerslake, former Head of the Home Civil Service and Chair of the UK2070 Commission, recently reckoned the White Paper is “postponed until 2021 – and the local government reforms scaled back. Its emphasis will be less on devolution – it does feel like it has gone backwards” – and recently, it seems, at gathering speed.   

First it was Scotland, with the self-isolating PM struggling to explain which kind of devolution was disastrous and which he supported, and then clarifying completely that, come the end of this lockdown, there would be no repeat of Barbirolli Square.  Quite simply, “there will be no negotiation with local leaders”.

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Chris Game is an INLOGOV Associate, and Visiting Professor at Kwansei Gakuin University, Osaka, Japan.  He is joint-author (with Professor David Wilson) of the successive editions of Local Government in the United Kingdom, and a regular columnist for The Birmingham Post.

Meeting like this…

Bryony Rudkin

The fieldwork for my PhD has consisted in part in watching and transcribing webcasts of council meetings. This was in the ‘before times’. Councillors like me up and down the country would put on their glad rags once a week or so, tip up at town halls up and do their thing.

Some of them would be filmed doing so and webcasts of meetings put up on council websites. Some recordings would be professionally produced using external platforms with nice little extras such as the relevant papers attached and easily referenced timings making it easy to watch the part of the meeting you were interested without having to wade through matters arising from the last one. Some of them were a little more homespun, filmed on phones and iPads, as one colleague put it, “local government styled by the The Blair Witch Project”.

Audiences for these would vary. Anecdotally, I was told officers would watch meetings in their respective councils to follow how their policy ideas were translated and received by councillors. Planning Committee meetings would get more hits from residents who were unable to attend in person but nevertheless wanted to know about their neighbour’s home extensions. One Chief Executive told me her mum watched and sent notes back on how her hair looked. And then there was me, collecting data with which to test my research questions.

All well and good. Then came the pandemic and lockdown and everyone went online. Whether it’s Zoom or Teams (other providers are available…) everyone from toddlers to great grannies logged on it seems. Quizzes were ubiquitous at the start and my family played some great drawing games (none of us will trouble Hockney). It’s not all been plain sailing though and we’ve all heard tales of Zooms gone wrong. Kids, dogs, nudity and those chat messages sent to all in error. I sat through one where someone, in response to a dull peroration on cycle paths, lifted their foot up and started to scratch it.

My rather niche research field has become a daily reality for most of us. I get regular messages along the lines of ‘you won’t want to miss this one….watch from 29 minutes in!”. I’ve been asked to comment on individual performance and style – “does my bookcase look big in this one?” – and I’ve taken part in virtual peer reviews and given feedback, online of course. I’ve been a participant myself of course and not just in council meetings. I’ve presented to an academic conference, chaired a meeting with a shadow minister interrupted by an ice-cream van outside her house and next month I’m monitoring elections in Bulgaria.

What has all this brought to my research? Well, put simply, meetings held online are a different matter to those held in person and publicly broadcast meetings something else again. Being at home, being alone in a room without colleagues to encourage, moderate or provoke can lead to unguarded moments. ‘Home truths’ are just that sometimes.

The organisation and direction of online meetings is a different process and the outcomes unpredictable. I recently watched two recent meetings in one authority, one calm, the other chaotic but the former was darker in tone and raised issues of bias and the chaos of the latter simply demonstrated a community at ease with itself and its challenges.

How we move on from here is a brave new world. Viewing figures are undoubtedly up and residents are getting more engaged. Hybrid meetings are now a reality. We all have new skills to learn and mute buttons to press. Watch this space….

Cllr. Bryony Rudkin is a PhD student at INLOGOV, Deputy Leader of Ipswich Borough Council and is a member of the UK delegation to the Congress of the Council of Europe. Bryony also works with councils around the country on behalf of the Local Government Association on sector-led improvement, carrying out peer reviews and delivering training and mentoring support.

Simon Clarke – first his speech goes, then him

Chris Game

Boris Johnson didn’t start the modern trend of hyper-rapid ministerial turnover, but he did ratchet it up.  His election last July produced a larger ministerial cull than in any other recent transition between ministers of the same party, the Ministry of Housing, Communities and Local Government being no exception.

So, were you paying attention?  Can you recall who was the minister specifically responsible for English local government on the first day of Boris Johnson’s Premiership, and how many there have been since?

For a department not traditionally one of the most sought-after steps on the ministerial promotion ladder, 18 months in Marsham Street evidently did Rishi Sunak no lasting career damage. For he it was who was junior Local Government Minister when Johnson arrived and was promoted by him to Chief Secretary to the Treasury.

The number of Sunak’s successors is less straightforward, as, following Simon Clarke’s recent resignation, he is replaced by Luke Hall, the man he himself at least formally succeeded in the role barely six months ago. This was interesting, as back in February it had apparently been necessary for an MHCLG “spokesperson” to dismiss as “nonsense” rumours that Hall was being “quietly moved aside” because Secretary of State Robert Jenrick “does not rate him”.

Interesting, but marginal, for this blog, although again featuring MHCLG in a key role, is about Clarke’s resignation and its possible policy ramifications. In the BBC’s rather odd choice of library photo he himself looked positively delighted.  But his letter to the PM cited “purely personal reasons”, so, if distressing circumstances are involved, one must obviously sympathise.

I don’t know Clarke, but from a distance he seemed one of the more committed, interested and listening Local Government ministers (as opposed to Secretaries of State) we’ve had recently.  And, given the limited options, I felt reasonably positive about his taking lead responsibility for the local government part of the Government’s anticipatedly radical ‘Devolution and Recovery’ White Paper, long expected sometime this month, but now at the Conservatives’ virtual annual conference in early October – possibly, or possibly not.

I wasn’t expecting to like what the White Paper had/has in store for the future gargantuan structure of what we could once meaningfully call local government. Clarke, though, almost from the outset, enthused – talking of producing a “genuinely seminal document … helping the process of unlocking devolution everywhere and empowering communities on a scale never seen before.”

The ”everywhere” and “communities” seemed perhaps that bit more meaningful, given Clarke’s having apparently made a point of meeting personally with the National Association of Local Councils, acknowledging the role parish and town councils had played in responding to Covid, and talking of strengthening that role in the future – along, albeit, with the extensive unitarisation.

His departure does, therefore, leave several question marks.  First, the resignation’s sheer hint-less suddenness.  Second, Clarke’s personal – and very recently well publicised – centrality to both the content and presentation of the White Paper.  And third, almost inevitably, the ‘Was he pushed, or at least nudged?’ conspiracy theory – and ‘The Mystery of the Disappearing Speech”.

The Local Government Chronicle (LGC) recalled Clarke’s ‘ground-breaking’ July speech to a Northern Powerhouse audience, promising “a roadmap for establishing a series of new mayors within the next ten years – representing the greatest decentralisation of power in our modern history.”

The speech duly appeared on the Ministry of Housing, Communities and Local Government website … then suddenly disappeared.  A manifestly crass piece of business, whatever the motive, and, of course, guaranteeing immensely greater interest and speculation than it initially attracted.

Happily, therefore, LGC was able to satisfy this ramped-up curiosity by publishing the full speech on its website (see preceding link).  Which means, if any pushing from No.10 were involved in Clarke’s resignation, we can at least speculate about possible prompts.

“A new deal for the North”?  A £5 billion ‘New Deal’, rebuilding public infrastructure, creating thousands of new jobs, helping our regions “build back and bounce forward” – no, that rallying vagueness is almost straight Boris.

“New mayoral devolution”?  “Responsible and effective mayors representing 100% of the north of England.”  Again, Johnson playbook stuff.  He proved Londoners would elect a Conservative mayor, despite most boroughs being Labour-run, as have Andy Street in the West Midlands and Ben Houchen in Tees Valley.

Remember in December how voters in those North and Midlands ‘red wall’ – now ‘blue wall’ – constituencies elected Conservative MPs for the first time?  They should have a similar chance next April to elect a Conservative metro mayor in the new but traditionally very Labour West Yorkshire Combined Authority.

This is the Government’s apparent strategy: abolishing – sorry, combining – large numbers of already big city, borough and district councils into, by any traditional and international standards, huge unitary ‘Combined Authorities’ headed by directly elected and hopefully Conservative mayors, thereby simultaneously saving money and providing more ‘streamlined’, if hardly local, government.

All of which leaves at least as many questions as it answers.  Why the apparent rush, mid-Covid?  This seems best explained by the Winston Churchill/Rahm Emanuel injunction to “Never let a good crisis go to waste”.  Councils have been hit massively by Covid, with County Finance Directors especially warning throughout the summer of budget shortfalls and the looming necessity to issue Section 114 (Bankruptcy) Notices.

Housing, Communities and Local Government Secretary, Robert Jenrick, made it clear from the start that he saw no “long-term future” for two-tier local government and especially for all those pesky ‘lower tier’ Labour councils. Unitary councils with directly elected mayors would be “strongly preferred” by the Government in considering devolution deals – the major issue for debate being the preferred and maximum permitted size of said unitaries.

Minimum size seems likely to be 300,000.  The arguments will be over the maximum: the District Councils Network’s preferred 500,000; the 1 million+ that whole-county unitaries could involve; or something in between?  Clarke’s position seemed flexible, but not that flexible: definitely closer to the former than the latter.

These things are already under vigorous discussion, but, if elections to new authorities are to be held as early as 2022 or even 2023, the legislation needs to be in place by summer 2021. Without even mentioning the Br…. word, and Covid clearly not going away any time soon, could the departure of the key minister signal at least a slowing-down of the timetable?  Which would also postpone the point at which, along with all those Labour district councillors who would lose their seats, there would be plenty of disgruntled Conservatives.

On the other hand, and returning to the ‘Missing Speech Conspiracy’, could it be that Clarke was going just a touch too far for ultra-centralisers Johnson/Cummings and had started seriously to believe in his “greatest decentralisation of power in our modern history”?

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Chris Game is an INLOGOV Associate, and Visiting Professor at Kwansei Gakuin University, Osaka, Japan.  He is joint-author (with Professor David Wilson) of the successive editions of Local Government in the United Kingdom, and a regular columnist for The Birmingham Post.

Prime Minister, remember when you weren’t hell-bent on infantilising local government?

Chris Game

 

I should just have returned from Limpopo, northernmost South African province and home to a substantial chunk of the famous Kruger National Park.  I, however, would have been there not for the wildlife, or even the wild life, but for the eminently respectable annual conference of IASIA, the International Association of Schools and Institutes of Administration, of which I’ve been a participative, though non-officeholding, member for the past quarter-century.

And now, after opening two sentences with a first-person singular pronoun, I should issue a READER ALERT!  There is, I promise, a serious point underpinning this blog. The first part, though, will contain more of those F-PS pronouns than even my average blog – sorry, but you have been warned.

Coincidentally, my very first IASIA conference, in 1996, was also in South Africa – in Durban, in the newly created province of KwaZulu-Natal, shortly after its first, violence-delayed, post-apartheid municipal elections had finally taken place.  The conference and the whole visit constituted a huge learning experience – and one acquired almost fortuitously.

For, despite INLOGOV being almost a model of the kind of institution IASIA/IIAS seeks to embrace – “involving both public service and academe”, whose interests and activities “target the education and training of public administrators and managers” – it always seemed colleagues in the then Development Administration Group, now the International Development Department, were the more active participants.

Anyway, it certainly gave me insights, opportunities and contacts I would never otherwise have had. That first Durban conference, for example, led fairly directly, if years later, to my involvement in a research project for the South African Municipal Demarcation Board on the relationship between size of municipality and efficiency of service delivery in the ‘new’ South Africa.

More recently, an exceptionally successful and in its way historic Ramallah conference in the immediate aftermath of the Grenfell Tower tragedy led to a paper (and subsequent blog) on how the new generation of elected Palestinian women mayors might have responded rather more impressively than Kensington & Chelsea’s politicians had managed.

Appreciation expressed, indulgent paragraphs over – thanks for your patience.  One thing I’m not really sorry to have missed with the Limpopo cancellation would have been the almost limitless curiosity of delegates – most following UK politics from several thousand miles’ distance – about the antics of the man who, for many, is our still relatively new Prime Minister. It would have been wearing, but I’d have borne it valiantly, not least because those with decent memories might well recall when I too had had positive things to say about the two-term Mayor of London – an office generally presumed abroad to be more powerful and prestigious than it is here.

Johnson never made it easy. Many delegates, whether or not they knew anything of his chaotic public and personal life, could certainly recall the man celebrating Britain’s first London 2012 Olympic gold medal by limply waving a Union Flag while stuck embarrassingly on a zip-wire.

It could sometimes be a tough gig, therefore, trying to persuade a predominantly overseas academic audience that, as London Mayor, the man had a record of some genuine achievement, if not on the scale of his hugely more experienced predecessor, Ken Livingstone.  But I tried, always starting with the headline statistics of his very election: twice, with over a million votes, to a post no other Conservative politician has come near to winning.

Evaluating his policy accomplishments was tougher, but, thanks to eventually effective delegation, there were, alongside the self-serving vanity projects, several tick-worthy boxes.  London’s homicide rate did fall dramatically between 2008 and 2016, by even more than it did nationally.  More so-called ‘affordable’ homes were built than during Livingstone’s two terms – though, in London especially, that A word is always debatable.

London Underground usage increased significantly, though ticket office closures continued and, by the time his planned night service finally arrived, he had gone. And it was bye-bye to fare-dodger-friendly ‘bendy buses’, hello again to environmentally friendly, double-decker Routemasters, albeit it at huge cost and some passenger discomfort.

Then there were the ‘Boris Bikes’ – nowadays the posher-sounding Santander Cycles – which, while not operating at the promised zero taxpayer cost, now constitute, I believe, Europe’s largest cycle hire scheme.

And, of course, like Paris for Bergman and Bogart in ‘Casablanca’, Boris will always have those undeniably memorable 2012 Olympics – notwithstanding that the idea and groundwork were Livingstone’s, the cost wildly over budget, and the legacy still debatable.

Over the years, then, I’ve felt able to talk – reasonably dispassionately, I hope – with international delegates about these things. But the topic I’ve always most emphasised, particularly in conference papers, has been finance: using London as a kind of headline illustration of how devolved government in the UK generally is centrally over-controlled and under-funded, compared to many of their countries’ systems.

In this I was much helped, unwittingly, by the man himself, who, as Mayor, professed similar concerns. For in 2012/13 he established a London Finance Commission, chaired by LSE Professor and finance expert, Tony Travers, which swiftly produced a neatly entitled report – Raising the Capital – with some seriously radical content.

Impossible here to summarise satisfactorily, the Commission’s conclusions were that London’s growing and changing population placed increasingly acute pressure on local services, while its existing sub-national governments lacked the financial powers to provide effective solutions.

A few illustrative stats: under 7% of tax paid by London residents and businesses was redistributed directly by locally elected bodies; 74% of London’s funding came through central government grants – compared with Berlin’s 25%, Paris’s 17%, and Tokyo’s 8%.

Taxation powers were merely one important part of the required reform.  But the Commission recommended (p.11) that “the full suite of property taxes” – council tax, business rates, stamp duty land tax, capital gains property development tax – be devolved to London government (GLC and/or boroughs), which should have responsibility for setting tax rates, revaluation, banding and discounts.

There was plenty more in the same vein – freedom to impose modest tourism and environmental taxes, planning fees and charges, and so on. My concern here, though, is less the Commission than the CommissionER.

Ever the catchy phrasemaker, Johnson launched his report by referring to tax-enfeebled London as “an economic and political giant but a fiscal infant …”.  However, while it was obviously the London Mayor’s Commission, making London proposals, the Mayor himself seemed more ambitious.

So, come the 2013 Conservative Party Conference in Manchester, there he was, leading a cross-party campaign with the London Councils and Core Cities Groups, arguing that England was much too centralised and calling for a comparable suite of fiscal reforms for England’s largest cities. An “historic and significant move …a partial but practical answer to the conundrum of English devolution … good not just for the cities involved, but for the country at large” … etc. etc.

Of course, nothing much changed substantively. London could still be tagged a “fiscal infant”, as could our whole local government system.

What changed was the man and his career: his personal political ambitions, the gift of Brexit, and the Johnson/Cummings project of running apparently the most unaccountable, centralist government of our age, in which the biggest city councils are mere marginisable infants.  A conference paper title for Limpopo 2021 perhaps?

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Chris Game is an INLOGOV Associate, and Visiting Professor at Kwansei Gakuin University, Osaka, Japan.  He is joint-author (with Professor David Wilson) of the successive editions of Local Government in the United Kingdom, and a regular columnist for The Birmingham Post.

Can democratic renewal help us ‘build back better’ from the COVID-19 crisis? Key recommendations from the Newham Democracy and Civic Participation Commission

Elke Loeffler and Nick Pearce

Newham has seen one of the highest rates of COVID 19 mortality in England and Wales. Being one of the 10% most deprived areas in the UK (according to 2019 deprivation indices) the crisis has exposed wider social and economic inequalities – in health, housing, access to services and income – particularly for the Black and Minority Ethnic population.

At the same time, Newham has also seen a flowering of community support and creativity in response to the crisis. The local council has pioneered new ways of working with the voluntary and community sector. A new COVID-19 Health Champions network has been launched to empower thousands of Newham residents to remain up to date on the latest advice about COVID-19, and a new digital initiative  ‘Newham Unlocked Community Broadcasts’ showcases the creativity of local artists.

Newham is also one of a relatively small number local councils in the UK which have a directly elected Mayor. In 2018 Rohksana Fiaz took over from Sir Robin Wales, after his 23 years in the post, as London’s first directly-elected female mayor. In her election manifesto Fiaz promised to hold a referendum on the direct elected mayoral system before the end of her third year as Mayor (i.e. 2021), although the impact of the COVID-19 pandemic will affect this timeline.

The Democracy and Civic Participation Commission

In this context the Mayor and the Council of Newham set up an independent Commission in autumn 2019 to examine both the Council’s current directly elected Mayor system of governance and the alternative approaches that exist in English local government, and to make recommendations on the best system of governance for Newham’s future, and to explore ways in which local residents can become more engaged and more fully involved in local decision-making and the Council’s work.

The Commission was led by Professor Nick Pearce. Extensive evidence gathering took place between November 2019 and February 2020.

A key concern of the six Commissioners was to make bold recommendations to reduce inequalities in public participation and bring citizen power into the Council to improve public services and the quality of life of local people. The COVID-19 crisis, which occurred during the latter stages of the Commission’s work, gave a dramatic glimpse of the huge potential resources in the community and the willingness of local people to make a contribution to improve the quality of life in their neighbourhood.

The “Newham Model” for more inclusive public participation

The resulting “Newham Model” aims to provide checks-and-balances to the way in which Newham is governed. It provides new participatory governance mechanisms. In particular, the Commission Report proposes the creation of a permanent Citizens’ Assembly, selected like a jury – the first of its kind in England. It suggests strengthening the accountability of the executive Mayor to local people and the main stakeholders of the Council, while also limiting the mandate of the executive Mayor to two terms, so that there is a frequent impulse for innovation and creative thinking at the centre of the Council.

Other key recommendations for strengthening public participation and co-production of public services and outcomes with local people are:

  • Extension of participatory budgeting – an increase in the resources allocated to areas or neighbourhoods for expenditure which is determined by local people from the current level of £25,000. The aim should be to spend a minimum of 20% of the Community Infrastructure Levy (CIL) resources through neighbourhood or area-based participation.
  • A new framework for area-based decision-making – allowing powers to be drawn down to the most local level – along with the piloting of an ‘urban parish council’ in one of Newham’s communities.
  • A new “Mayor’s Office for Data, Discovery and Democracy” to provide expertise and leadership on the democratic use of data, digital tools for resident engagement, and learning from digital champions such as the government of Taiwan.
  • Wider use of co-production with residents and people accessing services, including area regeneration, which means that the local council needs to become much better at mapping what local people are doing, and want to do in the future.
  • Enabling local councillors to play the increasingly important role of ‘community connectors’, mobilising local people and their enthusiasms.
  • Support for an independent, community-owned local media organisation.

The Report of the Commission was launched on 6 July 2020 in a virtual public meeting, with presentations from the Commissioners, followed by responses by the Mayor and Vice-Mayor on behalf of the Council. Newham Council’s cabinet members will formally consider the commission’s report and recommendations at a later meeting.

Clearly, councils need to adapt the ‘Newham Model’ to fit their local circumstances, while simultaneously learning from democratic innovators in the UK and internationally.  Moreover, research institutions such as INLOGOV have an important role in sharing learning on new local governance models to help local government to ‘build back better’ from the COVID-19 crisis.

 

Nick Pearce is Director of The Institute for Policy Research (IPR) and Professor of Public Policy at the University of Bath. He was formerly director of the Institute for Public Policy Research (IPPR), as well as Head of the No 10 Downing St. Policy Unit between 2008 and 2010.

Elke Loeffler is a Senior Lecturer at Strathclyde University, and INLOGOV Associate. She is author of ‘Co-Production of Public Services and Outcomes’ and co-editor of ‘Palgrave Handbook of Co-Production of Public Services and Outcomes’, both of which will be published in autumn 2020.

The emergence of city regions

Jon Bloomfield

The structures of sub-national government in the UK are about to undergo major change not just in Scotland but across the major conurbations. As George Osborne has said “In a modern, knowledge-based economy city size matters like never before.”

This is not an isolated UK view. I have recently undertaken a study on metropolitan governance for the Council of Europe. The trend is clear across the developed world. Increasingly, the new models of economic growth look for clusters of activity and interactive networks, which combined with longer distance commuting is helping to reconfigure economic activity towards larger conglomerations.

Across Europe, there are more than one hundred and thirty conurbations that fall into this category. In total, including Turkey, more than 200 million people live in these metropolitan regions accounting for more than one third of the overall population.

Economic development, transportation and spatial planning are the defining issues of metropolitan governance. These are the core themes that feature most commonly in the activities of metropolitan regions, especially given their need to compete on an increasingly pan-European and global scale. In order to manage these developments new types of supra-urban government organisation have begun to emerge, so that political boundaries are able to reflect a changing economic and social geography.

Metropolitan governance has emerged in an ad hoc fashion across Europe. However, in essence we can discern three basic models:

  • Type 1, the strong model, where elected metropolitan authorities are entrusted with specific competences to address a range of issues, usually with their own executive organisations and significant budgets. This is common in the larger French cities – Lyon, Lille, Toulouse; major Turkish cities; Madrid and Barcelona; and in the UK London.
  • Type 2, the combined model, which creates joint metropolitan bodies (combined authorities) with formalised agreements entrusted with broader local and strategic functions and powers, run by representative drawn from various levels of government (indirectly elected or appointed) usually avoiding new government layers. Greater Manchester is the best UK example.
  • Type 3, the soft model, which offers cooperation and collaboration on a voluntary basis when common support is required. The report cites examples in Sweden, Germany, Austria and some emerging trends in East European cities.

In addition, given that commuting lies at the heart of the emergence of metropolitan regions, many conurbations do not have any overarching metropolitan governance structures but rather have a stand-alone, sectoral transport authority.

The report indicates that over time as the sphere of metropolitan governance becomes established, the demand for these areas to be able to raise their own revenues will grow. It also suggests that as good practice central government should set both the economic criteria and framework for accountability for a city region but should neither determine its geographical shape nor its political structures. This needs to be an organic development decided and agreed by the local partners. This is a major bone of contention in the UK, where central government wants to impose elected mayors on areas regardless of local wishes. At the same time the report is very clear that there needs to be a clear division of tasks and responsibilities between all the public authorities within the metropolitan region, so that they and citizens understand clearly who is responsible for what task

Jon Bloomfield is an expert on EU funding, European and EU issues of regional and local government who carries out research in the EU and contributes to post-graduate programme.