Central – Local Government Relations A personal perspective

1. Central – Local Government RelationsA personal perspective Pete Murphy Nottingham Business School BA MA FETC MRTPI IMSPA FSA

2. Personal Background and Experience • 1977 - Community Development – London overspill estates – AP1 street names! • 1977 – 1987 Planning and Development posts – including recreation and sports planning rural, urban and suburban authorities in Bedfordshire, Derbyshire Nottinghamshire and Leicestershire. • 1979 – Advisor to Central Government on various reviews, tribunals, inquiries etc • 1987 - Acting Director of Development (Broxtowe BC) and then 1989 – District Planning, Recreation and Economic Development Officer (HBBC) • 1990 – Advisor to DoE/Sports Council/POS/RTPI • 1996 – Chief Executive Local Authority (Melton BC) • 1997 - Member 1998 Chair FE college (and a Leisure Trust and a private company ) , Regional Sports Board • 2000 – Senior Civil Service – DETR/DTLR/ODPM/DCLG and since 2002 GOEM • 2006 – Non Executive Director on the Board of NHS Nottingham City • 2009 – Nottingham Business School – teaching , research, consultancy • 2010 - Trustee Childrens Charity

3. Central Government Roles and Responsibilities 2000 - 2009 • 1999 DETR - Local Government Modernisation Team – 9 CEOs or Senior Officers from Local Government “Leaders and Change Agents” to facilitate delivery of Best Value, Capacity Building, E-Government, Standards Board, Partnerships working • 2000 2002 DTLR Local Government Performance Units – Design develop and commission CPA and the Local Government Intervention programme - • Pilot Intervention in Local Government for DTLR/OGDs and Pilot the OGC Gateway process for HMT across central government departments and agencies (originally Construction and IT projects). • 2002- 2009 Policy Programme Boards – performance management regimes in Local Government, Health, Criminal Justice RDAs National Parks Fire and Rescue, Town and Country Planning, Leisure – LAAs, MAAs – Local and Regional Health Policy. • 2003 – 2009 Intervention Programme - Lead Official and Chair of Government Monitoring Board • 2002 – 2009 HMT – High Risk and Prime Ministerial Gateway Reviews e.g Safety and Security of the Olympics and the Logistics of building the main Olympic site • 2002 – 2009 Government Office East Midlands – Local Government Director

4. Historical Background Public Policy • 1945 to late 1970’s/early 1980’s Local Government - Central Government relationships and the doctrine of “political balance” with local authorities delivering central government policy and mitigating or customising its impact on local communities. • From early 1980’s to late 1990’s competition and Compulsory Competitive Tendering (CCT) introduced more business discipline into local authority operations and “market” solutions dominated public sector delivery initiatives • From late 1990’s to the 2010 election - the emphasis on efficient, effective and economic delivery - the dominance of “outcomes” and the development of co-production of policy and delivery. • The 2010 Coalition Government – localism not regionalism, government outcomes frameworks and reductions of inputs; greater marketization and the role of civil society.

5. Politicians policy and governing –types and skill sets • 3 types of Shadow Ministers and new Government Ministers (well briefed, listeners or non-listeners leading to “hitting the ground running”, “hitting the ground consulting” “I know what I want/you leave my prejudices alone)? Evidence pre-election advice. • The 3 skill sets of central government ministers – politicians, governor/deliverers and clever types - Secretaries of State and ministerial teams – loners of team players • Decisions and non-decisions - the importance of the Parliamentary Programme – the consequences of too many or too few pieces of primary legislation in the Queens speeches – Good and bad legislation and the conveyor belt!

6. The pre-1997 “paradigm,” the conventional wisdoms or assumptions of the Thatcher – Major era. • An emphasis on the Individual as “consumer” rather than as citizen – “there is no society” • Individual accountability - organisation and agencies expected to take specific responsibility e.g. police being held to account for crime • Political and Governance arrangements reflecting increasingly centralised control and power from Whitehall (LGA – Labour controlled) • Explicit and increasingly “contractual” basis for inter-authority and inter-government relationships. • Increasingly “programme based” delivery of policy initiatives. • Competition as a driver of improvement and outsourcing (privatisation) of delivery means and mechanisms

7. Some things that changed in Central Government 1997-2010 • Time Horizons: short ,medium and long! from “red box syndrome” to 3 generations of legislation at any one time • The PSA system; 3 year budgeting; independent evaluation and evidenced based policy making • Integrating Policy Development and Public Sector Delivery • Joined up government across Whitehall embracing new communications technology • The role of Civil Servants – their education and training, time in post, career strategies, language and relations to Ministers and other politicians; the silly season in central government • Mechanics of government – the structure of Cabinet Committees and sub-committees – Regions and Regional Offices – the day after the appointment of new ministerial positions

8. Some things that changed in Central Government itself (cont) • SPADS, NEDs and central policy units (PMDU, PSR No 10 Strategy Unit – bringing in expertise • Independent Reviews and Inquiries – Bichard – Soham • Intermediary agencies, Inspections and Inspectorates – the infrastructure of co-production and delivery • Learning from Local Government Best Value Reviews, PIs, Governance, Programme and Project Delivery Standards in Public Life • From piloting to Pathfinding and dealing with risks – e,g the LAAs • Devolved Administrations and dealing with the EU and regionalism Climate Change, Emergencies Economic Development Infrastructure

9. Learning from Local Government Public Service Reform and LG Modernisation Initiatives • Power of Well Being • LSP’s and Community Leadership • Community Strategies • New Political Structures • Performance Management Best Value, CPA, and CAA • Building Capacity, infrastructure and E- Government • New Ethical Framework • Finance and Tax • Legal Parameters • New Vision drawn from Community • Objectives & Priorities • Quicker Decision Making • Efficient/Effective/Economic Service Delivery • Innovatory delivery • Probity & Openness • Sustainable funding regime

10. 1997 - 2010 The Modernisation Agenda inCentral and Local Government • Both the collective and Public Interest was recognised as adding value with the latter no longer assumed to be synonymous with private interest • Devolved Control and Subsidiary – the devolution agenda and adoption of the PSA system and 3 year Comprehensive Spending Reviews • A new collaborative relationship developed between central and local government – with co-production of policy and joint responsibility for delivery • Understanding Inputs outputs and outcomes with a move to explicit outcome based “joined-up” action • A mixed supply side for delivery with fit for purpose delivery mechanisms replacing ideological preferences in solutions.

11. The last government saw itself as modernising the architecture, and oiling the machinery of government • Understanding change and the need for co-production of policy development and delivery effectiveness – the “what” as well as the “how” being considered as part of the policy process • Integrating Central Government and “Whitehall” – the “joining up” agenda and the effectiveness of a single consistent narrative, speaking with one voice and “on-message”. • A new and better relationship, mutual understanding, trust and respect between Central and Local Government • Developing the Regional dimension and the regional agenda – underdeveloped because of unresolved relationship with EU. • The introduction of Public Service Agreements, Cabinet Committees and Structural change in delivery organisations

12. A new purpose and role for local authorities a new constitutional settlement? • Providing “Citizen Centred” and/or personalised services and activities - appreciating mutual democratic legitimacy but joint recognition of the need to re-engage the public (and in particular hard-to-reach groups) in a strong and active democratic process. • Promoting inclusive, cohesive, communities with service providers responsive to communities needs, collaborating in partnerships to deliver mutually agreed objectives • The optimal efficient, effective and economic delivery of services that are provided by “fit for purpose” delivery vehicles • Councils and politicians that provide “community leadership” rather than organisational leadership while managing open and transparent organisations with public accountability

13. Government’s Overall Objective for Local Government Transformation of Local Government to • An outwardly looking; customer focussed; efficient and effective network of organisations, working in an openly transparent and democratic manner on behalf of communities to meet community defined needs and aspirations From (presumably) • An inward looking; process or service provider driven, inefficient individual organisations working on behalf of their own organisational self preservation (officers and members).

14. Philosophical Underpinnings of a new paradigm Rediscovery of “Society” and the appreciation that public services can and should create “Public Value” Changing the nature of the Central/Local Government Relationship - from “political balance” to “spending the publics money” efficiently, effectively and economically. Changing assumptions of Local Authorities and (some) other Public Agencies as being generally competent but with citizen rather than provider supremacy Changing the objective and ambition of central government - to “continuous improvement” in all services in all public authorities and agencies.

15. Philosophical Underpinnings (cont) Appreciating the need to address both single and multi-agency problems and issues in local communities. Appreciate that Central Government should be part of the solution - at times it can be seen (and has been) part of the problem. Developing effective interventions, - change the nature and type of intervention or engagement with under-performing agencies Underpinned by a “fit for purpose” and sustainable tax and financial support regime. A move from competition to collaboration as the basis of public service delivery – designing collaboration into the delivery system

16. The “Tipping Points” or step changes in the improving Central/Local Relationship • The establishment of Central/Local Government Partnership in 1998 • The results of the first round of LPSA negotiations (2002) and “Invest to Save” Rounds 1, 2 & 3 • The review of the “Gershon” Efficiency savings programme (CSR 2004) across all the major public sectors • The Capability Reviews of Central Government Departments 2005/2006 • The Prime Ministers Delivery Unit report on the first Local Area Agreements (Feb/March 2007) – from margins to mainstream

17. Departmental Capability ReviewsAssessment Scores

18. What would have happened under labour • Performance Indicators and measurement - objective, absolute and “standards” based • Reduced inspection regimes - based on improvement (OPSR), but integrated: proportionate and area-based • Fit for purpose delivery organisations - Local Government Re-organisation of two-tiers - Mayors and constitutions. • Duties and Responsibilities - multiple and several responsibilities and individual statutory officers • Local Strategic Partnerships, Local Area Agreements Multi Area Agreements and Public Service Boards - tackling the wicked issues

19. 2010 – 2011 The Economic Recession the Coalition Government and the CSR 2010 • Reduce the role of Whitehall and NDPBs (Quango cull) -From Policy and Delivery to Policy – still what but not now how! • Dismantling regionalism – but huge collateral damage to the improvement infrastructure • From Regionalism to Localism - Resources go directly to individuals or delivery bodies with different roles for PCT and Public Health and Local Authorities (facilitators, enablers, co-ordinators – not deliverers

20. What comes after CSR 2010 3 groups of Public services • Police, Fire, Education, Health – indications of strong guidance from the centre – possible new national frameworks or regimes • Services with some statutory elements – Courts, Probation, Prisons, Immigration, Welfare Benefits, Social Care, Regulatory Services (building control, trading standards, environmental health) – a mixed economy with some control and guidance from centre. • Discretionary Services with little statutory elements– Culture and Leisure, Waste, Planning, Housing, Transport (many more in devolved administrative areas) – to be free from central government control so likely to develop local output targets or outcomes frameworks

21. Where was Leisure and Cultural ServicesTheir “profile” and influence within the performance regimes ? CCT BV CPA1 CPA2 CAA 2010