central – local government relations a personal perspective pete murphy nottingham business school...
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Central – Local Government Relations
A personal perspective
Pete Murphy
Nottingham Business School
BA MA FETC MRTPI IMSPA FSA
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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
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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
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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.
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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!
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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
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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
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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
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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
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1997 - 2010 The Modernisation Agenda in
Central 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.
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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
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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
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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).
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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.
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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
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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
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Departmental Capability Reviews
Assessment Scores
Series 1 – 2006/07
00.51
1.5
22.53
Home Offi
ce DoHHM
RC
DEFRA
DCMS
DCLG COCPS
FCO DTI
HMT
DfTM
oDDCA
DWP
DFES
DFID
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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
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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
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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
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Where was Leisure and Cultural Services
Their “profile” and influence within the performance regimes
Very High
High
Average
Low
Very Low
CCT BV CPA1 CPA2 CAA 2010
?