The Minister of State, Cabinet Office (Lord True) (Con)
My Lords, first, I thank my noble friend Lord Norton of Louth for bringing us here again, as the noble Baroness opposite said, on a Thursday afternoon. I said just before the Summer Recess that I did not know what I had done to the Chief Whip for him to put me on to answer the last debate before the recess—and here I am again, so perhaps I should see that as a bit of useful training.
Of course, it has been an outstanding debate. I would think that a debate such as this ought to be read and considered in all the forums that we have mentioned and discussed in this debate. There is so much experience from which people can learn and so much wisdom that has been imparted, and I have felt it a privilege to listen to it.
Despite a couple of elements of mild criticism, no doubt justified in the eyes of the bestower of the criticism, I think all noble Lords who have had the honour of participating in a Government, an Administration or Parliament know that we strive for the best. I do not know anybody who does not strive to do their best in public service and in the performance of their duties. But I suppose it is a condition of man and a condition of this profession of politics that—as I think Enoch Powell expressed it in that famous dictum in his biography of Joseph Chamberlain—all careers in politics, unless interrupted by untimely death, end in failure. So, I suppose we do sometimes fail and fall short of the objectives that we set ourselves. That is a reason to seek to do better. I certainly hope to convince your Lordships that this Government are trying to do better and encourage better performance in the way that your Lordships would like.
I confess to being a bit of a beached whale. I suppose I am one of those old-fashioned generalists: I was educated in classics and history and have spent a life studying history. I learned my trade in the hard school of local government. I strongly agree with the noble Lord, Lord Wallace of Saltaire, that it would be a fine thing to be desired if more of those in the political world cut their teeth in local government because it is public service at the coalface and at its most intimate.
It was a fascinating debate and there was a general trend of agreement. The noble Baroness, Lady Fox, as ever, made a stringent and an important red team style comment against falling into the complacent view that everything and every training course is either the whole answer or necessarily always the answer. That was an important advisory. My noble friend Lord Farmer, in his short speech about leadership also offered an important advisory.
I was struck by my noble friend Lord Herbert’s antipathy towards the red box. I wondered if one had fallen on one of his toes at some stage in his career. I have in fact never had a red box. It did not seem particularly necessary and one of my colleagues was rather more keen to have it than I was—wild horses will not draw that name from me. Frankly, methods of working have moved on, but paper-based work is none the less sometimes necessary.
Without disparaging training—which I do not, I am going to support it—it is worth noting that the best trained Prime Minister of the 20th century was probably Anthony Eden and the least trained was Tony Blair. I have little doubt which of those was the more effective in office.
I agreed with so much of what my noble friend Lord Norton and others have said. The remarkable speech made by my noble and learned friend Lord Mackay of Clashfern, for example, followed in the huge light of his experience. He gave us a fascinating and compelling example, along with the particulars of the importance of judicial training given to us by the noble and learned Lord, Lord Judge.
I was sad at the suggestion that Ministers do not respect the House, and that is not to be chippy or an individual worrying about the criticism of the general. I think that Ministers, if they do not respect this House or the other House, are exceedingly ill advised. Any Minister, whose first duty is to be accountable to Parliament, who comes to this place and the other place without a sense of respect and trepidation—perhaps even a scintilla of fear—is either arrogant or foolish. Parliament is the root of government and the strength of government. I agree with the comments that the noble Baroness, Lady Taylor, made in that regard.
It is still the case that Ministers have inductions and meetings with the Permanent Secretary. I can say to those who asked that it is not just paper-based. The training now provided to new Ministers, and available to Ministers in situ, is also based on verbal and interactive training, not simply a folder of paper, though I have no doubt that somewhere in Whitehall—probably in my office—a file is being prepared. Covid-friendly files are all over Whitehall at the moment, ready to be perused.
We know that both Ministers and the Civil Service have had their skills greatly tested in the last 18 months. There have been exceptional circumstances—the noble Baroness, Lady Taylor, referred to issues relating to Brexit—in Parliament in particular, from which I do not think we should draw generalities. The same goes for the exceptional powers taken in relation to the pandemic, which have been supported across your Lordships’ House. I agree, however, with the point that we must have a care that these particulars do not become generalities. Ministers and civil servants have been required to adapt quickly, work through immense ambiguities and solve unpredictable and unprecedented problems.
We all know, and this has been the underlying message of your Lordships’ debate, that, in order to achieve our ambition for our country to emerge from this pandemic stronger and more resilient, we must have the best people leading and working in government. That was set out, as many noble Lords have referred to, including by my noble friend Lord Norton in his opening and the noble Lord, Lord Bilimoria, in the recent Declaration on Government Reform, and I welcome what noble Lords have said about that.
To deliver the Government’s priorities, public servants must be technically competent, bold and imaginative, and they must have both specialist and generalist knowledge, skills and networks. We therefore believe, and this is the sense of your Lordships’ debate today, that it is the time to invest further in the leadership capabilities and experience of Ministers and civil servants, ensuring that all are offered high-quality and relevant training and development. Perhaps the pandemic is an inflection point to push that further.
We are aware of weaknesses in the way in which we recruit, train, assess, retain—an important point made by many noble Lords—and develop our Civil Service and public sector leaders. The pandemic and, yes, the opportunities opened up by Brexit have been moments of recognition that while excellent training exists, there are gaps and missed opportunities. I have listened carefully to the advice and comments from noble Lords today.
We are placing particular emphasis on improving digital and data literacy and providing training on the vital skills of management: managing projects—as referred to by my noble friend Lord Maude—people and budgets. The last are a hugely important factor, as my noble friend Lord Young of Cookham pointed out. We recognise that we must move fast to fix things. UK Ministers and civil servants should be learning unrivalled management and leadership skills. We must not fall behind.
We also need leadership training to encompass broader themes than just leadership itself, preparing our leaders to deal with the biggest challenges through a precise, tangible, case-method approach. The recent Declaration on Government Reform emphasised the need to focus on knowing things, practising things and learning by doing, particularly in digital technologies and data use—things that all our leaders should understand at a basic level—making the most of the expertise that we have across government to achieve good outcomes for citizens.
The Declaration on Government Reform was agreed in June at the first joint meeting of Cabinet Ministers and Permanent Secretaries. It committed to immediate action on three fronts: people, performance and partnership. The declaration sets out 30 actions that will be taken in the first year to begin the process of modernisation and reform. Work is under way to implement those actions, with flagship projects already being delivered. The declaration has been warmly received and, from think tanks to trade unions, welcomed as a first step in the Government’s reform agenda.
We have been greatly assisted by the advice of others. In a compelling speech from my noble friend Lord Maude—it is 30 years ago that he and I worked together in some rather faltering steps in public service reform—we heard advice to the Government on improving effectiveness of functions, which was warmly welcomed by the former Chancellor of the Duchy of Lancaster. His recommendations are centred on a strong functional model, with those three essential elements of leadership, capability and mandate.
Strong progress is being made on this functional reform activity. An example of progress so far includes the Infrastructure and Projects Authority’s publication in January of its mandate, which clearly sets out its responsibilities and those of departmental accounting officers for major government projects and programmes. This is critical to making sure that they are set up for success from the outset, supporting the Government to meet their ambitions.
Multiple functions are actively exploring how this should be achieved. Investment in professional expertise, recognising its importance, will be an integral part of this work. For example, the training and accreditation of contract managers across government is being led by the Government Commercial Function, which is critical to driving excellent value for money for taxpayers. The learnings from this exercise and the experience being acquired and invested are of great importance, and I pay tribute to my noble friend for the work that he has done and is doing in this area. As I said, I agree with my noble friend Lord Young of Cookham on the importance of the knowledge of government finance. Having referred to local government, I must say that you might think that central government finance is important, but you should try local government finance.
I am also grateful for the work done by my noble friend Lord Herbert of South Downs, who also made a fascinating speech. We welcome the Commission for Smart Government’s contribution to the intellectual effort to reform government. This is indicative of the fact that the Government want to listen and learn from all those, on all sides, who have wisdom to bring to this discussion. The previous Chancellor of the Duchy of Lancaster was present at the launch of the report, and he made it clear that the case that the commission makes overall is powerful. It strongly aligns with the Declaration on Government Reform in its focus on digital and data capability and accountability as priority areas for reform, emphasising the need for priority and leadership as vital to the success of government reform. We cannot just do this through changes to organisational structure; civil servants must engage teams and departments with this mission.
On the report’s specific recommendations, the call to establish a school of public service with a campus base is effectively covered by article 6 of the declaration, and we agree that the capability of civil servants is a critical issue. More specifically, the report calls attention to the importance of training senior civil servants in technology to improve efficiency and service delivery for the public. We are making progress with this, with the creation and rollout of an SCS data master class and, shortly, the creation of ministerial digital and data master classes. I look forward to this to ensure that all SCSs and Ministers have a core foundational understanding and can use digital and data expertise effectively.
We also agree with report’s recommendations that “digital transformation” of public services should be at the heart of government reform. This does not necessarily mean that there should be no red boxes, but we take the point. We have established the Central Digital and Data Office to ensure that digital services can be deployed across departmental boundaries.
The Government Skills and Curriculum Unit was established last September to address training issues directly. Its mission is to ensure that there are suitably qualified and experienced civil servants from entry to senior leadership and to create that properly resourced campus for training in government. The intent is also to equip Ministers, on whom many have focused, with the essential knowledge and skills that allow them to be effective in the fiendishly complicated context of modern government.
We have heard a lot of the theoretical construct, from which I do not demur, but it is all too difficult. It may be no excuse when the bullets fly, but in action it is not always possible to adhere to the theoretical constructs. A toolkit of critical insights to smooth the way for Ministers is important in those circumstances. The goal here is not to define or teach a single model of ministerial leadership, which would be counter- productive and unhelpful. I heard what the noble Baroness, Lady Fox, said. The induction and skills programme assembled for Ministers by my former colleague Minister Lopez is optional, but it does emphasise the first principles of working in government and will be available to new Ministers.
In the Declaration on Government Reform, we committed to investing in training for civil servants and Ministers. Consistent and pragmatic ministerial induction and training will help new Ministers navigate the Civil Service and all aspects of their new role, so that they can be as effective as possible as quickly as possible.
The ministerial induction programme focuses on three areas. The first, in response to overwhelming feedback over many years, is a better induction. We have heard from noble Lords with experience in government, including the noble Baroness opposite in her fascinating and entertaining speech, that Ministers need the most support in their initial days and weeks in understanding the machinery of government and Parliament and knowing how to be effective leaders in a department.
It will also offer clear and more accessible bite-size training relevant to their role and to their requests for more knowledge and skills to enhance their impact. There are also bespoke programmes, in partnership with others, to enhance Ministers’ networks and help them to be resilient leaders.
This induction programme will provide practical support in weeks 1 to 6, from how to work and manage a private office to understanding the Civil Service and, yes, the responsibilities of Ministers to Parliament: how legislation should be taken through and how Select Committees can inform and enhance and must always be respected. A series of master classes complements the induction and draws on the experience of other Ministers, in addition to experts sharing their knowledge on topics including data, digital finance, procurement processes and science. Like all good training and development, we will evaluate the impact of this offer.
As my noble friend Lord Maude said, the Prime Minister and Chancellor of the Exchequer have set out their intention to initiate a significant long-term improvement—this is so vital; it has been true under successive Governments—in government delivery of major government projects. To support this, the Infrastructure and Projects Authority—my noble friend referred to this, or perhaps it was the noble Lord, Lord Bilimoria—and the Oxford Saïd Business School have developed a short, modular training programme on major project delivery for Ministers, tailored to their role as client sponsors of strategic projects. To date, four cohorts of the programme have run, with 41 Ministers attending, three of whom are Cabinet Ministers. A fifth cohort is proposed for the autumn. The programme has been well received and strongly endorsed by the Public Administration and Constitutional Affairs Committee.
There is a lot more to say and a lot more listening. I will study Hansard enormously carefully. We know we continue to have a challenging road ahead, both to help the country build back better and to reform government. We owe it to citizens to be the very best public servants—and, as Ministers and civil servants, the very best partners in public service—that we can be. We know that the demands on us as Ministers and civil servants will continue. Through the implementation of training in core leadership skills for Ministers and civil servants and the establishment of a dedicated government campus, we can work together to provide the best possible service for our country. We can build back not only better but in the best way possible, Ministers and civil servants together, as our country deserves.