Cities and Local Government Devolution Bill [Lords]

Lord Beamish Excerpts

Wednesday 14th October 2015 Commons Chamber

[Tom Brake (Carshalton and Wallington) (LD)]

I shall support the Bill on Second Reading. It follows closely some of what the Liberal Democrats were proposing through devolution on demand, which was also advocated by the Chair of the Select Committee, the hon. Member for Sheffield South East (Mr Betts), although we would like to go further by offering a menu of powers that local authorities could take, perhaps without needing to go through the bargaining and bartering process that has taken place with the city deals. We welcome the Bill, but we would like to go further. We have consistently supported devolutionary measures over many years, from the Scottish Parliament through to the changes in Cornwall.

I am enthusiastic about the Bill, but I would not say that I was violently enthusiastic, as one Conservative Member did earlier. My enthusiasm is tempered by what is happening to local authorities’ budgets, which are under huge pressure. I am sure that this is true for all Members in the Chamber this afternoon, but my local authority, having made as many savings as possible though initiatives such as combining back-office functions with other local authorities, is now having to make some serious and more challenging decisions about libraries and youth services.

As I said, we will support the Bill on Second Reading. I am surprised at the position taken by the official Opposition, and I am afraid I agreed with those senior Labour Back Benchers who expressed surprise and concern that it might be more about opposition for opposition’s sake than about concrete concerns. This is genuine devolution on offer, and local authorities should be willing to grasp it.

I wish to comment briefly on some of the amendments made to the Bill in the other place. Greater accountability was built in, which is essential, particularly if there are to be many more elected mayors. I hope that the sort of scrutiny one sees in London, with the London Mayor and London Assembly, will happen for elected mayors in combined authorities. I do not want to be suspicious of what the Secretary of State said earlier, but he seemed to be saying that elected mayors would not be imposed, but in subsequent questions, the look on his face suggested that perhaps there would be some imposition. From the discussions behind closed doors, which others have referred to, it seems that there will be a requirement for elected mayors to be adopted. I agree there is a fundamental question about what sort of governance structure an authority puts in place if it does not have an elected mayor but, as I said earlier, combined authorities should be able to decide that question.

[Mr Kevan Jones (North Durham) (Lab)]

That has not been the Government’s approach in the north-east, where combined authorities have been told, “You can have an elected mayor. Take it or leave it.”

[Tom Brake]

Indeed, and that is not something I would support. It should be for the combined authorities to decide.

I do not think the Secretary of State mentioned votes for 16 and 17-year-olds, which are provided for in the Bill and are my reason for supporting it on Second Reading. Whether we support it in future stages, however, will depend on what he intends to do about amendments around the imposition of elected mayors, votes at 16 and 17 and allowing Bristol, for instance, to vote in a referendum to get rid of its elected mayor. If people are not happy with a governance arrangement, they should have the power to change it.

I want to stress our concerns about the concentration of power in elected mayors. The Secretary of State will know that under the first-past-the-post system, one party often ends up controlling an authority, and potentially all the combined authorities, even though the percentage of votes cast for it should not give it a majority. One of the central questions is how to ensure that the powers of the mayor are checked by the appropriate mechanisms.

I am pleased with what Lord Warner, Lord Patel and Baroness Walmsley did at the other end to make it clear that NHS standards would apply, because we needed some certainty about that.

In conclusion, however, whether our support continues into Committee will depend on what the Secretary of State intends to do about some of the positive changes made in the House of Lords around elected mayors, votes at 16 and ensuring greater accountability for the proposed new governance arrangements. The Bill is a positive development, but there are still some areas to watch.

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[Mr Kevan Jones]

I am pleased to hear what the hon. Gentleman is announcing about Cornwall, but will he tell the House whether the Government insisted that there should be a mayor?

[Scott Mann]

That was not the case, no. The powers were devolved to Cornwall Council, to the local enterprise partnership and to the business community.

I welcome the prospect of every local authority in the UK having the same powers that Cornwall now has. Local MPs, local councils and local business leaders will of course know what is best for their areas. It is my hope that this deal will empower local communities and make local authorities more accountable. There have long been calls in Cornwall to pull up the hypothetical drawbridge over the Tamar and to cut ourselves off from Plymouth and the rest of Britain. We can rightly be proud of our heritage, traditions and culture, but we do ourselves and our young people a disservice if we continue to navel-gaze. Our young people deserve better than that.

The nuts and bolts of the Cornish deal revolve around three main areas: buses, the European spending programme and the NHS, and I shall now address the issues involved. Cornwall’s transport network has been dysfunctional for years. The train services rarely meet up with the bus timetabling, and the bus network is very fragmented. My area of North Cornwall has no train services, and my villages have a less than satisfactory bus service. Under the stewardship of Nigel Blackler, we will be implementing a smart ticketing service and a more integrated network. I am confident that we will deliver that very well.

In the past, Cornwall has been seen as an economically deprived area. We have received two rounds of EU funding through convergence and objective 1. The last round of the European spending programme was set to deliver 10,000 jobs, but it delivered only 3,500. The constraints that the European Union placed on the spending, together with a lack of any coherent strategy, led to a woeful return on the investment. Economic development has never been well delivered by bureaucrats, by local government or by the European Union. I believe that by placing the funding programme with the local enterprise partnership, we will have business leaders searching for value for money, working with colleges on vocational training and ensuring that every penny is diverted to business from business.

Cornwall’s health services and social care providers are spread out and not working together. Many cottage hospitals in North Cornwall feel that they are under-utilised and could be providing more. Although the NHS is geared up around the primary care provided through the Treliske and Derriford hospitals, our GPs and services in the community are not being utilised to their full potential. I am in no doubt that handing this matter over to the Kernow commissioning group will help in the delivery of the service. However, as Superman’s father famously said on Krypton:

“With great power comes great responsibility.”

The Cornwall deal asks leaders to deliver. It seeks inspiration, job creation and innovation. I say to the leaders of Cornwall Council, the local enterprise partnership and the clinical commissioning group, “Now is your time. Show us your skill. Show us you can deliver for Cornwall and I give you my word that devolution will not stop here from this one nation Conservative Government.”

[Marie Rimmer (St Helens South and Whiston) (Lab)]

May I commend the Secretary of State for his genuine commitment to, and support of, local government? Indeed, given what we have suffered from in the past, it is a pleasure to have such a Secretary of State.

Let me put it on the record that local government is the most efficient part of government. It has suffered cuts of more than 40% during this austerity period, which is more than any other part of government. I speak as a former leader of St Helens council, which is resilient and has a very strong identity. It is, and always has been, innovative. Indeed, Michael Heseltine came to St Helens back in the 1980s to witness and observe the first public-private sector partnership, Ravenhead Renaissance, which I delivered as leader of the council. At the time, we were losing coal, glass and chemicals. We lost 30,000 jobs in 10 years. Many of those jobs have since been replaced, but sadly not in manufacturing. That is why I am so keen on the progress of advanced manufacturing.

My concern, and indeed the concern of the public that I represent, is about the elected mayoral model. St Helens, like Bury North, consulted all its residents back in 2004, and got a resounding no to an elected mayor. It went for a strong leader model. Some three or four years ago, we took a resolution through council, and unanimously decided—Conservatives, Liberal Democrats and Labour—that we were opposed to a city region elected mayor. Indeed, that is what would cause a problem in St Helens and perhaps in Knowsley. I know that Knowsley had a resolution against a mayoral model and it has since taken it back.

This is an enabling Bill. It is what is not in the Bill that is of concern rather than what is. Practically none of the specific responsibilities of this Bill is actually mentioned in it. What is concerning is the bilateral discussions that have gone on between the Chancellor and local authority leaders. They have not been transparent or open. Councillors—I remain a councillor and am aware of what is going on—are not aware of what is going on behind those doors, so heaven help the public. We talk about the devolution of power to communities and yet we deny those communities the right to decide whether they want a mayoral model. It just does not bode well. I was quite genuine when I commended the Secretary of State at the beginning of my contribution, so I ask him—I know that he listens to what is being said—to consider carefully whether having a mayoral model should be a prerequisite for devolution. It is simply not necessary. Indeed, I understand that Cornwall is having devolution without it.

The concern in Merseyside and in other areas—I hear it coming from councils in other areas—is that devolution is about the devolution of regulatory powers from Government to local government, city regions or combined authorities. There is great concern about, and talk of, statutory duties of local authorities being transferred to a mayor. Not everything that the city regions ask for will be granted at first, but some devolution will be granted on condition that they follow the mayoral model. The concern is that local authorities’ statutory duties will be transferred up to a mayor who will be unaccountable, although there will be oversight by the elected leaders.

[Mr Kevan Jones]

I am listening carefully to my hon. Friend. Does she agree that the Government are being completely inconsistent, because Cornwall, which has a Tory authority, can have devolution without an elected mayor, but her authority and many others in the north-east have been told that they cannot have devolution unless they first accept the mayoral model?

[Marie Rimmer]

Yes. If it is good enough for Bristol, it is good enough for Merseyside, and for any anywhere else. That is a real concern of ours.

We have evidence of our innovation. Local authorities, including some in Merseyside, share the delivery of services. For example, St Helens shares many services with what was formerly known as Mid Mersey, and with Wigan, Warrington and Halton, and they include adoption and fostering services and even business rates, and we provide planning for a neighbouring authority.

The confusion now is that some local authorities think that the panacea of devolution will solve all their financial problems. Indeed, one leader told me how much the local clinical commissioning group gets and said, “We’ll be able to get our hands on that.” Well, in St Helens we have been pooling health and social care budgets for some years. Indeed, four winters ago we saved 36 beds in Whiston hospital by working together. The council used one of its former homes to take elderly patients. They were not enjoying being in hospital, and they got much better care in the former home. That was delivered by the council and paid for by health and social services, so we are very innovative.

The devolution of power also needs resources. We cannot continue to be hammered in the way we have been in recent years. None of the local authorities on Merseyside—and I know, because I am a Merseysider—has done any better than St Helens. In fact, Knowsley and Liverpool have probably done worse, because of the deprivation. But in St Helens we have already lost more from our Government grant funding than what we collect in council tax—

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[Mr Kevan Jones (North Durham) (Lab)]

Devolution, localism or whatever we call it is a bit like apple pie and motherhood—it is something that everyone admires and thinks should be sought.

The hon. Member for Bromley and Chislehurst (Robert Neill) suggested that the Secretary of State is a Chamberlain-like reformer and likened the Bill to the great reforms to local government in the 19th century. That is not what is on offer here. What we have here is a clear political agenda from the Chancellor of the Exchequer for a small-state, Conservative Britain. The Bill is part of that process.

The hon. Member for Dudley South (Mike Wood) just said that the process is being driven by local areas. I have to disabuse him of that idea because it is not. The Government will still control 75% of the funding for local authorities and the Government are still dictating the local government settlement. The hon. Member for North Cornwall (Scott Mann) praised Cornwall. Well done to Cornwall for getting its devolution settlement, but there is no insistence on a mayor, as there is in the north-east. The north-east is being told, “Yes, you can have devolution, but you’ve got to have an elected mayor first.”

The hon. Member for Hazel Grove (William Wragg) made a very good speech, in which he asked where the people are in decisions on this process. If in 2004 we had proposed elected regional assemblies and imposed them without allowing local people to decide, there would have been a hue and cry from Conservative Members. What amazes me is that many Conservative Members from the north-east who fought strongly against regional assemblies are now as quiet as mice when accepting the Secretary of State’s proposals. When the Secretary of State meets council leaders in the north-east and they ask him why they must have an elected mayor, the usual response is, “Well, George wants an elected Mayor.” This is not about true devolution and making decisions at local level; this is about moving responsibility to local councils and so on without the resources to carry that through.

Let us imagine that a city is devolved to a Mayor or council in the north-east. Funding for further education will come with a 10% cut, just as public health spending did when it was devolved to local councils. It will then be down to local politicians to make difficult decisions, and what will be the position of the Chancellor and the Secretary of State? It will be, “It’s not our fault guv, it’s a local decision”—except that it will not be, because they will still hold the purse strings.

At the Tory party conference the devolution of 100% of business rates to local councils was announced as a great move forward. [Hon. Members: “Hear hear.”] Members say, “Hear hear,” but in London more than 300,000 properties have an average business rate of £54,000. In the entire north-east there are 54,000 properties with an average rateable value of £30,000. Unless there is some redistribution in that mechanism, all that will do is benefit areas that are already booming and do not need the assistance that is required in areas such as the north-east. People are fooling themselves if they think that the devolution of business rates is a panacea for growth in those areas.

[Andrew Gwynne]

My hon. Friend touches on a real concern because his area, like mine, has a low council tax base. Given cuts in funding, and local authorities’ inability to raise more finance through council tax, does he share my concern that we will need something like Chinese-style growth to fill that gap with business rates?

[Mr Jones]

I will give one topical example. Redcar has just lost one of its major sources of local business rates, so how will that be replaced? Westminster City Council and other areas would be able to do it, but without resource reallocation of business rates, areas such as Redcar will not be helped. That has added to what we have seen over the past five years of this Government and the movement of resources from poorer areas to wealthier ones.

[Graham Evans (Weaver Vale) (Con)]

Does the hon. Gentleman disagree with his erstwhile colleague, the Mayor of Greater Manchester, who last week said that through business rates, Greater Manchester is now in a position to invest in local infrastructure? Is it better to have people, including the hon. Gentleman’s former colleague, who know what is best for Greater Manchester, rather than people in Whitehall?

[Mr Jones]

It might be, but let us take an example from the north-east such as Redcar. What will be the growth in such areas from business rates? There will be none, which is why we must have some redistribution.

When Lord Adonis—I am glad the Conservatives have got him now—came forward with this nonsense about 100% business rates, I criticised it and I continue to do so now. The hon. Member for Hazel Grove asked a good question: where are the people in this process? In the north-east they are being completely ignored, and the Conservative party, led by Jeremy Middleton and Graham Robb—two former Tory candidates who have put themselves forward as business people—thinks that councils are being obstructive because they are asking basic questions such as, “Why aren’t people being asked what they think?”, “How will the mayor be accountable?” and “Where does that leave local councils in the delivery of services?” People have said that it is a luddite approach to ask such questions, but the same people have been completely silent in the north-east over the past five years about the direction of this Government, who have deliberately taken money from the north-east in policing, fire, health and local authorities, and moved it to wealthier areas in the south of England.

I challenge those people to stand up for the north-east and to start criticising their own Government. The Chancellor’s plan is very well worked out, but it will not help to devolve real power to people. The real power will still be retained by the Chancellor. The only thing actually to be devolved to local politicians, which they will find very difficult, is the blame for very tough decisions taken in Whitehall. Budgets will be top-sliced and then handed down to local authority leaders and others.

I challenge the Government, if they really want to be honest about this, to give the north-east the options they have given other areas, such as Cornwall. Devolution does not have to come with an elected mayor. I challenge the Minister to give local people a say on whether they want an elected mayor—yes or no.

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[Andrew Bridgen (North West Leicestershire) (Con)]

I welcome the Bill, which takes much needed and well overdue steps to move power closer to the people it affects. The UK is undoubtedly one of the most centralised developed democracies in the world, and evidence shows that that is holding it back. As Sharon White, second permanent secretary at Her Majesty’s Treasury, recently said:

“There’s pretty good cross-country data that shows that decentralisation tends on average to be more closely associated with both stronger growth and better public services”.

The Bill aims to give the people of England and Wales more accountability, increased growth, improved public services and a richer democracy. Its principles should be embraced by this House and by local authorities as a mechanism to set them free from the shackles of Whitehall and to allow them to grow, prosper and compete.

The welcome announcement by the Chancellor of the Exchequer at the Conservative party conference that councils should keep business rates in return for the abolition of the block grant only serves to hasten the importance of enacting legislation to devolve power. That measure will be a key factor in ensuring success.

The hon. Member for North Durham (Mr Jones) has mentioned his reservations. In Leicestershire, the combined block grant for county and district councils comes to £136 million per annum, whereas the business rates are currently £226 million per annum. The proposal is, therefore, a considerable win and will result in my county council becoming one of the better, rather than one of the lowest, funded councils in the country.

[Mr Kevan Jones]

The hon. Gentleman talks about freedom from central Government, but he has to recognise that the block grant for the rest of his council’s spending will be there. Moreover, has he asked Ministers what would happen if one or two large factories in his constituency closed and the local authorities lost a huge amount of business rates? Who would make up the difference? Would central Government step in, or would local taxpayers have to pick up the tab?

[Andrew Bridgen]

I work closely with my district council and we encourage business to locate and expand in my constituency. Its planning book currently has £14 million-worth of additional business rates waiting for planning permission.

[Mr Jones]

Not everywhere is like that.

[Andrew Bridgen]

I suggest that the hon. Gentleman be more business-facing and encourage businesses to come to his constituency.

On the Bill’s potential impact, my constituency of North West Leicestershire has achieved one of the highest growth rates outside London and the south-east due not only to our geographic location, but to my hard-working constituents. The Bill is essential because the jobs being created in my constituency far outnumber the number of unemployed people, and we work with other councils to address—in a way I do not believe central Government are able to grasp or respond to—our infrastructure needs and the training and skills that businesses in my constituency require to continue to prosper.

East midlands combined authority bids have been made by the counties of Derbyshire, Leicestershire, Nottinghamshire, Lincolnshire and Northamptonshire. I understand that Lincolnshire and Northamptonshire are seeking to join up with authorities outside the east midlands region. There is a rumour that the D2N2 bid—Derby, Derbyshire, Nottingham and Nottinghamshire—will be rejected because it does not have the critical mass, which rather puts in doubt the bid made by Leicester and Leicestershire in my county.

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[James Wharton]

Yes, I do. We will have a very full and reasonable debate. Having listened to the contributions from hon. Members throughout the day today, I can see that there are many areas of agreement. I am sure that we can find consensus to drive forward an agenda that appeals to people not just in this place but from a much broader base. As I travelled the country talking to local authority representatives, including many who are not from my own political party, I found that devolution is wanted by the business community and by the communities that we represent, as it can drive forward real improvement.

I also started to note a list of those colleagues who were supportive in principle of the Bill and its aims. I stopped because the length of that list became so long that I would not be able to read it out. I thought it would be appropriate to reference some of those Members who indicated their support. My hon. Friends the Members for Carlisle (John Stevenson) and for Hertford and Stortford (Mr Prisk), and the hon. Member for Nottingham North (Mr Allen) all indicated not only that they support what we are trying to achieve but that they want us to go further and do more and that devolution could be an ongoing process that they want to see delivered successfully.

My hon. Friends the Members for Altrincham and Sale West (Mr Brady) and for Newton Abbot (Anne Marie Morris) gave qualified support, raising issues that I know we will have the opportunity to discuss as this Bill is taken forward and that I hope we can address in order to build as broad a consensus as possible for an agenda that appeals across a broad range of people in our country because of the change that it can deliver.

Some specific issues were raised during the debate, including that of mayors. I recognise some of the debate that has taken place, and I want to take this opportunity to address some of those concerns in the time that I have. My hon. Friends the Members for Altrincham and Sale West, for York Outer (Julian Sturdy), for Bury North (Mr Nuttall), for Hazel Grove (William Wragg), the hon. Members for Sheffield South East (Mr Betts), for Manchester, Withington (Jeff Smith), for Kingston upon Hull North (Diana Johnson), for Birmingham, Erdington (Jack Dromey), for St Helens South and Whiston (Marie Rimmer) and the right hon. Member for Birmingham, Hodge Hill (Liam Byrne) all raised the issue of mayors. I want to be clear what we are talking about. The metro mayors that we want to deliver are not mayors like those who have gone before. This is a different thing. This is not the civil mayor whom we have had for many years in this country, nor is it the local authority mayor on whom many areas did indeed vote leading to their adoption in some areas and not others. This is not a mayor who will take up powers from local authorities unless those local authorities choose to give them. This is a mayor who will hold, and be accountable to the public for, powers coming down from Whitehall—powers that we are devolving from public bodies. It is a very important point of difference. I recognise that there are some hon. Members who have not appreciated that we are talking about a different type of mayor. The metro mayor model is different from what we have seen before.

My hon. Friends the Members for The Cotswolds (Geoffrey Clifton-Brown) and for Cheadle (Mary Robinson) raised the issue of planning, which I want to address. I also want to mention the nature of planning powers in order to show why some of the concerns that have been quite rightly flagged up in the debate can easily be addressed by the content of the Bill. The purpose of the Bill is not to force powers to move up from local authorities. It is to enable us to devolve powers down from central Government—devolve powers that are held by public bodies down to accountable areas to deliver services and improvements for the people. Local authorities will not have powers taken away, but they can choose to pool them by agreement. That is the intention of the legislation and the intention of the Government, and that is what we will do. To hon. Members who have raised concerns about planning, let me say that there is nothing that would force change to the planning powers that their local authorities already have unless those local authorities decided among themselves to pool those powers because they recognised the benefits that that could bring. A range of issues has been highlighted by individual Members.

[Mr Kevan Jones]

rose—

[James Wharton]

I will give way, but for the final time.

[Mr Jones]

Why, then, are the Government insisting that the north-east should have an elected mayor before getting any package of devolution, despite being quite happy to give Cornwall devolution? Will the Minister give the people of the north-east a say in whether they get a regional elected mayor? If we had imposed regional assemblies, he and others in the Tory party regionally would have argued vociferously against it and we would have been pilloried.