Policing and Crime Bill

Lord Beecham Excerpts

Wednesday 14th September 2016 Lords Chamber

[Lord Porter of Spalding (Con)]

My Lords, I shall speak briefly to the remarks of the noble Lord, Lord Harris, about the elected mayor. There is no confusion about that: the Secretary of State made it quite clear in a public statement last week that the 11 deals on the table would not be renegotiated and that the mayor was a mandatory requirement. The noble Lord sitting behind the noble Lord, Lord Harris, will be aware that the north-east deal fell over last week because they would not agree on a mayor; five of the authorities would not agree and that deal was rejected by the Government. They have made it quite clear that a mayor is mandatory for those devolution deals. It would be unhelpful for this House to spread any more confusion about that.

[Lord Beecham (Lab)]

My Lords, I endorse the approach that my noble friend Lord Harris has advanced. Equally, I was very taken with the argument of my noble friend Lord Rosser in questioning why, for example, the ambulance service was not regarded as a likelier partner for the police service in any reorganisation. It seems to me that, if one has to do this—and that is another question—it would make more sense than amalgamating the two rather more discrete services of fire and police.

That is not to say that, in any circumstances, whether there is any reorganisation or not, there might not be some financial savings to be made by looking at the joint running of the back offices for all three of those services. It seems to me that that is potentially practical without changing the nature or accountability for the service. It would be a sensible investment in making savings, which can of course then support the services.

It seems odd that, despite suggestions that one should take place, there has been no consideration by the Government of a trial amalgamation, whether it be as envisaged in this Bill, a potential wider amalgamation involving all three services, or an alternative approach involving the fire and ambulance services. Will the Minister indicate whether there has been any discussion about the possibility of such a trial between two or more of the relevant services?

There is a real concern about the further concentration of powers in a single pair of hands—although it is potentially two pairs of hands in this case. You will have a chief officer of a combined authority, who will have overall responsibility for the two services as envisaged in the Bill. You may also have, in a mayoral combined authority, the role of the police and crime commissioner, which will bring with it that combined service, in the hands of the elected mayor. The mayor already has enormous powers under the devolution proposals as they are proceeding in the 11 authorities to which the noble Lord, Lord Porter, referred. It is questionable, to put it mildly, whether it is sensible to concentrate so much power on issues of this kind, as well as everything else, in the hands of an elected mayor. I should refer to my local government interests, which obviously have some bearing on the approach that I take in these matters.

--- Later in debate ---

[Baroness Williams of Trafford]

If I could make some progress, I am sure the noble Lord will come back to me if he feels he needs to.

As the noble Lord said, the provisions in Part 1 give legislative effect to that commitment. Noble Lords will have ample opportunity to scrutinise the details of the Government’s proposals and to put forward amendments to them, but I am a bit disappointed that the noble Lord, Lord Rosser, now seeks to strike out the key provisions in their entirety.

There are clear benefits to fostering greater joint working between the blue-light services, from better managing the changing nature of demand for services to providing greater value for money for taxpayers’ money in the interests of local people. While there are many excellent examples of collaboration between the emergency services across the country, which I talked about earlier—I draw the Committee’s attention to the excellent overview of such collaboration published by the Emergency Services Collaboration Working Group—it is clear that there is still more that can be done to secure smarter working, as I said. Collaboration is still patchy. We would like to make a more consistent service across the country.

The noble Lords, Lord Harris and Lord Beecham, talked about pilot schemes and trials. As I said, there is already substantial evidence to show that collaboration can work. The measures are locally enabling to reflect the Government’s view that local areas are best placed to determine the type of collaboration, but the provisions will in effect, by their very nature, be piloted as some areas will go first. A number of PCCs, such as Essex PCC, have already actively worked with their local fire and rescue services to develop a local business case.

[Lord Beecham]

Could the noble Baroness clarify what that means for responsibility for that service? Is it a collaboration between two services, or is she proposing that a single person should ultimately have responsibility for both services?

[Baroness Williams of Trafford]

It is about a single person having responsibility for both services. By their very nature, some will go before others and some are more advanced in working up their business cases. The public consultation that the noble Lord asked about took place over a period of about six weeks, I understand. People had an opportunity to respond.

The noble Lord also asked whether I had had any individual representation. I certainly have from Greater Manchester, which will not surprise him. I probably have not been in post long enough for my mailbag to start filling up with people’s views. I suspect that the Fire Minister, Brandon Lewis, may have had rather more.

To go back to what I was saying, Sir Ken Knight, whom noble Lords have mentioned, carried out an efficiency review of the fire and rescue service back in 2013. He concluded that opportunities to foster innovation and joint working were “hindered by local relationships” —of course, things can be vastly enhanced by local relationships in parts—and that greater leadership was required to overcome barriers to collaboration. He concluded that police and crime commissioners are well placed to provide that leadership and could clarify accountability to the public.

Taken together, Clause 6 and Schedule 1 enable a PCC to take on responsibility for the fire and rescue service in his or her local area. The Government believe that the directly accountable leadership of PCCs can play a critical role in securing better commissioning and delivery of emergency services at a local level. By overseeing both services, they can maximise the opportunities for innovative collaboration between policing and fire services, and ensure that best practice is shared.

As noble Lords have alluded to, we are introducing two models for PCC governance of fire and rescue services. The first, the “governance” model, will enable the PCC to take on responsibility for fire and rescue services in their area. In this model, the two distinct organisations will remain, with a chief constable in charge of the police force and a chief fire officer continuing to have operational responsibility for the fire and rescue service.

As a further step, a PCC could put in place the “single employer” model, under which the PCC would appoint a single chief officer, who would employ both police and fire personnel. This approach will remove the barriers that can prevent the full potential of fire and police collaboration, including the need to draw up contracts and collaboration agreements. This model will also enable upper tiers of management to be streamlined, with a single chief officer at its head. To ensure consistency, Clause 8 applies the single employer model to combined authority mayors to enable mayors with both policing and fire functions to secure the same benefits of closer alignment of policing and fire as their PCC counterparts.

I stress that the provisions in Schedule 1, providing for PCCs to take on the functions of fire and rescue authorities, are locally enabling. I hope this gives the noble Lord, Lord Bach, comfort. I stress that the Government are not mandating the transfer of these functions to PCCs. We know that a one-size-fits-all approach would clearly be inappropriate and it should be up to local communities to have a say in how their services are provided. Rather, PCCs will be able to take on responsibility for fire and rescue only where a strong local case is made that it is in the best interests of either efficiency, economy and effectiveness on the one hand, or public safety on the other, for the transfer to take place. They would be required to consult locally on that case.

If the PCC does not have local agreement to their proposal but still wishes to proceed with their case, the Home Secretary will be required to seek an independent assessment of the PCC’s business case and consider it and the representations made by the relevant local authorities before taking the decision whether to give effect to the proposal. This will be a robust process that ensures local concerns are fully taken into account and provides for independent verification of the merits of the case.

It is also important to be clear—the noble Lord, Lord Paddick, asked about this—that under these reforms, local police forces and fire and rescue services would remain distinct front-line services, albeit supported by increasingly integrated back-office and support services. It is not an operational merger. The important distinction between operational policing and firefighting will be maintained, with the law preventing a warranted police officer being a firefighter remaining in place. There is no intention to give firefighters the power of arrest or other core powers of a constable.