Greater Manchester Combined Authority (Election of Mayor with Police and Crime Commissioner Functions) Order 2016

Lord Grocott Excerpts

Wednesday 23rd March 2016 Lords Chamber

[Lord Beith (LD)]

My Lords, I join my noble friend Lord Shipley in welcoming the Tees Valley order. I sympathise with those who prefer to call it Teesside as well. I note in particular that Liberal Democrat councillors and party chairmen in the Tees area have firmly and publicly stated how much they want to work together with others to make a success of the combined authority and associated arrangements.

I also say in passing that I share the view expressed in several quarters that making an elected mayor a condition of deals of this kind is a very unreasonable position for the Government to adopt. I say that when I look at what would happen if we had to have an elected mayor covering an area from Berwick to Sunderland—an area of very diverse differences. It would be a very inappropriate governance arrangement.

I turn to the Greater Manchester order because of a little-mentioned positive aspect of it, but I am not clear how far it goes. It is what was referred to at paragraph 1.279 of the Budget statement, on criminal justice:

“The government has also agreed a further devolution deal with Greater Manchester, including a commitment to work towards the devolution of criminal justice powers”.

That is rather weak wording: “to work towards” is what Governments sometimes say when they are making concessions and are in difficulty. I do not think that that is the origin in this case. As far as I am aware, there is a genuine government commitment to achieve some devolution of criminal justice powers. Will the Minister, in responding to the debate, say just a little more? It was barely mentioned at the opening. It is a new development and unique to the Greater Manchester deal.

There is tremendous scope to be had from developments of this kind because at the moment we have a distortion in our system that means that, whereas the prison system is funded nationally, all other disposals arising from sentences tend to depend on local funding and extremely variable local provision of services for alcohol addiction, drug addiction and so forth. Greater Manchester is one of the areas that has tried to grapple with some of this. When, in my former capacity as chairman of the Justice Committee, we visited Stockport, we found there determined co-operation between magistrates, the local authority and the probation service, the development of something more like the problem-solving court, and the bringing together of various public bodies to deal with the problems that a case identifies that could lead to the ending of a pattern of offending behaviour. That requires a lot of co-operation between different bodies. Similarly, making logical use of alternatives to custody in sentencing depends on having a financial structure in which the commissioning is not done by completely different bodies.

There is a lot of scope here, and there will be even more scope if national spending on criminal justice is increasingly devolved to local areas. If that is done, we have a much better chance of ending up spending money on preventing crime, rather than on keeping people in prison for crimes that should never have happened. I see this as potentially important, and not something that we should allow to be forgotten in the Greater Manchester deal.

[Lord Grocott (Lab)]

My Lords, I agree with pretty well everyone who has spoken, particularly my noble friend Lady Armstrong. Everyone was in favour of devolution and of decisions being made as locally as possible. I wish there was a bit more of that thinking in the Government as far as education is concerned, but I suppose there are inconsistencies in all government policies. I still feel a sense of foreboding about these orders and they are not entirely removed by my noble friend’s amendments, although I think it is infinitely desirable for the amendments to be carried.

The foreboding comes, at least in part, from the sense that we are developing in an almost ad-hoc way. I do not want to use the word “hotchpotch”, but it is the nearest thing to the truth. We will have different forms of local government in different parts of what is still, certainly geographically, quite a small and homogeneous country. We will soon reach the stage when a member of the public will need a doctorate in public administration to know what kind of system they live in, who does what, where and how, when to vote and all the rest. That will particularly be the case when people move around the country, as they do, of course, from one part to another. I do not think that it is the only principle governing constitutional change, but I think that intelligibility should be one of the principles.

We are in increasing danger, as these orders come through, of forgetting that principle and making a very complicated system of local and regional government public administration. I say that despite the fact— I am very conscious of the fact—that some people I admire enormously in local government, friends of mine, have been involved in the various negotiations and the conclusions that have been reached. It is something that should cause us concern. We should at least keep a watchful eye on how these things are developing.

I confess to a prejudice in all this, in that I think one should always be a little wary of Chancellors who say they are here to help. Chancellors of the Exchequer have a fair bit of power and a fair bit of money at their disposal. It is never quite an equal discussion when they come and negotiate with local leaders, who have tremendous knowledge of their area but nothing like the same capacity to implement decisions for their area that people in national government quite rightly have.

However, my main concern with these changes remains, as it was when we were taking the Bill through, about this business of directly elected mayors being compulsory. Let us not throw weasel words around any more. I do not like using language like that, but it is using weasel words to say that this is an optional addition to devolution agreements—that it is optional as to whether you have a mayor or not. It is not. It is quite clearly an absolute requirement for the Chancellor. It is something that should not just pass in an order without us at least registering our concerns, as others have.

I will not repeat things I said during the passage of the parent legislation, but I did not expect that on the leader page of the Daily Telegraph I would find an article by a Conservative writer with whom I found myself agreeing wholeheartedly. The headline in last Friday’s Daily Telegraph was: “Voters don’t want them, but the march of the mayors is now unstoppable”. It is not me saying this, though I find a great affinity with it. The article says that four years ago:

“George Osborne … asked 10 cities, in a referendum, if they’d like a directly-elected mayor. Nine said “no”. It was the wrong answer … It’s hard not to admire his audacity. Soon, all nine of the cities which rejected the offer of a mayor in a referendum will have one anyway”.

We know the history of this. It was introduced by a Labour Government, I acknowledge that, but then the impetus for an elected mayor had to come from below. Then the Conservative Government said, “Well, this isn’t moving fast enough, so we are going to force these 10 local authorities to consult the people”. They did consult the people and the people said, “No, thank you very much, we do not want one”. So what do the Government do? In the finest traditions of the European Union, I have to say, if you do not like the first result you have another go until the electorate come to their senses. That is essentially what has happened. Fraser Nelson goes on to say:

“Since 2001, there have been 50 mayoral referendums, of which just 15 agreed to mayors. Many have come to regret it”.

We know two, of course, where there has been a vote to get rid of it.

I know that it is whistling in the wind now to say this, but we are setting up a quasi-presidential system as a model across the country. This is not yet at a national level, thankfully—because I think that a parliamentary system is infinitely preferable—but that is what is going to happen. It will inevitably mean different systems in different parts of the country. We are still in the very unfortunate situation, as far as I can see, unless the Minister can correct me on this, where unlike in any quasi-presidential system anywhere in the world there is no limit on the number of terms a mayor can serve. That is a great fault in the system. Parliamentary systems get rid of leaders when they are not keen on them, but mayoral systems do not have that mechanism. I should have thought that eight years—two terms—should be a maximum, but that safeguard does not exist.

I have no sense of joy and exhilaration at a wonderful new experiment. I do not think that that was detected in any of the three Front-Bench speeches; I may be misinterpreting them. I hope that as this process continues—it now seems inexorable—care will be exercised to ensure that we do not develop a system of devolution across our relatively small country which no one without a double doctorate can understand.

[Baroness Williams of Trafford]

My Lords, I thank all noble Lords who have taken part in this debate. I shall open my remarks by reflecting the words of the noble Lord, Lord Shipley, about the process of devolution being iterative and evolutionary over time. Those were very sensible words. I shall address some of the issues that were brought up that I did not address in my opening remarks.

Several points were made about referendums for different types of mayors being held under different processes. It is probably quite important to distinguish between the different provisions at different times. It is quite misleading to link referendums about whether there should be an elected mayor for a local authority area and the proposed combined authority mayors. The latter mayors are very different from local authority mayors—that is probably one reason Greater Manchester saw fit to have one. They have wholly different and novel roles and are closely interconnected with the devolution of new, wide-ranging powers for areas.

The noble Lord, Lord Beecham, asked how much agreement there was from other departments in doing these deals and implementing them. The departments concerned have all signed off the deals, which have been collectively agreed by Ministers. The implementation process is both local and across Whitehall, led by a director-general and a cross-Whitehall group involving all departments involved in the specific deals.

The noble Lord, Lord Shipley, asked about impact assessments. I hope it comforts him that when we confer functions on the combined authority to be exercised by the mayor, there will be, where appropriate, a regulatory impact assessment. This will be done in future orders that will be considered by this House.

The noble Viscount, Lord Eccles, talked about Durham moving north, which was interesting, and the identity in Teesside. The naming of the combined authority was a matter for the local area. The Government have recognised the historic boundaries but this combined authority is about strengthened, joined-up working and building on strong relationships across boundaries, recognising local identities.

The noble Lord, Lord Beecham, talked about the certainty of funding, particularly in relation to HS3. The Government have committed to HS3 and the Chancellor announced in last week’s Budget that £60 million will be available to bring forward HS3 between Leeds and Manchester, reducing journey times towards 30 minutes, which will increase the jobs market for people in both Leeds and Manchester and improve links between the north’s other major cities. The Government are absolutely committed to this.