Combined Authorities (Overview and Scrutiny Committees, Access to Information and Audit Committees) Order 2016

Lord Kennedy of Southwark Excerpts

Thursday 26th January 2017 Lords Chamber

[Lord Shipley (LD)]

My Lords, this a slightly lengthier discussion than we had on the previous two orders. It results from there having been great cross-party collaboration when the Cities and Local Government Devolution Bill passed through your Lordships’ House. That work developed the basis for the proposals now before us. Let me say at the outset that much of it is welcome.

For the avoidance of any doubt, I want first to ask the Minister to confirm that the order will apply to all combined authorities automatically and that, if there is to be a combined authority in future which does not have a mayor, the order will apply to it as well. I then have a few specific questions. When the Cities and Local Government Devolution Bill passed, we had established separate overview and scrutiny committees and audit committees—it was right to separate those two functions. But in the case of audit, I hope that the Minister can confirm that it will encompass risk, particularly investment decisions.

One function of overview and scrutiny will be to scrutinise risk, but there are advantages in audit committees having a clear risk function as well, because some investment decisions will be very big financial decisions. It was good to see from the list of consultees that the National Audit Office and the Centre for Public Scrutiny were consulted, because one of the aims that we had with the Bill was to ensure that value-for-money audits were done, as well as simply financial audits. Can the Minister confirm whether the proposals given to the Government by the National Audit Office and the Centre for Public Scrutiny have been incorporated in this order?

I have a further concern that there is to be no governance framework for the operation of overview and scrutiny committees. My questions are: how does an overview and scrutiny committee know what it needs to scrutinise? Who will tell it what it should review? Am I right in assuming that agendas and papers for the meetings of combined authorities will be made available, and that they will include both the public and private parts of those agendas? We need to be clear exactly what is proposed here. When the Bill was passed, there was a lot of concern about access to meetings. We do not want to see decisions being taken in lengthy pre-meetings of combined authorities, from which the press and public are excluded, with the formal meeting of a combined authority being very limited in time and content. I submit to the Minister that such an outcome would not be good for local democracy or for the success of mayoral combined authorities in the public perception.

The absence of a governance framework places a lot of responsibility on the shoulders of the committee members, in particular independent members, to ensure transparency and openness. I suggest to the Government that they should monitor the appointment of independent members. There is clearly a process, which we welcome, but I think the Government will need to monitor that appointment process to ensure that it is indeed wholly transparent.

I have a further query about timescales, which relates to the two months allowed for a combined authority to respond to an overview and scrutiny committee. The timescales, as I understand them, are these: an overview and scrutiny committee will call in a decision if it wishes to, which will prevent implementation for up to 14 days. When that committee has held its meeting, the combined authority or mayor must hold a meeting to consider what it has said within 10 days. Potentially, that gives 24 days for the total time taken to that point. However, a period of two months is then allowed for the combined authority to respond to the overview and scrutiny committee, to explain why it made its decision. That is too long. I have not understood why it should take two months. I would be puzzled if it needed to take more than a fortnight, but there may be a reason that I have not understood. I am happy to seek the Minister’s reassurance on this point.

Finally, I would like an explanation, if the Minister is able to give one, for the statement about protecting the overview and scrutiny committee’s independence in the Explanatory Notes. The relevant bullet point, at the top of page 4, says that,

“to protect the overview and scrutiny committee’s independence, the committee may not include any officer from the combined authority or the combined authority’s constituent councils”.

That sounds eminently right and reasonable. What I am not clear about is exactly how the overview and scrutiny committees will then be staffed. There will clearly have to be staff members present, writing opinions and papers for the attention of scrutiny committee members, which implies quite significant staffing. That may be fine, but presumably it also implies that the officers giving advice to the overview and scrutiny committee will potentially be required to give evidence to the overview and scrutiny committee. What power does an overview and scrutiny committee—which may not include any officer from the combined authority or the combined authority’s constituent councils, so there must be independent officers present—have to require an officer who has given advice to a combined authority to attend a meeting? I should be grateful if the Minister will explain that point.

[Lord Kennedy of Southwark (Lab)]

My Lords, again for completeness, I refer the House to my interests set out in the register in so far as they are relevant to the issues being debated. I should state at the outset that I am content with the order before your Lordships’ House and am happy to approve it.

Generally, the order brings combined authorities under arrangements similar to those that exist elsewhere in local government. The new combined authorities, which will elect their mayors this May, will have considerable powers over large areas of service delivery and policy that have a tremendous effect over people’s lives. The powers that it is proposed to give to these new elected mayors and combined authorities are, in some cases, not yet through their parliamentary procedures, such as bus franchising, which is being debated in the other place as it considers the Bus Services Bill. The noble Lord, Lord Shipley, raises some important points about how the procedures will operate in the future and I will be interested to hear the Minister’s response.

I am pleased about the measures in respect of overview and scrutiny, which can serve a valuable function. I have first-hand experience of this, so I hope that the House will allow me to explain with a local example how valuable the function is. I have told the House many times before that I am a councillor in the London Borough of Lewisham. I may not have mentioned that I am a supporter of and season ticket holder at Millwall Football Club. I and many other councillors, residents and campaigners—including Vicky Foxcroft, the Member for Lewisham Deptford, Neil Coyle, the Member for Bermondsey and Old Southwark, and the Association of Millwall Supporters—were concerned at the proposals for redevelopment around the Den, which would not deliver any social housing or enough affordable housing. The club was clear that that potentially put its future at risk in a part of south-east London where it has been part of the community since 1910. Councillor Alan Hall, Councillor Brenda Dacres and others on the overview and scrutiny committee were able to provide robust challenge to the proposals. Other cabinet members, including Councillor Joe Dromey, also opposed the plans, which in recent weeks had a considerable amount of publicity in the Guardian, the Evening Standard, the South London Press, Private Eye, Sky Sports and the BBC. I have been struck by how many members of the House’s staff have said to me as walked past, “Defend my Den, my Lord”.

Yesterday it was announced that the planned compulsory purchase of land leased to Millwall would not be going ahead and that the local authority wants to get around the table to seek agreement on the way forward in a manner that brings together the club, the Millwall Community Trust, which does a great job with children in the area, and others to secure the redevelopment by agreement. Overview and scrutiny played an invaluable role in achieving that turnaround, as did the Association of Millwall Supporters, by highlighting concerns and issues. That is a local example of effective overview and scrutiny. I am happy to support the order.