Buckinghamshire (Structural Changes) Order 2019

Debate between Lord Stevenson of Balmacara and Lord Stunell

Monday 20th May 2019 Lords Chamber

[Lord Stevenson of Balmacara (Lab)]

My Lords, I declare an interest: I have lived in Buckinghamshire for 25 years, which is a long period of time which I am afraid is about to come to an end because I move out in about six weeks’ time. But I could not let this moment pass without drawing on that experience and sharing a little of it with your Lordships’ House. I thank the Minister for the meeting that was arranged last week at which we were able to go through some of the bigger issues that underlie this change, and I was grateful to know that he had made some adjustments to the way in which he presented the case this evening.

My remarks this evening will be brief. I draw heavily on comments made by Dame Cheryl Gillan MP in the other place when she spoke on both the orders that are now going through this House as well. I have also been given the notes that would have been read by the noble Baroness, Lady Pidding, who has an unbreakable appointment and cannot be with us. She wanted to make sure that some of her points were brought to the attention of the House.

I make it clear that I am not against unitarisation of local authority services. In some senses, the proposal put forward today has many justifying points, which the Minister drew attention to when he spoke. But the arguments that have been made and the process behind it are not sufficient for what is a very major change in the way in which our county is being organised. The criteria that the Minister mentioned and were used by the Secretary of State were to improve the area’s local government, to make sure that there is strong local support and to ensure that at the end there is credible geography. My judgment is that on all three counts the proposal does not satisfy those aspirations.

As the Minister explained, the proposal that has been accepted was made by the county council and not by any of the district councils—four district councils, which are doing an excellent job, were against the proposal for a single unitary authority—and 70% of parish councils were similarly against, so it is very hard to see exactly where the local support is coming from. The figures mentioned during the consultation on the actual proposal were also significant numbers—47% of those who submitted a response were in favour of retaining a unitary but bicameral or two-county solution to the issues.

One main concern that has not been touched on by the Minister but which is behind the proposal is that the county council has suffered from a considerable reduction in finances recently. There have been pressures on social services, education, road maintenance and many other issues. That needs to be addressed if this proposal is to be successful. Irrespective of the form it finally takes, if the money is not there, there will not be a satisfactory solution for local people in terms of local services.

At the end of the day, what we are being asked to accept is not credible in terms of geography. It is a very large, long and thin county and it has very poor north-south communications. Also, it is an area that will be affected by a major development—the Oxford-Cambridge arc of prosperity—which will go right through the top end of the county. In the process of doing this, we are ignoring the significant impact of all the activity that goes along with Milton Keynes. So this is an odd and unbalanced approach to what could have been a reformation of the sorts of services that are required. In many senses, Bucks looks closer to Oxford and they share many services, particularly in education. It looks to the north through Milton Keynes to Northampton and to the east to Luton and the surrounding areas. In the process of trying to reorganise within Buckinghamshire, the ultimate solution may be suboptimal whether it is a single unitary or double unitary authority.

I have three minor points that the Minister mentioned but it would be helpful if he could pick them up when he comes to respond. There is a feeling in Buckinghamshire that the winner of this reorganisation is the county council. It dominates the shadow authority. It is chaired by the current leader of Buckinghamshire County Council, as we have been told. It is also composed of nine members from the county council, with only two from each of the district councils, which comes to eight, so there is an inbuilt majority. It is fair to point out that, once established, there will be a chance for change, but getting it set up, with all that is involved with processing and preparing the arrangements, there will be domination by the county council.

The Minister mentioned community boards and a possible role for town councils and other groups in making sure that local interests are brought forward. As he was saying that, it felt a little like the effective retention of a two or even three-tier system. One hopes that that will operate in a way that will not clog up the credibility of the new structures. I will be grateful if he will comment on the role of the community board in practice and on whether there will be any dialogue with parish councils. The rural nature of Buckinghamshire is such that parish councils play a very large and important role, and it would be entirely wrong if that work were to be in any way disturbed.

Finally, it seems odd to read in the statutory instrument that there is no intention to review the new arrangements that are being put forward. Given what I have just said about the difficulties in setting this structure up and the very large changes that are going to come from HS2 driving straight through the county, the new roads that are going to join Oxford and Cambridge and the development of large areas of new housing around Aylesbury and further north, how is it possible to think of this not just in terms of Bucks itself but in relationship to the emerging plans from Oxfordshire, Berkshire, Hertfordshire and other areas, which will have an impact? Increasingly the south end of the county is a commuter belt for London and the changes in Slough and other areas are not taken into account here. I think an attempt is being made to try to re-establish an old vision of what Bucks should be that is not credible in terms of what Bucks will be in future.

I end by drawing attention to the fact that Dame Cheryl Gillan in the other place made many similar points but said at the end, and I agree with her, that this is the time not to break up the proposal but to get behind it and support it. If the noble Baroness, Lady Pidding, were in her place she would say that although there have been some difficulties and considerable arguments within the authorities, she too supports it and hopes that it will do well once it has been established.

[Lord Stunell (LD)]

My Lords, it is a pleasure to contribute to this short debate on this statutory instrument. I thank the Minister for his introduction, which sketched out the framework very clearly. I think he perhaps oversold the consensus nature of the situation, which the noble Lord, Lord Stevenson, highlighted in his contribution. There were court cases, a very anxious local MP and a good deal of controversy in many quarters about the alternative ways of changing the structure in the Buckinghamshire county area. Nevertheless, I think the Secretary of State has produced a sensible compromise between the views put forward by the district councils about how things should be organised in a unitary Buckinghamshire and the proposals that the county council put on the table.

I particularly welcome the choice of three members per ward and a body of 147 members, rather than two per ward as the county council preferred. That is a good decision and I welcome it. What does the Minister envisage will be the total number of councillors for the authority after 2025? He talked about re-warding the county structure as the 2025 elections approach. I have a general concern that every time we do local government reorganisation, one of the underlying consequences is that there are fewer elected representatives serving their community. Even accepting the number provided by the Minister—because of double-hatting, there are perhaps 200 individuals who currently serve on district and county councils at the moment—that will be reduced to 147, which is a 25% reduction in the number of elected representatives. I hope that he will be able to give your Lordships a steer that he is looking for that large council of 147 not to be dramatically shrunk in 2025 to make yet another step backwards in representation. By the way, it is a county whose population is already growing rapidly and, as the noble Lord, Lord Stevenson, made very clear, is set to grow even more rapidly with infrastructure developments over the next decade or so.

That brings me to my second point, which is the role of parish councils in all this. Parish councils in Buckinghamshire feel quite bruised by how things have gone. Seventy-one per cent of parish councillors are reported in the Government’s Explanatory Memorandum as opposing the single authority solution. Therefore, it is important that we have reassurance from the Minister that nothing in this statutory instrument will disadvantage town and parish councils when fulfilling their role as local community champions.

In respect of that, can he say something more about the 19 community boards that are to be set up? Paragraph 7.4 of the Explanatory Memorandum refers to,

“the establishment of nineteen community boards, each with a community hub, enabling local councillors to take decisions on issues such as funding for community groups and local roads maintenance; and providing a single point of contact”.

That is an excellent concept. It is one that Liberal Democrats, when running local authorities, have always felt to be very important. However, it is internal devolution of the budgets and power of the local authority, and much will depend on how those community boards work with or relate to the parishes within their areas and how they develop their external relations with them. What reassurance can the Minister give to those who worry that community boards might be more of a barrier to communities exercising real power and that they will stand between the communities and the decision-makers, rather than turning out to be a conduit for making sure that powers and decisions go down to the local community level?

Notwithstanding the concerns about some of the detail, we will not oppose this statutory instrument this evening. However, we certainly believe that it is important to see that democratic accountability and links with the local community are not worsened by this proposal and that, in fact, the opportunity is taken to improve those links and communications in the future.