Local Government Bill [Lords]

Debate between Alan Whitehead and Keith Simpson

Thursday 21st October 2010 Commons Chamber

[Dr Alan Whitehead (Southampton, Test) (Lab)]

This is a rather strange debate. We are discussing a Bill with which it appears to be unnecessary to proceed, and which is being defended on grounds that seem far from anything relating to the reality of what occurred with the applications for unitary status. Indeed, it is being defended by the Secretary of State on the basis of what was, in fact, a series of spurious claims about costs and various other elements. It provides for the retention on the statute book of the 1997 legislation enabling unitary status applications to be received by the Secretary of State. The Secretary of State said, in typically colourful language—clearly it was a metaphor, or he would have been arrested—that there was a pistol in his desk which he would take to anyone who dared to suggest to him that the democratic structures of local authorities might be changed in favour of local people’s wishes.

Even stranger is the Secretary of State’s argument about value for money. He suggested that one conclusion of a consultant’s analysis of local government in general might be that one of the impediments to really good value for money was the number of councillors making decisions, holding meetings and incurring expenses as a result. He implied that local government would become much more efficient in terms of value for money—if that is the sole criterion—if local councillors were abolished, along with any local concerns about their election, and councils were replaced by a series of local authorities run by commissars. I do not think that any Member present would be particularly happy with that outcome—I imagine that they would want local councillors to run local authorities—but as soon as it is decided that local councillors should run local authorities, the question arises: what kind of authorities should those be?

To say that in the light of those value-for-money considerations, the whole question of who wants what kind of local government to act in their interests in particular areas is irrelevant, is fundamentally to miss the point of what local government is about. It certainly misses the point in terms of the Conservative party’s claim that it is now the party of localism. That would be so even if the arguments about the financing of the authorities that we are discussing were not as finely balanced as they have been.

The Secretary of State’s claim that unitary status would cost £40 million ought to be withdrawn by the end of the afternoon. It is grossly misleading, and a shameful defence of the Government’s proposals. Almost all the money would be recouped within five years, and there would be savings thereafter. Even if there were a financial argument, however, it would be trumped by arguments about local accountability, and about the purpose of councillors and local democracy.

[Mr Keith Simpson]

This is not the hon. Gentleman’s fault, but I do not think that he participated in any of the earlier debates on this subject. Many of them were held in Westminster Hall. I suggest that he read the evidence presented by my hon. Friend the Member for South Norfolk (Mr Bacon), a senior member of the Public Accounts Committee, who said that all the arguments about the savings that would be made had invariably been substantially wrong.

[Dr Whitehead]

I hear what the hon. Gentleman says, but my figures are from the explanatory memorandums to two statutory instruments that were presented to the House—and indeed have been confirmed by figures from the Government. I am at a loss to understand why more weight should be given to certain views on what costs might be than to cost figures that have been deposited in the House for Members to examine. I am not sure that the hon. Gentleman’s point was very telling, but even if it had been a little more telling, I do not think that it would have undermined the real question before us, which is how local government can work in the best interests of the people who elect councillors and want them to run services on their behalf.

Again using colourful language, the Secretary of State snuffed out the ambitions of Norwich, Exeter, and by implication Ipswich, to become unitary authorities in the future. That suggests—I am reminded again of the pistol analogy—an overall and enduring hostility on the part of the Secretary of State and others to the very idea of unitary authorities in the future, although the Local Government and Public Involvement in Health Act 2007 still provides for the possibility.

The position could have been different if that deep prejudice had not lain behind the decisions that were made. Even the judicial review was clearly based on narrow parts of the overall tests and consultation. The judge concluded that, essentially, the issue was fixable. He said

“this does not prevent them”—

the proposals—

“being put forward for approval after what need only be a short period of consultation.”

His judgment was based not on the grounds that the proposals were irrational, but on narrow grounds relating to the tests before the consultation, and anticipated that the proposals might be presented again. It has been made clear today that they will not be presented again, because of what the Secretary of State and the Government have decided is their view—not the people’s view, not the local authorities’ view, not councillors’ view, but the Government’s view—of how local government should be conducted in the future.

Another strange aspect of the debate is the suggestion that the proposals result from the revolutionary ideas of local authorities that are attempting to break free from counties and move into unknown territory on their own, to the detriment of those counties. In fact the whole history of local government, not just in Norwich and Exeter, but across the country shows that the opposite is the case.

It is interesting to reflect on the history of county boroughs. As has been mentioned, both Norwich and Exeter have a long history of independent self-governance as local authorities. The 1889 legislation that created the modern local government system introduced the idea of county boroughs; the large number of county boroughs reflected the wishes of people in those cities. The framers of that legislation specifically said that it would be impractical for towns and cities whose local government had previously been independent to be incorporated into counties, which was why the county boroughs were introduced. That was done to ensure that that tradition and that system continued, and residents of cities and towns could exercise unitary self-government within the cradle of the county around them. This is not a new idea that was just dreamed up by the Labour Government; it is historically the way in which local government outside metropolitan areas has been conducted.

What has happened in local government in relatively recent years is that with the overwhelming approbation of the people living in these towns and cities, there has been a move back towards what is, in essence, a local government structure of county boroughs across the country. Some 85 of the 87 unitary authorities introduced between 1889 and 1965 survived until that date; three of them then became London boroughs. In 1974, 37 of those county boroughs became metropolitan boroughs, and subsequently, particularly in the early 1990s under a Conservative Government, a large number of those became unitary authorities again. Some 24 of the 45 remaining county boroughs became unitary authorities, but 21 did not, and two of the five largest of those are Exeter and Norwich. It was largely a matter of chance that they did not become unitary authorities as a result of that process.

People with a reasonable memory of local government will recall the hanging commissions that went around the country in 1992 to determine the future of local government, county by county, across England. Commissioners were sent out within those county frameworks to produce independent reports about what the future local government structure would be, and the then Government implemented them. Those reports advanced a variety of different approaches, depending on the view of the commissioner involved.

Some commissioners produced reports saying, “The county borough is so important to the county that we cannot possibly have it excised from the county, so there must be two-tier local government.” On other occasions, the same commissioners sent out to perform the same exercise in the same county said, “The county borough is so important in the county that it must be excised from the county and given back unitary status, because that is logically the right thing to do.” In one part of the country a particular commissioner was so enthusiastic about unitary government that he abolished the whole county, and six unitary authorities were produced instead. That commissioner is familiar to many of us in a different guise—as the hon. Member for Christchurch (Mr Chope). A variety of conclusions were reached at that time, which meant, among other things, that Exeter and Norwich did not become unitary authorities because of the accident of who went out to do the report.

We have heard this afternoon that the people of Norwich and Exeter overwhelmingly support the idea that the long tradition of unitary government in those towns should be restored.

[Mr Simpson]

Can the hon. Gentleman give the House the factual evidence for that view? What polling has been done? Has a local referendum been held?

[Dr Whitehead]

The hon. Gentleman will recall hearing earlier this afternoon about the results of various polls conducted in those local areas, the results of consultations with councillors and the information that came from various bodies within the local authorities, all of which pointed to the idea that the people in those areas strongly supported the idea that their authority should become unitary.