Code of Recommended Practice on Local Authority Publicity

Baroness Miller of Chilthorne Domer Excerpts

Wednesday 30th March 2011 Lords Chamber

[Lord Black of Brentwood]

My Lords, as a former local councillor in Brentwood, Essex, and now as a director of a newspaper company, the Telegraph Media Group—I declare an interest accordingly—I appreciate that there are two sides to this issue. Weighing them both in the balance, I strongly support the proposed code of recommended practice because of the damaging impact of some local authority publicity on the local press. I do not need to dwell too much on this because I agree almost entirely with everything that my noble friend Lord Fowler said.

I do not think that anyone in this House would disagree with the proposition that a free and vibrant local press is the cornerstone of a properly functioning democracy. Local newspapers foster a sense of local and community spirit, scrutinise those in power, help ensure that taxpayers' money is being used efficiently, and, at a time of increasing secrecy in council decision-making, help shed some light on the workings of local government. The local press is the best example we have of localism in action. People respect and trust the regional press, which, we should not forget, employs 10,000 journalists across the UK—that is more reporters on the ground than any other medium in this country—to act independently in the public interest in a way that council publications never can. I appreciate, as the noble Lord, Lord Beecham, said, that there are pressures on the reporting of local government issues. However, independent research from Ofcom in 2009 found a general increase in high-quality local investigative journalism over the past five years. That is much more the image of the local press that I have as opposed to that reflected in some of the things that the noble Lord said.

However, as with national newspapers, such high-quality journalism—I believe that it is high-quality journalism—is expensive. Working in a newspaper company, I know that even in a benign commercial climate that places a considerable burden on publishers. However, it is infinitely more difficult during a period not just of economic downturn but of structural change within the industry, the combination of which has created a perfect economic storm for the regional press over the past few years. If we value a free local press, then we have to do everything we can to ensure that it operates on a level commercial playing field. It cannot do that if it is competing with local authority publications not just for readers—we should not forget the readers in this—but, crucially, for the advertising which funds it. Using taxpayers' money to compete for that increasingly scarce revenue—none of us should be in any doubt about how difficult the advertising market is—is unfair, anti-competitive and damaging to the local press. The more frequent the publication, the more advertising spend is drained from the private sector.

A recent survey by the Newspaper Society showed that nearly half the local authorities surveyed in London publish a newspaper or magazine on a monthly basis or even more frequently, with 90 per cent of those accepting advertising. Examples, as we have heard, include East End Life from Tower Hamlets and Greenwich Time, both of which in effect masquerade as local newspapers, which raises the added issue, as has been touched on, that local people can be misled into believing that what is in effect local authority propaganda is objective and independent journalism. It is not and never will be.

The noble Lord, Lord Shipley, raised the issue of crosswords and so forth. I looked at a copy of East End Life, a newspaper which, in an investigation in 2009, the Evening Standard showed to have twice the number of pages as the independent newspaper in that area, the East London Advertiser. It is not just crosswords; it has TV listings, news items and sports pages at the back—this is, in effect, a local newspaper in shape and in displaying classified adverts. That cannot be right. I am all in favour, as a former local councillor, of local authorities being able to communicate to the public the information they need, but they have that in the A to Z of local service; the occasional, objective council publications, which will not be stopped by the code; material in public libraries; a constructive dialogue with the local media, which is so important; and, of course, websites. In a digital age, there is no end of ways for a council to communicate with people.

I live in the London Borough of Islington. Its website tells me how to claim benefits, what books are in the library, what jobs I can apply for, how to get involved in the council and so on; it is all there. I believe that the code will help correct the balance. It is a simple solution which will not stop local authorities communicating professionally, objectively and cost-effectively with their electorates across a range of issues; but it will help stop some of the unfair competition with the local press, which is so dependent on advertising, and, in some extremes, help stop the public being misled into believing that a council publication is an independent newspaper, with all the profound implications that that has for local democracy. On every count I believe that the code is good; it is good for local taxpayers, good for local democracy and good for the independent local press which is a vital part of the civic fabric of our country.

[Baroness Miller of Chilthorne Domer]

My Lords, as the daughter of the proprietor of three local newspapers in Hampshire and Surrey, I grew up with the words “threats to local newspapers” ringing in my ears. In those days, in the 1960s, as the noble Lord, Lord Beecham, says, it was from commercial radio. The threats have been talked about ever since. The threats now are from websites. I do not believe that the younger generation listening to this debate would believe that the threat to local newspapers is actually coming from council newspapers. I do not recognise the world that the noble Lord, Lord Black of Brentwood, spoke of when he said that councils are increasingly secret. Actually, over the past 20 years, when I was involved as a councillor and latterly council leader in Somerset, councils opened up their meetings considerably; they were no longer held behind closed doors. We live in a world now of much greater openness. Indeed, a lot of future exposure is likely to come through the world of the Huffington Post and WikiLeaks, not through the traditional print media.

I do feel nostalgic for print and I understand why the noble Lord, Lord Fowler, made the impassioned speech that he did. I hope that local newspapers continue to fight another day, but I am not certain that they will. Technology is moving so fast that that produced on paper is almost irrelevant. It saddens me that the Government have chosen this moment to renew a code in these terms. It extends a code that was already adequate to counter what my noble friend described so well as a situation from days gone by, when party political publications masqueraded as newspapers. That is not the case now. The code covered it, the code is complied with and councillors understand very well, as do council officials, what the code means.

I am disappointed that our Government have chosen to micromanage in this way. When we talk of unfair competition in addressing this, it seems very strange. The rest of the time we talk about competition and a free market being healthy. I understand the difference, which is that it is taxpayers’ money producing a council newspaper, but the rest of the time councils are urged to be as commercially viable as possible. However, it is not that that offends me, it is the micromanagement. Are we really going to have a code that dictates content? The noble Lord quoted competitions. I can remember my own council newspaper running competitions along the lines of, “Get to know your local area. Can you recognise where this is?”, with a photo of the local area. The next time it was published it would talk about the projects that were going to happen there. That is a competition and it certainly should not be caught by the code.

Frequency is certainly not a matter for central government; it is a matter that the council will decide according to its finances and, indeed, according to its residents’ wishes. Councils have been urged for ages to take into account their residents’ wishes, and survey after survey that my council did always came back with a request from residents for more information in a more digestible form. The public are very happy with the appearance of newspapers; that is why newspapers have evolved as they have. There is nothing wrong with a local authority taking on what is a very popular appearance and publishing its material in that form. It is not by chance that a newspaper has evolved into the form it has; it is because that is the form that the public like.

Finally, I do not like lobbyists any better than anybody else, but we need to be careful about this in the code. A lobbyist might be taken to be a person who has particular expertise in publicising a fairly technical issue. In the 1990s I remember that quite specialist help was needed to deal with what we were forced to do then, housing stock transfer. Noble Lords will be able to think of other very specialist issues now; say, flood defence and managed retreat, which you need quite specialist people to talk about. Would you not be allowed to employ them in your newspaper to write an article? So there is even a question hanging over the question of lobbyists. I wish that the Government would think again and quietly drop this proposal.

[Earl Cathcart]

My Lords, when looking at the two Motions before us this evening, I asked myself, what it is that most council tax payers want from their council? I believe that it is the provision of good or excellent services as cheaply as possible. Taxpayers want value for money; every pound spent wisely, especially in these straitened times. I should declare that I was a local councillor for a number of years. My district council, Breckland in Norfolk, is in the top quartile for performance—indeed, it has beacon status—and it still has the lowest council tax in the country; about £60 for a band D house. As a taxpayer, that is exactly where I want it to be: it is good value for money.

The code deals with two main issues; new or tougher rules for local authority newsletters and the use of lobbyists by local authorities. Dealing with the use of lobbyists first, I ask myself the question, as a council tax payer: do I want my council paying tens of thousands of pounds to an outside firm to lobby MPs, public officials, political parties and government Ministers? The answer is an emphatic no, for two reasons. First, councillors and officers of the council already have open-door access to their MPs, Ministers and public officials. Why on earth do councils, therefore, need to pay good money to lobbyists to do their job for them? This leads me to my second point: it is a waste of taxpayers’ money, money that would be better spent in improving or maintaining front-line services.