Levelling-up and Regeneration Bill

Baroness Randerson Excerpts

Committee stage
Monday 13th March 2023 Lords Chamber

[Lord Hunt of Kings Heath (Lab)]

My Lords, I have a number of amendments in this group, which ranges very far and wide; at points, it is difficult to know what connects one with another. However, I suppose that they all have something to do with functions to be devolved to local government, which I guess is good enough.

I have tabled three amendments in the group and have added my name to the Clause 59 stand part debate in the name of my noble friend Lord Bach. My first two amendments, Amendments 89 and 90, are very much probing amendments designed to get a feel from the Government as to whether they have any intention of extending the “Devo Manchester” arrangements in relation to the NHS to other parts of the country. I have long believed that local government should have a greater role in the National Health Service. When the NHS was set up in 1948, there had been a huge debate in the Attlee Government as to whether the new NHS should be part of local government or not. In fact, there was a great argument between Nye Bevan and Herbert Morrison. Herbert Morrison, who had been the leader of the London County Council, which had been the largest hospital authority in the world before the war, argued for local government, while Bevan said that he thought that it would be a second-rate, patchy service. He obviously won the argument, although, by the early 1950s, he had changed his mind. Of course, when he introduced the NHS Bill—in this Chamber, of course—he talked about the NHS being a national service, but he stated that most of the decisions would be made locally through hospital management committees. He also made the memorable quote that when a bucket of slops is kicked over in Merthyr Tydfil, its echoes should sound in the Palace of Westminster. I suppose he was expressing the great tension about the NHS, which is that, for all the efforts to try to run it locally, the centre has continually sucked up powers and has attempted the impossible: to run this massive service through a Whitehall system of targets and other methods to try to bring the service into line.

There have been various attempts to break out from that. I was part of a ministerial team led by Alan Milburn that brought in foundation trusts as an attempt, on the providers’ side, to get much greater local ownership. The problem was that, once Alan Milburn left office, there was no one else to champion the concept, because at heart the Department of Health was very unwilling to let go. The noble Lord, Lord Lansley—whom I always tempt into these debates if I can—tried another approach with the establishment of NHS England as a quasi-independent body, again to try to take some of the decision-making away from Ministers and Whitehall. However, I suggest that, post the noble Lord, the appetite for it among his successors was pretty limited.

So we are left with a service that is under great pressure at the moment. We see Ministers scrambling around announcing plan after plan to try to recover it, and, frankly, that is not the way—I almost said, “That ain’t the way to run a railway”, but perhaps that is not quite right for those of us who travel by Avanti on a frequent basis, as the noble Lord said. When George Osborne reached an agreement with Manchester City Council—without, I think, NHS England knowing anything about it—that Greater Manchester would be given powers, in essence, to co-ordinate the running of the NHS in Greater Manchester, I thought that it had great potential.

Rather like for many initiatives, once Mr Osborne moved on it seems that the appetite in Whitehall for developing this idea fell by the wayside. I really wanted to use my first two amendments to probe the Government on whether they can confirm that, in fact, there is no intention to replicate what is happening in Manchester and that they now see integrated care systems as the way forward. If that is the case, the point I make to the Minister is that all the indicators are that local government is being treated as a very junior partner within those integrated care systems.

I want to pray in aid some very good work by the County Councils Network, which will not be so pleased with me when we come back to the issue of district councils in a few weeks’ time. I pay great tribute to its work looking at current experience of working with the NHS. It found some great examples of partnerships but the conclusion of its work is that integrated care systems

“simply do not feel like a paradigm shift towards delivering truly local priorities based on local engagement, and the question remains as to whether they are ‘joint’ endeavours or NHS bodies with some local government participation.”

Noble Lords who took part in debates on the then Health and Care Bill will remember that we spent many happy hours debating these very points and were assured by the Government that they saw local government as full partners within the integrated care systems. But the reality is that particularly the integrated care boards which commission NHS services are seen to operate primarily to tackle immediate NHS issues rather than address local priorities. The County Councils Network concludes across three themes of its research that:

“Accountability structures for ICBs … lead to NHSE and the Secretary of State for Health and Social Care and not to local organisations”—


surprise, surprise—that

“Regular directives from ‘the centre’ … require senior ICB leadership to focus on immediate NHS operational issues”,


another surprise; and that there is also

“a ‘command and control’ culture that jars with collaboration and local political leadership”.

That also is a great surprise.

The County Councils Network makes a number of suggestions for improving the involvement of local government. Essentially, it argues that the department of health and NHS England

“need to fundamentally review the levels of centrally mandated activity and targets in policies and funding requirements, particularly in shared policy areas, to ensure that they are consistent with the principle of locally driven strategies.”

I hope the Minister will respond positively to it. If, as I suspect, the Government are not prepared to go down the “Devo Manchester” route, despite some encouraging signs about what it is beginning to achieve, then I think they have to show—as this is essentially a local government Bill—that local government is going to have a greater involvement in the NHS and healthcare in the future. Anyone looking at the challenges we face in health at the moment and the inequalities surely must conclude that, unless we get to grips with chronic ill health and the need to promote a much stronger preventive approach, this will not happen without full participation of local government. That is the only way we can possibly get through the crisis that our health service faces.

Let me move on to a different issue. I come to Clause 58 where, it seems to me, the Government are essentially saying, “You can have devolution, but only on our terms and by adopting this model of directly elected mayors”. I have just heard the Minister comment on this, but why the obsession with directly elected mayors, I do not know. Clause 58 typifies this. At the moment, Part 6 of the Local Democracy, Economic Development and Construction Act 2009 provides for public authority functions to be conferred on to a combined authority subject to various requirements about authorities locally consenting. Such functions can then be exercisable by the combined authority or by the mayor personally.

But Clause 58 now amends the current provisions whereby all the local authorities covered by the function to be transferred have to agree. Under this clause, the mayor of a combined authority may make a request to the Secretary of State to make such an order. The mayor is required to consult the constituent councils of the combined authority before making the request and requires the mayor to include within such a request to the Secretary of State a statement that all the constituent councils agree to the making of this order or, if this statement cannot be made, the mayor’s rationale for proceeding. My reading is that, despite a constituent authority not giving consent, the Secretary of State can simply agree to the mayor’s request and override objections from constituent authorities. To me, that is a fundamental change from the current provision. It allows a mayor to act in an extremely high-handed way and is something that we should be very wary of.

For an example of high-handedness, Clause 59 really takes the biscuit. I suppose we should call it the Andy Street clause because it has been put in only because he was very miffed that his proposal to take on the functions of the police and crime commissioner in the West Midlands was turned down by the local authorities in that region, as they have every right to do. At the last elections in the West Midlands, Mr Street was elected mayor and a Labour candidate was elected police and crime commissioner. That was a democratic wish of people in the West Midlands, and for the mayor to come along and say, “Forget that. I want to be the police commissioner”, and the Government to come along with this clause and say they going to take the power to do that, is utterly unacceptable. I hope very much, when it comes to it, we will be able to take this wretched clause out of the Bill. I beg to move.

[Baroness Randerson (LD)]

My Lords, I will speak to Amendment 91 to which I have added my name, and to Amendment 469 in the names of my noble friend Lady Pinnock and myself. I also want to express general support for the amendments in this very disparate group.

On Amendment 91, some noble Lords will be aware that I am also at the moment participating in debates on the Strikes (Minimum Service Levels) Bill and the retained EU law Bill. There are some overlapping issues, and one is the role of trade unions and the interaction between the powers of the UK Government and the powers of employers, including, of course, local government as employers.

Last week on the strikes Bill, I raised the issue of the powers of devolved Administrations. The Minister was unable to give assurances that the UK Government—who, by the way, on issues that are devolved are just the English Government—will not simply override the devolved Administrations. Applying that logic to this Bill, which purports to increase devolution within English local government, it is reasonable for us to ask what the status of trade unions within local government will be and whether the UK Government will seek to override English local authorities in the same way as they intend to override devolved Administrations. The lessons are similar in both Bills.

--- Later in debate ---

[Baroness Pinnock (LD)]

I apologise to the Minister. I just thought I would add to the questions now and not interrupt further.

Is this an admission by the Government that the current system of independently elected police and crime commissioners has not been effective? I cannot think of any other reason why the two separate roles should be combined unless it is felt that the separate role of the police and crime commissioner has not been as effective as the Government wished.

[Baroness Randerson (LD)]

In the interests of making life easier for the noble Baroness, perhaps I could add my question. What assessment have the Government done of the crossover of funding between local authorities and police services for community safety work and partnerships? That is a frequent model. When the noble Baroness says that the police and crime commissioner role has no impact on local authorities, surely, that funding flow is relevant.

[Baroness Scott of Bybrook (Con)]

I did not say that the councils do not have any concerns or interest in the role of the PCC. Of course, they do, as we have heard, with community safety committees et cetera. What I said was that the councils do not deliver any of the services required by the PCC. That is the job of the local police. Therefore, there is no crossover in that way.

--- Later in debate ---

[Lord Berkeley (Lab)]

My Lords, I congratulate my noble friend on her comprehensive introduction in moving this amendment about transport. I agree with everything she said. One depressing thing last week was a headline from the Government in a Written Statement, which said that they will be investing £40 billion in transport but in fact, when you look at the small print, you see that they are going to cut bits of HS2 for two years. Worse still, they have cut the investment in cycling and walking by more than half, having said that they are going to invest. There is an awfully big difference between what it says on the bit of paper and what happens on the ground.

When it comes to buses, my noble friend is absolutely right. We have to hear from the Minister, but we do have an Oral Question on Thursday, in the name of my noble friend Lord Snape, asking the Government

“what plans they have to support the bus industry in England following the end of the current bus subsidy arrangements.”

If that is not urgent, I have a message from the people who run the community transport service in Northern Ireland, saying that the Northern Ireland Executive have stopped all funding of community transport buses from the end of April. All the staff will be made redundant and there will be no community transport services in Northern Ireland. So much for making it easier for people; I hope that we will get some answers on that.

[Baroness Randerson (LD)]

My Lords, I have put my name to Amendments 92 and 98 but, in truth, I could have put it to every single amendment in this group. The amendments in my name, however, are designed to demonstrate the fundamental importance of transport functions to the effectiveness of the CCAs. The noble Baroness, Lady Hayman, has outlined that very comprehensively and ably.

I subscribe to the view that bigger is not necessarily better in many examples of local government, but it is undoubtedly the case that larger local authorities give you the opportunity to plan strategically for public transport and, indeed, for every strand of transport. Without powers to provide a comprehensive and strategic approach to transport, CCAs will be asked to deliver their job with one hand tied behind their backs. They will not be able to do the levelling-up job in any meaningful way.

This series of amendments asks vital questions about the powers over transport infrastructure. Powers without funding are meaningless as a tool for levelling up. The amendments also address the issue of sustainability. That is important in relation to transport, which is responsible for about one-third of our emissions.