Lord Bradley
Main Page: Lord Bradley (Labour - Life peer)Greater Manchester Combined Authority (Amendment) Order 2015
Lord Bradley Excerpts
Lord McKenzie of Luton (Lab)
My Lords, I thank the Minister for introducing this order and wish him well with his address to the Council of Europe tomorrow. The order, as we have heard, covers a narrow but very important point concerning the governance of the Greater Manchester Combined Authority. By way of background, we note that on 3 November 2014 the combined authorities endorsed the devolution agreement negotiated with the Government which sets out the new powers and new responsibilities to be transferred but alongside governance changes which will eventually lead to a directly elected mayor being introduced.
Of course this is all part of the northern powerhouse, in recent times seemingly and belatedly so beloved of the Chancellor, with the agreement on an elected mayor referred to in glowing terms in the Budget speech—a new promise for the combined authority to be able to keep 100% of the additional growth in local business rates. We are thoroughly supportive of the Greater Manchester Combined Authority, which was created under legislation of the previous Labour Government, and acknowledge the innovative approach of the authority and its 10 constituent members. Indeed, the briefing note provided by the authority correctly asserts that Greater Manchester has been at the forefront of the debate about fiscal and functional devolution for some time. It states that greater devolution has been a cross-party objective for many years. The stated ambition is to develop a new “place-based” partnership with government over the lifetime of the next Parliament to influence, if not control, all public spending in Greater Manchester.
The thrust of all of this sits full square with our position of wanting, across the piece, to transfer some £30 billion of funding over five years from central to local government to resource transport, skills, employment support, housing and business support. But our ambition is not just to empower cities such as Manchester; it is to empower all parts of England that are prepared to join together in city and county regions. Unlike this Government, we would not give with one hand and take with the other by hitting the most vulnerable communities with the largest cuts.
It is understood that, under the 3 November 2014 agreement, the powers and functions of individual authorities will be retained by them but the combined authority will be strengthened through the transfer of existing powers and functions from central government. Perhaps the Minister will confirm that those cover transport, skills, business support, housing, planning, public service reform and health and social care. A set of governance protocols for the combined authority have been developed to reflect this, which widens and strengthens participation among local members. This has been built on to develop the agreed revised GM model which introduces a directly elected mayor as the chair and 11th member of the combined authority. There will be a cabinet of leaders with clear portfolio responsibilities.
It is understood that the plan is for an elected mayor to take responsibility for the newly gained powers in respect of planning, transport, housing and policing. Perhaps the Minister will confirm that that is so. We are influenced in our acceptance of the model by the fact that the combined authority has itself signed up to it. Clearly, this is all dependent on further primary legislation, which will fall to the new Parliament. It will be known shortly to which party or parties this opportunity will fall. However, so far as primary legislation is concerned, can the Minister say—assuming it fell to his party—what would be proposed in terms of consultation in advance of that legislation? Would the primary legislation require a referendum to approve the creation of an elected mayor? If so, what would happen if a referendum rejected the concept? It has been rejected in the past. Would there be an endless succession of interim appointed mayors? Where would such a rejection leave the devolution agreement?
The deal entered into between the combined authority and the Government is ground-breaking and the issues of governance are clearly an integral part of the negotiations and the agreement. However, can the Minister say whether other forms of additional governance capacity and chairing were considered apart from the elected mayor and the interim arrangements?
How will the interim mayor be held to account? Other members of the combined authority are leaders in their individual authorities, it is understood. An interim mayor may have to initially have held an elected post, but presumably it can be relinquished subsequently, and in any event it may not be the appropriate channel for judging performance.
Finally, the Secondary Legislation Scrutiny Committee of your Lordships’ House has drawn attention to the paucity of the consultation which has taken place in respect of this order. It points out that albeit the order is concerned with an interim appointment, the powers involved are potentially wide. How do the Government respond to that criticism? However, as indicated at the start, we support this order.
Lord Bradley (Lab)
My Lords, as the Secondary Legislation Scrutiny Committee pointed out on this interim order for the appointed mayor, there were barely three weeks of consultation, and the only people who effectively were consulted were business representatives and local councils. Although it was on the website, there was very little public involvement in the discussions and the decisions that were subsequently taken. It is essential that, under the forthcoming primary legislation, there is full consultation. Can the Minister give an absolute assurance on the length and depth of that consultation with the public in Greater Manchester? What timetable does he envisage for that primary legislation? If we are to move towards an ultimately elected position, the two-year time period might be shortened in that process.
Lord Ahmad of Wimbledon
My Lords, I thank the noble Lords, Lord McKenzie and Lord Bradley, for their contributions. I welcome the support across the Committee for the way that we are moving forward with Greater Manchester. Various questions were raised and I shall try to answer all of them.
The noble Lord, Lord McKenzie, asked what powers the Greater Manchester Combined Authority will receive. To give a bit more detail on some of the issues over which it will have control, they include: control of apprenticeship grants for employers; power to reshape and restructure the further education provision within Greater Manchester; control of an expanding Working Well pilot with central government funding linked to good performance; the opportunity to be a joint commissioner with the Department for Work and Pensions for the next phase of the Work Programme; and the GMCA and Greater Manchester clinical commissioning groups will be invited to develop a business plan for the integration of health and social care across the area based on the control of existing health and social care budgets.
The elected mayor of Greater Manchester will receive greater responsibility for a devolved and consolidated transport budget with a multiyear settlement to be agreed at the next spending review, for a franchised bus service, for integrating smart ticketing across all local modes of transport and for exploring on an urgent basis further opportunities for devolving rail stations across the Greater Manchester area. The elected mayor will also receive powers for strategic planning, including the power to create a statutory spatial framework for Greater Manchester; control of a new £300 million housing investment fund; control of a reformed earn-back deal with the current envelope of £300 million a year for 30 years; and incorporate the role and responsibilities of the Greater Manchester police and crime commissioner.
Lord Bradley
Perhaps I may clarify what the Minister was saying about consultation on the primary legislation. He seemed to be saying that there would be an evaluation of it in 2019. My question was whether there would be consultation with the public on the primary legislation to be introduced early in the new Parliament.
Lord Ahmad of Wimbledon
My understanding is that, as the deal has been done on laying the primary legislation, it will proceed in the next Parliament. That has already been negotiated between the Government and the leaders, so there are no plans for additional consultation on the primary legislation.