Ben Bradshaw
Main Page: Ben Bradshaw (Labour - Exeter)Local Government Bill [Lords]
Ben Bradshaw Excerpts(13 years, 7 months ago)
Commons ChamberRead Full debate Read Hansard Text
The Secretary of State for Communities and Local Government (Mr Eric Pickles)
I beg to move, That the Bill be now read a Second time.
It was not possible in Question Time to address the right hon. Member for Don Valley (Caroline Flint) directly, and I want formally to say how welcome she is to her appointment. I am sure that she will be a formidable opponent at the Dispatch Box. I noted her expressions of willingness to work with us on several issues. As we share similar views on several matters, I expect that to happen. However, if it does not work out, we will always have Paris. I just leave that hanging in the air.
The Bill simply fulfils the commitment in the coalition agreement that
“we will stop the restructuring of councils in Norfolk, Suffolk and Devon.”
It is a short Bill—indeed, the explanatory notes, the European convention on human rights certification, the contents and the front page are longer than the Bill, which has only one substantive clause. I doubt whether all the Bills that my hon. Friend the Member for Christchurch (Mr Chope) moved will be as short as this Bill. However, at last we know exactly what the future holds for people living in the aforementioned counties. In fact, since the Bill is so obviously a common-sense and worthwhile measure, it is worth reminding the House why it is needed.
It is quite a saga, worthy of Jarndyce v. Jarndyce in Charles Dickens’s “Bleak House”. Through the magic of Mr Dickens’s words, that case has become a byword for an interminable and pointless proceeding. So we find ourselves with the Bill. With judicial reviews, a league of lobbyists and dubious challenges on hybridity, the measure ran the risk of becoming, to misquote Dickens, “a scarecrow of a”
Bill, which would,
“in course of time, become so complicated that no man alive knows what it means.”
So let us remind ourselves of how we got into that mess.
In the dying days of the Labour Government, the then Secretary of State chose to defy common sense and overturn the decision of his Labour predecessor. He decided to ignore independent advice and unilaterally impose unitary councils in the areas that we are considering. He has moved to pastures new, leaving us with an unwanted and worthless legacy. Why was that Labour civil war necessary? Why was Labour Secretary of State pitched against Labour Secretary of State? No one really knows. In the former Secretary of State’s absence, I suppose that I will do my best to guess and help out.
Was the reason to save money? No. There were sketchy and dubious estimates that eventually the decision might save £6 million a year, but only after spending £40 million on the costs of reorganisation. A critique by Professors Michael Chisholm and Steve Leach, noted local government experts, stated:
“The Government was economical with the truth about LGR”—
local government reorganisation—
“selective and inconsistent in its use of evidence, with the result that misleading impressions have been conveyed to local authorities, the public and Parliament.”
Perhaps that was a harsh judgment, but it is difficult to argue against it. The professors also argued that
“there are cogent reasons for thinking that minsters are exaggerating the financial benefits of unitary councils”.
If the reason was not money, perhaps it was popular fervour. Perhaps the people of Norfolk, Suffolk and Devon were crying out, “What do we want?” “A unitary council!” “When do we want it?” “Now!” Sadly, we were spared that surreal spectacle. In the most recent consultation, more than half the responses in Norfolk and 85% of those in Devon showed that the people did not want any change. That is not surprising; they just wanted the councils to get on with more important matters.
Perhaps the reason was that the councils could work more effectively if they became unitaries. No. In fact, the councils did not even fulfil the Labour Government’s own criteria for becoming unitaries. The Labour Government’s assessment was that the proposal in Exeter was unaffordable, and that the proposal in Norwich was both unaffordable and poor value for money. Yet the former Secretary of State blithely disregarded that. Instead, he cited his own deep and mysterious “compelling reasons” why those councils should become unitaries, which are perhaps the same compelling reasons why a suicide of lemmings feel the need to speed to the Scandinavian seaside. However, those reasons were not sufficiently “compelling” to persuade his own civil servants.
The former permanent secretary of the Department for Communities and Local Government, as chief accounting officer, wrote to my predecessor warning that the change
“would impact adversely on the financial position of the public sector.”
He went on to say that
“the evidence for such gains is mixed and representations that you have received provide no evidence to quantify such benefits.”
He further remarked that
“there is every likelihood of such judicial review proceedings being commenced”
and asked, as is normal in such circumstances, for written instructions to implement the proposals.
The reasons were rejected in the other place, where a motion of regret expressing strong concerns was passed overwhelmingly. All that was ultimately overturned by the High Court, which found on 5 July that the decision was unlawful, because the former Secretary of State failed to consult on departing from his Government’s own criteria. I suppose that we should forgive him for getting involved in judicial reviews—it can happen to the best of us. As a result of the court case, the structural change orders were quashed, and elections have since been held for seats in Exeter and Norwich, where contests were deferred by the orders.
Hon. Members, being reasonable people, may well ask why we need this Bill at all. I have some “compelling reasons” of my own. Although the High Court has struck down the orders that would implement the proposals, the proposals themselves still theoretically exist. They are zombie proposals that have refused to lie down and die. Anyone who follows horror movies knows that the only way to kill a zombie is to sever its head from its body. I am here today, shovel in hand, ready to perform, with the help of the House, that very task. We need to remove the possibility of anyone wasting any more time on those near-dead orders. We need to release councillors in Norfolk, Devon and Suffolk from the legal limbo in which they are trapped, so that they can get on with what really matters: protecting the front line and providing the best possible local services.
This whole story of woe illustrates the consequences of the previous Government’s command-and-control approach to local government. It mattered not what local people thought or how much it cost—they simply pressed on regardless. In contrast, this Government genuinely believe that councils work best when they are freed from the interference and micro-management that were the hallmark of the previous Administration.
The measures were the last, dying attempt of a lost, dying Government to change the structure of local government. In many ways, that was the culmination of the way in which this House has traditionally dealt with local government: it tries to change structure first, and then to allow function to follow. I am much more interested in changing the function of local government. If it is necessary in future to catch up on structure, so be it, but I do not envisage that happening for some considerable time.
Mr Ben Bradshaw (Exeter) (Lab)
Will the Secretary of State clarify for the House his understanding of the implications of the Bill? Will it prevent unitary applications coming forward only from the three counties he has mentioned, or will it prevent any applications at all?
Mr Pickles
I am sure the right hon. Gentleman is an assiduous reader of the specialist press. I recall seeing an article in the Municipal Journal that said that I had in the top left-hand drawer of my office a pearl-handled revolver with which to shoot the first person to suggest a restructuring of local government. The last time I checked, the revolver was fully loaded and waiting for such a person.
Mr Bradshaw
The Secretary of State has not answered my question on the impact of the Bill.
Mr Pickles
I am sorry if levity got in the way of my answer, but I shall give the same basic answer now. The Bill finishes the process I outlined. It would be theoretically possible to start the process again, were someone brave enough to come through my door to suggest that we throw £40 million of council tax payers’ money away. The Bill stops the process in respect of the counties I mentioned, but it kills only one zombie—it does not mean that another zombie will not turn up in due course.
We want to make local authorities genuine leaders of their local communities, with a real say in the issues that matter to local people, such as housing, planning and the local economy, and even the NHS. Instead of making councils turn themselves inside out in response to the whims of a Secretary of State, we are giving them the freedom, the power and the responsibility to decide for themselves what they need to do.
Of course, it is only common sense that through closer collaboration and more joint working, councils can not only save money, but improve the services on offer to local people. They do not have to become unitary to do that, or to spend £40 million getting there, or to embark on a lengthy, expensive and disruptive centrally imposed process. Most councils are ready to come together and already do so by sharing chief executives, pooling back-office functions or even departments such as planning, and conducting joint procurement. I welcome that, and we know that it will make a huge difference. The Local Government Association has said that joining up services could save around £5 billion a year.
Councils are working to eliminate every trace of waste and re-examining how they work and the way in which every service is delivered. They are concentrating on becoming more effective and more productive than ever before, but they are doing so without the Secretary of State breathing down their necks, telling them exactly what to do, when to do it, and most corrosively of all, how to do it. They know that there are more effective ways to go about that than putting themselves through the lengthy and expensive rigmarole of restructuring. People want to see their councils saving money by concentrating on what really matters to them. I do not think there are many council tax payers who would put restructuring at the top of their wish list.
The proposals for local government restructuring were nothing but a wasteful and unnecessary distraction in these straitened times. The £40 million that the process would have cost is the equivalent of the entire residential care budget in Devon for a year. The money, time and effort that might have been invested in shuffling the deckchairs can now be invested in facing up to the challenges of the future. I commend the Bill to the House.
Mr Ben Bradshaw (Exeter) (Lab)
For a Government who claim to want to give more power to local communities and to devolve decision making downwards, this is a most astonishing Bill to force through Parliament as a priority today. The Secretary of State said on 8 June this year:
“I want to give an indication of my three most important priorities. These are: localism, localism and localism.”
The Conservative manifesto referred to
“Making politics more local… we want to pass power down to people”,
while the coalition agreement spoke of a
“radical devolution of power to local government and community groups”.
Someone called the “decentralisation Minister” told the local government conference on 8 July that he would
“put town halls back in charge of local affairs”.
How hollow those promises sound today, as this Government seek to drive through a Bill that will achieve exactly the opposite, depriving the people of Exeter and Norwich of their localism and their historic unitary status. They have fought for nearly four decades to regain the right to run their own affairs. The Government are not handing power down, but up to the bigger, more remote and much less accountable Devon and Norfolk county councils.
We have already heard that today’s debate involves unfinished business not of the last four years, but of the last 36 years. Before 1974, Exeter and Norwich had both enjoyed their own local government for hundreds of years—long before county councils were even thought about.
We do not need to rehearse the arguments for unitary government, as my right hon. Friend the Member for Don Valley (Caroline Flint) has already expounded them. Suffice it to say that unitary government used to have all-party support for the obvious reason that it is more efficient, more transparent and more accountable. Indeed, the last Conservative Government recognised that and acknowledged the mistakes they had made in 1974, as they created a further 46 new unitary authorities after 1974, including the only other two sizeable urban areas in Devon—Plymouth and Torbay. That reorganisation under the last Conservative Government left Exeter and Norwich as the biggest cities in England without control over their own affairs. That lack of democratic accountability is felt even more acutely in those great provincial cities that are in the middle of large rural counties, where most of the services continue to be delivered and the decisions continue to be taken by rural-dominated county councils.
That is the situation that the Labour Government inherited. We quite rightly recognised the role of cities such as Norwich and Exeter as economic growth points, and the desirability of unitary government as less wasteful and more accountable. In 2006, we invited bids from anyone interested to come forward with suggestions for unitary government. Like a number of other towns and cities across England, Exeter responded enthusiastically.
Exeter’s bid enjoyed all-party support. We have already heard one quote from the leader of the Conservative group, Councillor Yolonda Henson. She wrote to my local newspaper, the Express & Echo on 10 March this year:
“In one of the greatest political statements ever spoken, Abraham Lincoln praised the virtues of a government of the people, by the people and for the people. That is precisely what the restoration of unitary local government is promising for the people of Exeter.”
I could not have put it better than the Conservative group leader on Exeter city council. I would like to pay tribute to Councillor Henson and her fellow Conservative councillors for withstanding the constant bullying and pressure from their party at the national level and from Conservative councillors at County hall. It was not only all the political parties on Exeter city council that supported our unitary bid, as every single significant stakeholder in the city supported it: Exeter university, Exeter chamber of commerce and the voluntary sector. Every single opinion poll carried out in Exeter showed that the overwhelming majority of people in the city wanted their own self-rule.
At this point, I note the comments of Lord Burnett during consideration of this Bill in the other place. He claimed that the recent general election result in Exeter was evidence of opposition to unitary status. I have to inform Lord Burnett that in Exeter Labour secured the second-lowest swing against it anywhere in the south-west. The poor Conservative candidate, caught between her local party and central office, sat so firmly on the fence on the issue that I wondered how she did not split in half. She did much worse than the Conservatives had expected, given the tens of thousands of pounds of Ashcroft money they poured into Exeter. The poor Liberal Democrat candidate, who defied his own local party and came out against unitary status, was the only Liberal Democrat in the whole of the south-west whose vote went down. As with so much of what else Lord Burnett has said on this matter, he is grossly ill informed and the facts are quite the opposite of what he claimed.
Exeter’s original bid had all-party, all-stakeholder and public support. We should not forget that it would have been perfectly possible at that time for counter bids to be made by Devon county council or Norfolk county council, but that did not happen. The then Labour Government regarded Exeter’s bid as one of the strongest, but, as we have already heard, it narrowly failed to come through on one of the criteria—the affordability criterion, as it would have taken a long time to pay back the costs.
Brandon Lewis
The right hon. Gentleman refers to the failure of alternative bids—for example, from Norfolk. There was advice from the Department about what should have been considered. Surely the right hon. Gentleman would accept that this happened in Norfolk because Norfolk county council wanted the status quo and did not want to be messed about by the Government in the first place.
Mr Bradshaw
That might well be the case, but my point is that it would have been perfectly open to either Norfolk or Devon to make counter-unitary bids, but there was no support. I accept that there was no support in Devon or Norfolk for those initiatives and I shall come on to explain why. That is exactly why the Labour Secretary of State came to the conclusions he did.
Exeter’s bid was considered one of the strongest, but it narrowly failed on one of the criteria because there were no corresponding unitary bids from the rest of Devon. There were weaker bids at that time: there was a bid from Bedford and a bid from Chester that went through because there were corresponding unitary solutions covering the rest of those counties. That being the case, I think the Government were absolutely right to ask the boundary committee to look at possible unitary solutions covering the whole of Devon—and the same for Norfolk and Suffolk.
I have to say that describing the boundary committee process as unsatisfactory would be the understatement of the century. It took two years and it had a flawed consultation, which had to be started again. It was plagued by a series of self-serving judicial reviews from some of the district authorities that were worried about being abolished. There was a strong—and, I believe, justified—suspicion in both Exeter and Norwich that the boundary committee and Department for Communities and Local Government officials were not balanced in their approach, favouring the more powerful counties against the cities.
Gordon Birtwistle (Burnley) (LD)
I should like to refer the right hon. Gentleman to the bids in 2006, when Burnley and Pendle put in a bid for a unitary authority following a visit by the then Secretary of State, the right hon. Member for South Shields (David Miliband), to Lancashire county council, who declared it a basket case under the rule of the Labour party. Burnley and Pendle put in that bid, and it was declared to be excellent, yet the then Minister, the hon. Member for Oldham East and Saddleworth (Mr Woolas), turned it down. Can the right hon. Gentleman explain the reasons for that, in the light of what he is now saying about Norwich and Exeter?
Mr Bradshaw
You will have to forgive me, Mr Deputy Speaker, but I am not an expert on the local situation in Burnley and Pendle. Perhaps one of my Front-Bench colleagues will be able to address that point when they respond to the debate later.
I was talking about the concerns that Exeter and Norwich expressed about the fairness and balance of the process. Professor Ron Johnston, the local government expert on the boundary committee and one of its more experienced members, resigned from the committee in July 2009 because he felt that its approach had been unfair to Exeter and Norwich. He wrote to the then Secretary of State in January this year, saying that
“the position of Exeter concerned me greatly throughout the 15 months of discussions...Exeter is a major economic growth point, and in my view, such an important urban area should have its own separate local government (democratically accountable to its residents) with control over economic and spatial planning”.
Following the illustration of the flawed nature of the boundary committee’s work, it ended up recommending a unitary single Devon and a unitary single Norfolk, which has already been criticised by Conservative Members. Neither solution was supported by anyone. Devon county council did not want a unitary Devon, and it was that suggestion that provoked the most opposition during the consultation process. It was certainly totally unacceptable to Exeter, just as it would have been for Norwich. There was no precedent for a city of that size or significance being subsumed into a unitary county in modern times, and it would have been totally unacceptable.
The Secretary of State therefore had a problem. It was open to him or her to accept, reject or vary the boundary committee’s recommendation. Given the strong opposition to a unitary county, the strong support in Exeter for a unitary Exeter, and the opposition around Exeter to a unitary greater Exeter—which had been one of the options early in the process—my right hon. Friend the Member for Southampton, Itchen (Mr Denham) reverted to Exeter’s original bid, and he was absolutely right to do so. Given the length of time and the uncertainty involved, he was absolutely right to recognise Exeter’s right to self-determination.
Much has been made today of the affordability criterion. Indeed, that was the main plank of the Secretary of State’s reasoning. However, Professor Ron Johnston wrote in his resignation letter that
“this criterion made the creation of a viable urban authority based on Exeter and its immediate surrounding area extremely difficult, if not impossible.”
In other words, the criterion was flawed. Even if it had not been, the increased importance of Exeter as a driver for growth—it had the third highest level of growth anywhere in England between 1998 and 2006—had rendered the criterion redundant. Indeed, that was recognised by the then Secretary of State when he said that he was justified in departing from the presumption that unitary proposals that do not meet all five criteria were not to be implemented.
My right hon. Friend the Member for Don Valley has reminded the House that in the long run, far from costing money, the unitary solutions for Exeter and Norwich would have saved money. I have here a letter from Baroness Hanham, dated 22 July 2010, which states that the
“net costs of creating a unitary Exeter during the transition period to 2014-15”
would be £2.5 million. The annual savings after that would be £2.6 million a year. In the case of Norwich, the projected savings are even greater. The net cost of creating a unitary Norwich up to 2014-15 would be £1.9 million, with annual savings thereafter of £3.9 million. It is simply wrong for the Secretary of State to say that this process would have cost money in the long run. It is also wrong of him not to recognise that the most expensive option is the status quo.
In the Bill, the Conservative-Liberal Democrat Government are treating the people of Exeter and Norwich, two of our great historic English cities, with complete contempt. The Government claim to support local democracy and the devolution of power down to local communities, but in their first local government Bill since the election they are doing exactly the opposite. In an act of pure political vindictiveness, they are taking away the local autonomy that Exeter and Norwich had at last regained, after nearly 40 years of waiting.
The people of Exeter and Norwich will not forget this shabby treatment by the coalition. Indeed, they have already had the opportunity to make their views plain. Thanks to the outrageous and dictatorial way in which this Government have handled the whole process, Exeter and Norwich were forced to hold unwanted local elections last month. In Exeter, the Conservatives lost three seats to Labour, and the Liberal Democrat vote did not just go down, it collapsed. The immediate result of this Government’s shabby treatment of my city is that Labour has regained control of the council, because of the anger felt by Exeter people towards the Conservatives and the Liberal Democrats. We are unlikely to persuade this Government of the justice of Exeter and Norwich’s claim for self rule, but those two great cities will not give up. They were proud, self-governing cities for hundreds of years before county councils were even thought of, and I am confident that, when we again have a Labour Government who are committed to localism in deeds and not just in words, their long march to recover their lost freedom will be won.
Anne Marie Morris (Newton Abbot) (Con)
I thank the right hon. Member for Exeter (Mr Bradshaw) for his contribution. I hear what he is saying, but he and I have rather different memories of what happened at that time. He has implied that the county of Devon was in favour of the unitary proposal for Exeter, but that is certainly not my recollection. Indeed, the people of Devon were not at all in favour of such a unitary authority for a number of reasons, and that is why I rise to support the Bill.
Newton Abbot is part of Devon, and we are served by Devon county council. My hon. Friend the Member for Broadland (Mr Simpson) made a good point earlier when he said that we need to consider the impact on those we leave behind, as well as those we put into a unitary authority. What would happen to the rest of Devon if we were to carve out Exeter? Exeter has a large population, and a unitary authority would attract a lot of funding. What would happen to the remaining rump? Devon has one of the largest geographical areas in the country. Parts of it are also in the lowest quartile of economic resilience. Across the county, 20% comprises rural villages and hamlets, and it has already been noted that Torbay and Plymouth—two other large centres of population—have already been carved out of it. The remainder of Devon is a large swathe of small villages.
Devon faces challenges not only of rurality but of an above-average number of older people, as a consequence of people liking to go there to retire. Why does that matter? It matters because of the way in which public funding formulae work. For the most part, rurality and the age of the population are not taken into account. The consequence for education in Devon can be seen in the league tables for the country; Devon is now 148th out of 151. That means that our children are getting £300 less per head spent on them, which adds up to a substantial amount for a sizeable secondary school. In health, we are also below average. It is true that statistics show a figure of only 1.1%, which seems like a very small number. That completely misrepresents the position, however, because of the number of ageing people in the county. If Exeter had become a unitary authority, my constituents and those in other parts of rural Devon would have been significantly worse off.
Mr Bradshaw
The hon. Lady seems to be making my point for me, which is that Exeter and Norwich have been the milch cows for rural Devon and Norfolk. That was denied by Devon county council all the way through the process, but she is making the point extremely well today.
Anne Marie Morris
I do not accept that. They have not been milch cows. I do not deny that Exeter is an important part of the Devon community, but I believe that we need wealth to be generated throughout Devon. We cannot look only at Exeter. I do not think that that detracts from my point that the rest of Devon would simply become worse off if Exeter became a unitary authority.
There are a number of things on which my constituents and, I suspect, other Devon constituents would prefer £40 million to be spent. A challenge is presented by our railway along the coast: we need funds to make it viable, and it is crucial to the viability of tourism in my constituency. I think that my constituents would like the bypass—the A380—to be finally completed, after 50 years of battling. They would also like the flood problem to be sorted out. In Teignmouth, I am currently battling to try to ensure that the flood prevention scheme proceeds. Notwithstanding what was said about flooding earlier, Opposition Members may recall that the Labour party proposed capital cuts of 50%, but the cuts that we have proposed are considerably smaller, and I am therefore hopeful that my friends in Teignmouth will get their scheme. Our water bills are 25% higher than water bills anywhere else in the country, and some of this money could be usefully spent on rectifying an injustice that has existed for many years.
I do not think that unitary status will be in the interests of Devon or of the country as a whole, but as the money simply is not there, the question becomes inappropriate in any event. I therefore support the Bill.
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.
Mr Bradshaw
Perhaps I can help my hon. Friend here. The city council in Exeter commissioned an independent MORI poll—the only scientific poll conducted during this process—and it was overwhelming in favour of unitary status. I would be very surprised if a local newspaper that has its ear as close to the ground as the Norwich Evening News would have misjudged the mood of the people of Norwich by giving such strong support to Norwich’s unitary bid.
Dr Whitehead
The hon. Gentleman has neglected to listen carefully to the points made so far in this debate, and to the idea of a variety of consultation devices to find out what people want in various areas. As has been said this afternoon, the councillors of all parties in Norwich overwhelmingly supported the aim of Norwich having unitary status. The idea that there was little or no support for this in either area is not sustainable.
However, it is true, as has been emphasised, that some members in county areas do not welcome the idea of unitary authorities in cities and towns within their county area. I cannot say that I am particularly surprised at that notion. Indeed, one issue that arose during those local government reorganisation consultations and discussions in the early 1990s was that counties, by and large, did not want those cities and towns to be removed from their overall county structure, and made strong representations to that effect. To say that some people in county areas might say that it would be nice to have their county council running a particular city or town is not surprising. That does not in any way undermine the central concern, which was reflected as long ago as 1889, that those towns and cities should have unitary status because of their particular position within those county areas, and the importance on a regional and sub-regional basis of many of those local authorities.
I speak as a former leader of a large city council when it was not a unitary authority, and I have been the MP representing that same city when it has had a unitary authority. I can say that the differences are enormous—for example, in terms of those cities having responsibility for their own services and their own arrangements and being able, among other things, to put to the people that simple arrangement that appears to have been missed in this afternoon’s debate. The Secretary of State has stated on this occasion and on other occasions that people do not particularly want to concern themselves with the structure of local government, but just want services to be provided. In a unitary authority, that is palpably the case. One authority is providing the services, looking after the city or town, and it is close to the people in that respect and accountable to the people as a result of what it does.
Mr Bradshaw
Does my hon. Friend also accept that the fact that Southampton’s unitary status was restored in no way impacted negatively on the performance of Hampshire? In fact, Hampshire is one of the highest performing county councils in England. We could say the same for Swindon and Wiltshire. The myth perpetrated by the Government and by the opponents of unitary status for cities—that somehow the counties suffer—is not supported by the evidence. On the contrary, they tend to do better.
Dr Whitehead
My right hon. Friend makes an important point. Indeed, the counties do better in many ways, because the concerns of a particular city, freestanding within a far less urban environment, are focused on that city, and the concerns of the less urban environment are focused in the county council. It is certainly true that after some slight ill feeling, and attempts to foist less up-to-date computers on the unitary authority when the equipment was divided up, the arrangements between Hampshire and Southampton have been very good. They have worked very well, and as my right hon. Friend correctly points out, the county has prospered in its way, and the city has prospered in its way, as a result of unitary status.
I know that the Secretary of State will have his way this afternoon. He ought to hang his head in shame because of the fundamental contradiction between what he says about localism and what he is proposing to do this afternoon, but he will undoubtedly have his way. My concern, among others, is that we should not, as a result of this vindictive and spiteful early legislation, lose the idea that unitary local government—particularly in cities and towns outside metropolitan areas—is palpably a good thing for those cities and towns, and ought to be pursued.
It is interesting, in terms of the historical full circle that we might come in the end, that the mechanism in the Local Government and Public Involvement in Health Act 2007 is essentially the same as the one introduced in the local government legislation of 1889. If a local authority wanted to make the case that it should become a unitary authority, that could be done without a huge upheaval, with the whole of local government being reorganised and commissioners going up and down the country.
Indeed, between 1889 and the present a number of local authorities became county boroughs over the years, without a crisis in local government or a series of legislative measures going through this House on local government as a whole. That was a method of securing the way in which people in those areas wished to be self-governed. That is at the heart of this subject, and that is what is being denied this afternoon. I hope that as a result of some of the corrections of the myths put forward in this afternoon’s debates, we can concentrate our attention on what is best for local government, not on what is best for particular people’s opinions on particular days about how they would like to see local government run.
Gavin Shuker
Dr Gibson is no longer a Member of this House so I do not see the relevance of the question. I can, however, assure the hon. Gentleman that when I was campaigning in the elections that were forced as a result of the Secretary of State’s decision, many of the people to whom I spoke were very much in favour of the proposal.
Mr Bradshaw
It may help if it is explained to Members that the Norwich North constituency straddles both Norwich city and Broadland district councils, so it is not surprising that the Member for that constituency has divided loyalties. The Norwich South constituency is wholly within the city boundary, and its MPs—both the Liberal Democrat Member whom we are looking forward to hearing from shortly, and certainly the former Member—have always supported unitary status, as, of course, have the vast majority of the democratically elected councils. As they supported this, why does the Conservative party, which often extols the virtues of local democracy and representation, not trust them?
Mr Bradshaw
Does the hon. Gentleman think that he would have won his seat if he had opposed Norwich’s unitary status?
Simon Wright
It would have made absolutely no difference, because during the election campaign not a single person raised the issue with me.
Mr Bradshaw
In which case, why did the hon. Gentleman support unitary status? Was he reflecting the views of his constituents, contrary to what the hon. Member for Broadland (Mr Simpson) has suggested?
Simon Wright
I expressed my views because, when one gets a call from the local newspaper, it is a good idea to answer. Of course I was going to offer my support for the principle of a unitary Norwich.
None the less, as I began to say, the boundary committee seemed confused about the process, too, and that led to legal challenges over its failure to produce more than one alternative scheme in its original proposals.
In 2006, the previous Government invited councils to apply for unitary status, and Lib-Dem-controlled Norwich submitted a bid, sensing an opportunity for the city to have a greater say over its own destiny. The bid was deemed at the end of 2007 to require advice from the boundary committee, which reported back in 2008, but following a series of legal challenges by district councils and the county council in a complex chronology of events, the boundary committee finally advised in December that a single unitary council for the whole of Norfolk plus Lowestoft would deliver the outcomes specified by the Government’s criteria for reorganisation, and that the original proposal of a unitary Norwich city should not be implemented.
In February of this year, Communities and Local Government Ministers announced that they felt the boundary committee’s recommendations did not in fact meet the necessary criteria and, furthermore, that they would be going back to the original proposal of a unitary Norwich. So, with a general election coming up, the Labour Government performed a complete U-turn on its previous assessment of Norwich’s bid. That was the death-bed conversion of a dying Government. Despite being a supporter of a unitary Norwich, I feared at the time that it was a convenient political fix to satisfy Norwich’s pro-unitary Labour council in the run-up to a general election.
A quick fix is certainly not what Norwich needs for the long term. We have to be 100% convinced that a model for unitary government in Norwich not only provides the benefits of localism, but is sustainable for the city and the rest of Norfolk. The previous Government’s quick-fix solution in February would have left Norwich with its existing city council boundaries, yet evidence from the Audit Commission suggests that the most effective unitary bodies are larger in size and have more widely drawn boundaries. The Government’s models did not address the boundary issue.
Norwich city council’s bid showed evidence of efficiencies, but another problem with the process was the volume of conflicting evidence that led to different conclusions. Although some efficiency savings can be made by going unitary, their extent is questionable, as is whether many savings can be made through improved joint working and shared services under two-tier and cross-district working. Progress on the latter has perhaps suffered locally in Norfolk, because councils were so unsure of their own futures until very recently. Efficiency savings, while an important consideration, have never been the most compelling argument for unitary government.
The orders laid in February by the previous Government to implement a unitary Norwich also included a provision to delay the scheduled elections in May for Norwich city council by extending councillors’ terms of office, thereby affecting 13 council seats in the city. As we have heard, Norfolk county council issued judicial review proceedings challenging the Government’s decision, and on 5 July this year the High Court quashed the orders in their entirety, including the extension of the terms of office for councillors. Thirteen councillors, many of whom had served with great distinction and for many years in public office, were simply stripped of their positions with immediate effect through no fault of their own. They did not deserve that, and some chose not to re-stand in the subsequent by-elections—a real loss to the city of Norwich of some fine public servants.
I am sorry that Norwich will not have unitary government this time. I hope that we will be able to look again at the issue and learn from the mistakes that were made. The process that the previous Government embarked on led to divisions and disappointments, and I feel a sense of deep regret, as well as anger, at the ill-thought-out process, which involved so much money and effort, promised so much in return, but delivered so little. After so much acrimony, it is time to move on. We will put the matter on hold for now, but I hope that we can return to it.
Chris Williamson
The hon. Gentleman is not listening to me. I did not say that that was the sole determining factor at all, and he should listen a little more carefully. I know that this is one of my first appearances at the Dispatch Box, but if he listened more carefully he might learn a thing or two.
Labour Members very much support the benefits of unitary status for local authorities.
Mr Bradshaw
Perhaps the Conservative councillors in Norwich, who after all represent only the fourth party on the city council, did not support unitary status because, unlike the brave Conservative councillors in Exeter, they succumbed to the bullying from Conservative central office and from the Conservative county council?
Chris Williamson
In my experience, and from the anecdotal information that I have heard from Conservative colleagues, Conservative central office certainly does have a reputation for bullying, and I suspect that my right hon. Friend makes a very significant and relevant point.
My right hon. Friend the Member for Don Valley (Caroline Flint), the shadow Secretary of State, set out our support for unitary authorities. We believe in the benefits of unitary councils, but so did the Conservative party, as my right hon. Friend said. The Liberal Democrats believed in them, too, so what has changed? Why the Damascene conversion? In the 1990s it was perfectly acceptable for the Conservative Government of the day to create numerous unitary authorities, yet now the Secretary of State says that there will be no more unitary councils or local government reorganisation, in spite of its ineffective elements whereby, as a result of the two-tier system, people often do not understand which local authority is responsible for what. It is a very inefficient way of delivering services.
Indeed, as in the case of Norwich and Exeter and, I suspect, other parts of the country, too, local people, councillors and businesses want a unitary authority providing the services with all the efficiency that goes with that status. Such local authorities have the ability to shape the place that they represent, to bring new inward investment and to create jobs and prosperity for the people in their area. The Secretary of State is riding roughshod over the wishes of not only the general public, but his own party’s councillors in Exeter. They have made their views very clear, but in an example of the bullying typical of the Conservative party when its members step out of line, their wishes have been disregarded, and those in other parts of the country have been sat on to keep quiet.
Robert Neill
I do not think that they were wrong, but although I am always interested in history, I am not a prisoner of it. Since the 1990s local government has developed mature and sophisticated means, which were much less well recognised then, of working jointly across boundaries. It is also worth remembering that several issues, which must be tackled—interestingly, they arise in the case that we are considering—require cross-boundary working. For example, the ambitions for economic growth and development in both Exeter and Norwich involve developing important sites outside the city boundaries. I have been to both cities; I have not simply telephoned. Many of the development sites, which in Exeter stretch towards the airport, involve collaboration with the district councils, which will be the planning authorities, and with the county councils, which will be the highways authorities, in those areas.
Ernest Newman described extracts from Wagner operas as bleeding chunks, removed from “Tannhäuser” or “Parsifal” to be used at a concert. Taking a city out is extracting a bleeding chunk, disconnecting it from its hinterland. The proposals that Labour Members advocate would be the worst thing for the welfare of the citizens of both cities and counties.
Mr Bradshaw
Why, then, did all the business organisations in Exeter, which also reach outside Exeter, support the city’s unitary bid?
Robert Neill
Because they had not realised the extent to which an incoming Conservative Government would encourage and facilitate joint working through creating local enterprise partnerships rather than remote economic development associations, and grant the power and general competence to enable local authorities to set up special purpose vehicles. We can answer the arguments very well, without incurring the costs of reorganisation, which is a distraction at a difficult time.
I shall skim briefly through the other contributions out of courtesy. My hon. Friend the Member for Great Yarmouth (Brandon Lewis), like several other of my hon. Friends, forcefully made the point about the need to recognise links. To remove considerable elements of the tax base from the two counties and leave sparsely populated areas with a lower tax base but with, as is generally accepted, the higher costs of delivering the full range of services across rural populations, would significantly undermine their ability to deliver quality services in their areas. That is why the views of residents of the surrounding county areas must be taken into account just as much as those of the residents of the cities. The Opposition have been conveniently silent on that subject.