Putting People First
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Putting People First Action Programme for Effective Local Government Department of the Environment, Community and Local Government October 2012 Putting People First Action Programme for Effective Local Government Department of the Environment, Community and Local Government October 2012 © Government of Ireland 2012 BAILE ÁTHA CLIATH ARNA FHOILSIÚ AG OIFIG AN TSOLÁTHAIR LE CEANNACH DÍREACH ÓN OIFIG DHÍOLTA FOILSEACHÁN RIALTAIS, TEACH SUN ALLIANCE, SRÁID THEACH LAIGHEAN, BAILE ÁTHA CLIATH 2, NÓ TRÍD AN BPOST Ó FOILSEACHÁIN RIALTAIS, AN RANNÓG POST-TRÁCHTA, AONAD 20 PÁIRC MIONDÍOLA COIS LOCHA, CLÁR CHLAINNE MHUIRIS, CONTAE MHAIGH EO (TEIL: 01-6476834/37 NÓ 1890 213434; FAX: 01-6476843 NÓ 094-9378964 ) NÓ TRÍ AON DÍOLTÓIR LEABHAR. ________________________ DUBLIN PUBLISHED BY THE STATIONERY OFFICE TO BE PURCHASED DIRECTLY FROM THE GOVERNMENT PUBLICATIONS SALE OFFICE SUN ALLIANCE HOUSE, MOLESWORTH STREET, DUBLIN 2, OR BY MAIL ORDER FROM GOVERNMENT PUBLICATIONS, POSTAL TRADE SECTION, UNIT 20 LAKESIDE RETAIL PARK, CLAREMORRIS, CO. MAYO (TEL: 01-6476834/37 OR 1890 213434; FAX: 01-6476843 OR 094 9378964) OR THROUGH ANY BOOKSELLER. _______________________ €10.00 ISBN 9781406427134 October 2012 CONTENTS Foreword by Minister i-ii Summary iii-xiii Part 1: Vision for Local Government in Ireland Chapter 1 – Vision for Local Government and Objectives of Reform ......................................1 Part 2: Local Government Functions - Doing More for the Economy, Enterprise and the Local Community Chapter 2 – A Wider Role ......................................................................................................10 Chapter 3 – Promoting Economic Development and Local Enterprise ................................. 21 Chapter 4 – Local/Community Development and Local Services ......................................... 30 Part 3: A Local Government System for the 21st Century Chapter 5 – Local Government Structures – Issues to be Addressed ................................... 45 Chapter 6 - Arrangements Within Counties ......................................................................... 47 Chapter 7 - City/County Level: the Core Element of Local Government .............................75 Chapter 8 - The Regional Dimension ...................................................................................89 Part 4: Local Government Soundly Funded, Working Better, Serving the Community Chapter 9 - Operational and Organisational Efficiency and Customer Service ..................106 Chapter 10 – Local Government Funding ............................................................................126 Part 5: Good Governance, Strong Leadership, Democratic Accountability Chapter 11 – The Elected Council, Executive, Oversight and Community Engagement .....132 Part 6: Taking Matters Forward Chapter 12 - Implementation and Further Development of the Reform Programme ...........165 Appendices: 1. Local Authority Economic Development Functions ................................................ 167 2. County and City Councils - Statistical Profile ......................................................... 169 3. (A) Town Councils (Rating) - Statistical Profile ..................................................... 170 (B) Town Councils (Non-rating) - Statistical Profile ............................................... 172 4. Local Authority Expenditure by Service Division 2000-2011 .................................. 173 5. Funding of Local Development Companies ............................................................ 174 6. Reserved Functions of Local Authority Elected Members ...................................... 175 7. Examples of Existing Regional Structures .............................................................. 188 8. Proposed Regional Assemblies .............................................................................. 190 9. Map of Regions ....................................................................................................... 191 10. Examples of Project Co-ordination Activities of Regional Authorities ..................... 192 11. Local Authority Income and Expenditure Categories .............................................. 194 12. Indicative Range of Allowances .............................................................................. 195 13. Glossary .................................................................................................................. 196 6 Foreword by Minister Local Government represents and serves the citizen. Uniquely, it is given a franchise by all residents in Ireland. Putting People First involves the most fundamental set of changes in local government in the history of the State from regional and county level through to the municipal level of governance. These changes are an integral part of the Government’s comprehensive programme to improve the way the political system serves our people. The reforms include: making our political funding system more transparent; increasing the participation of women; reducing the number of TDs; establishing the Constitutional Convention; and introducing legislation to address conflicts of interests, lobbying procedures and to strengthen our planning system. My Department has a key role in spearheading many of these reforms. This Action Programme, Putting People First, outlines Government policy for reform and development right across the local government system. The reforms put a strong emphasis on accountability as the bedrock of a properly functioning system of local democracy, providing for better engagement with citizens. I believe fervently in the need for Local Government to build strong relationships with and gain the interest of local people. However, Local Government structures in Ireland have not been updated since the 19th Century. I am renewing those structures and introducing more effective democratic arrangements, which will increase efficiency and provide better value for money for the people it serves. This will involve radical measures, such as a substantial reduction in the number of Councillors and the number of local and regional authorities. Local Government must also operate to the very highest standards. Putting People First introduces new degrees of accountability, transparency and external scrutiny, as essential pillars of local democracy. There will be a new National Oversight and Audit Commission with external expertise, which will provide a more robust system of Performance Monitoring with a focus on: key performance indicators, customer service and comparative performance of local authorities. I will strengthen the role of Local Authority Audit Committees and I will also review reserved powers under section 140 of the Local Government Act 2001 to ensure that Councillors will no longer be allowed to direct the executive in respect of planning functions. Local Government has been ahead of most sectors in the changes it has made to reduce costs and drive efficiency, with €830 million in savings made since 2008, and the sector is well on the way to achieving the €511 million savings identified in the Report of the Local Government Efficiency Review Group. I will ensure that local authorities continue to pursue the efficiency agenda vigorously, while maintaining essential frontline services and delivering the highest standards of customer service. i Putting People First reinforces Local Government as the primary means of public service at local level, harnessing the commitment of elected members and officials. For my part, I am committed to building stronger, more cohesive Local Government, giving it a greater capacity not only to address the challenges we face, but also to promote local community, social and economic development, and collectively to maximise the strengths of our country as a place in which to live, to invest and to work. At a critical time for our country, local government has a crucial role to play in Ireland’s national recovery. The Action Programme empowers Local Government in an entirely new way, particularly in relation to economic development, and most importantly, sustaining and creating jobs. This programme affirms the need for the system to embrace change, share the burden, modernise, adapt to new financial circumstances and deliver even better services with scarce resources. Over the last number of years, and particularly since I became Minister, I have consulted widely and have reflected deeply on how local government should be developed. It is now time for action and there is a keen appetite for change. This document is not only a statement of decided Government policy, it is a focused action programme for reform and it puts people first. Phil Hogan TD Minister for the Environment, Community and Local Government ii Action Programme for Effective Local Government Summary Part 1: Vision for Local Government in Ireland Vision for Local Government (Chapter 1) Local government will be the main vehicle of governance and public service at local level - leading economic, social and community development, delivering efficient and good value services, and representing citizens and local communities effectively and accountably. The reform programme is built around this vision, with a clear rationale for the role and potential of local government. Consistent with this vision, the functions of government at local level will be performed through the local government system to the greatest possible extent and local authorities will perform a wide range of appropriate functions. A key purpose