A Vision for Devon A Concept for a Four Unitary Pattern of Local Government in Devon
“To transform local government in Devon for the benefit of its citizens, the businesses which are located here, and the partner organisations with whom we work”
Submission by East Devon District Council for consideration of a four unitary authority model for Devon April 2008 Back cover photograph by Tom Hurley Please note all maps in this document © Crown Copyright. All rights reserved. 100023746. 2008 A Vision for Devon A Concept for a Four Unitary Pattern of Local Government in Devon
Contents
Foreword and Introduction 2 The Devon Context 3 Map of Current Devon Local Government 4 The Case for Change and the Options Considered 5 Proposal 6 Map of Devon Unitary Local Government 7 The Vision 8 The Preferred Option for Eastern Devon 9 Strategic Leadership 10 Partnership Working 11 The Voluntary and Community Sector (VCS) 12 A Governance Model for Eastern Devon 13 Broad Cross Section of Support 14 Neighbourhood Empowerment 15 Equality Based Community Cohesion 16 Relationships with Town and Parish Councils – Developing Their Role and Responsibilities 17 Value for Money and Equity on Public Services 17 Affordability 19 Conclusion 19 Main Contacts and Further Information 20 A Vision for Devon: A Concept for a Four Unitary Pattern of Local Government in Devon
Foreword and Introduction
It is my pleasure to submit to the Boundary Committee for England this prospectus, prepared by East Devon District Council, in response to a request that conceptual proposals are forwarded to the Committee by the 11th April 2008.
This prospectus has been prepared by the Council following consultation with its business community, town and parish councils, voluntary and community sector partners, other partners and members of the public. A clear message from this consultation was that key stakeholders in the county do not necessarily share the government’s view that the two/three tier system in rural England is broken. They genuinely believe that the traditional collaborative/evolutionary approach within Devon can continue to deliver effective strategic leadership, real neighbourhood empowerment and value for money and equity on public services. Every day we see meaningful improvements and the enhancement of a high quality of life that is the envy of many.
Nevertheless I understand that the failed bid by Exeter City Council to become a unitary authority is the reason why the Boundary Committee has been requested to carry out a review of Devon. The Committee has a complex job to do and its statutory terms of reference preclude it considering anything but a system of unitary local government.
Accordingly the Council and its partners have fully entered into the debate and have prepared this submission which promotes for further consideration the concept of four unitary councils in Devon broadly based on the four primary hubs for living, leisure and business/zones of influence that exist within the County reflecting the economic centres of Barnstaple, Exeter, Plymouth and Torbay. We believe that this proposal is exciting and has considerable strengths. It is future proofed thereby allowing these four unitary authorities to plan for and deliver necessary improvements within a secure and meaningful framework.
The Council looks forward to further positive engagement and dialogue, once the Boundary Committee for England has published for public consultation its considered options for Devon.
Cllr Sara Randall Johnson Leader of East Devon District Council (Oct 2000 to date)
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The Devon Context
Devon (which for these purposes includes Plymouth The Regional Economic Strategy (2006 – 15) has thus and Torbay), is a county of contrasts. It has a summarised five key issues affecting Devon in the population of some 1.1 million people and a decade ahead: geographical area of approximately 2,600 square • population growth, ageing and distribution; miles. It is the third largest county in England and the • business creation and retention; seventh most sparsely populated. • rapidly changing industrial and employment mix; • technological and other knowledge dissemination; Devon is a county of high environmental quality and is renowned as a tourist and retirement destination. It • energy, use of resources and climate change. has reasonable infrastructure links allowing access to larger markets than exist within the county More particularly the Regional Economic Strategy describes boundaries. For this reason and ‘quality of life’ the characteristics of the four main areas as follows: considerations it has a growing popularity for business Exeter – has a strong service sector based economy relocation, growth and development. However much and potential for further economic growth, in part by of this visible growth is based in the east of the virtue of its transport connections. Exeter City has county. The remaining parts of the county show tight boundaries and a substantial proportion of its varying levels of issues that require specific attention growth is east of the City in East Devon which and focus. The Regional Development Agency (RDA) requires cross border working with East Devon confirms that ‘the economy has not been particularly District on housing, economic development and dynamic in recent years, with the notable exception transport matters. Consequently it does have strong of Exeter’. In economic terms the north of the connections with Honiton and Exmouth. County is within a discrete area (described by the Plymouth – has significant manufacturing RDA as ‘the North Peninsula’) whilst Plymouth and employment and ambitions to be one of Europe’s Torbay feature within Western Peninsula and South finest, most vibrant waterfront cities. It has strong Central respectively. connections with the adjacent towns of Tavistock and Ivybridge. The current economic under-performance A number of pronounced spatial economic trends are of Plymouth impacts on the wider performance of acknowledged. These include: the Western Peninsula. Continued public and private • the increasing attractiveness of the County’s large sector investment is required to help Plymouth urban areas as centres for investment and the deliver on its ambitious Vision and make a more agglomeration of related activity; substantial contribution to the region’s economy. • a trend towards a smaller number of larger labour Torbay – is the focus for the tourist industry. It markets centred on these urban areas; continues to experience significant economic decline • ongoing structural changes in rural areas with the and has a very narrow economic base. It has an decline of traditional industries and difficulties in urgent need for a wider economic base. service provision; Barnstaple and Bideford – are the recognised • strong population growth fuelled by net in- centres for jobs, houses and services and therefore migration to the region, particularly from London need an integrated approach to their future and the South East; development. There are opportunities for a more diverse economy, utilising the high quality • the increased value placed on the environment, environment, enhancing higher education provision the environment as a driver for a sustainable (e.g. at North Devon College) and encouraging a mix economy and the need to achieve sustainable of businesses. The A361 link road between the M5 development. and Barnstaple/Bideford is an important route into the North Peninsula. 3 A Vision for Devon: A Concept for a Four Unitary Pattern of Local Government in Devon
Map of Current Devon Local Government
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The Case for Change and the Options Considered
The 2006 White Paper makes clear that all councils • Areas which are meaningful to their residents be they unitary or two tier must undergo huge and reflect physical and socio-economic change in the next few years to meet the challenges geography in terms of the ways in which people facing local government. live, move around and work. • Lean, low-cost but high quality authorities which Many of historic Devon’s people now live in the will deliver significant savings to the public unitary authorities of Plymouth and Torbay. The purse. residents of these areas are proud still to live in • Authorities of a suitable size to provide Devon though they live outside the current coherent and powerful voices at regional and administrative county. The Boundary Committee will national levels and which can effectively place recommend a common unitary structure across the shape. area of historic Devon. It is important that in doing so • Strong visible and accountable leadership for any emotional appeal of ‘flying the flag for Devon’ is the community balanced by a stronger role for not used to mask the reality that exists in many parts non-executive councillors. of England already. Historic counties still exist for • A model of service delivery and governance that many purposes even though the historic boundaries provides for services to be shared where do not reflect current administrative arrangements. possible, commissioned if appropriate, For this reason when we use the word Devon we delivered cost effectively and consistently and mean all of historic Devon. where accountability and decision making are devolved to the lowest level possible. Another consideration has been the failed unitary bid • Tangible and meaningful community by Exeter City Council. We did not support it and empowerment including participatory budgeting, were surprised that it only failed on affordability the transfer of assets to community and voluntary grounds. Frankly we thought it defective in other organisations and encouraging their involvement in areas too, not the least of which was its narrow service design. approach to strategic leadership and community engagement and the lack of recognition of the wider • Radical devolution to parishes and if a parish role that the city plays. structure is not appropriate then to neighbourhoods (local knowledge is paramount). Although cost is perceived to favour larger authorities it is also clear that aggregation increases remoteness • Structures that facilitate the transformation of from communities, reduces accessibility, accountability Devon’s relatively weaker economic areas into to people and increases the challenge of effective strong, vibrant and successful business partnership working. Furthermore the success of environments. public services depends on meeting diverse and • Equality based services that promote complex needs and very large authorities are community cohesion. institutionally ineffective in delivering to this agenda. • The ability to influence co-terminosity of service boundaries to drive accountability and Therefore in considering what a new pattern of responsibility across the public sector. unitary local government should seek to achieve we • Councils to be of a similar size so they can have an have acknowledged the following as key factors/ equal voice in any joint service arrangements. building blocks:
5 A Vision for Devon: A Concept for a Four Unitary Pattern of Local Government in Devon
Within this context our vision is that a change to a The concept reflects the spatial strategy set out in the unitary structure for Devon should act so as to draft regional spatial strategy that recognises the role transform local government in Devon for the of strategically significant cities and towns in driving benefit of its citizens, the businesses which are economic growth and housing growth and the Devon located here and the partners including government Local Transport Plan’s sub divisions of the county in with whom we work. supporting the overall spatial strategy.
As part of our consultation (see pages 14 and 15) we We conclude that four unitary authorities in Devon canvassed five possible options for discussion purposes. will strike the best balance between these factors and The clear preference of our consultees assuming be the best solution based on the criteria of this unitary is the only option, was a conceptual option for review. four unitary authorities based on the four primary travel to work areas/zones of influence that exist It meets all the submission criteria and will in due within the County reflecting the economic centres of course command significant community and partner Barnstaple, Exeter, Plymouth and Torbay. This is support. therefore the option that we have endorsed based on this feedback and the key factors/building blocks We are proposing the replacement of nine local referred to above. authorities in Devon by two new unitary authorities and the expansion of two existing authorities that can In taking this initial concept through to a worked up collectively meet the needs and expectations of preferred option we are clear that it can deliver on residents, customers and government for the future our vision but more importantly go beyond ‘joining of this area and the region. The considerable strengths up the work’ of eleven existing local authorities. In and energy of the authorities now in Devon will be their place could be a virtual public service for brought together and we can assure you that the residents and customers to be created with public journey to create the new authorities will be led by sector partners in each area. We have studied those Members and Managers with the necessary vision, recent unitary bids which have been successful and skills and character to drive forward the change are confident of the robustness of the unitary agenda. The quality of the people in local government proposals that we now put forward. in Devon is good and they will come together quickly and positively to make a success of these changes. They To this end we see this submission as a blueprint to will soon turn this proposal into a successful reality. show how the new authorities will work and to guide the new authorities in their formative period.
Proposal
Four unitary local authorities in Devon to replace the single area of focus thus overcoming the years of eleven existing authorities. (Figures used are 2006 frustration whereby Exeter has been the dominant figures). focus of the county. Approx. size of 240,000. Plymouth/Western Devon – approx. size of The four authorities will be: 310,000 taking in Tavistock and Ivybridge. Exeter/Eastern Devon – approx. size of 300,000. Torbay/Southern Devon – helping to ensure that the Barnstaple/Northern Devon – will ensure clarity of council can better serve its hinterland for the benefit focus and ensure that the new council will have a of the overall economy. Approx. size of 275,000.
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Map of Devon Unitary Local Government
7 A Vision for Devon: A Concept for a Four Unitary Pattern of Local Government in Devon
The Vision
We set out below the benefits of our proposals. They Benefits for parish councils: demonstrate how the need for local resident, • clarity of purpose from one local authority in community centred governance will be balanced with their area; the need for creating organisations of sufficient • local authority close enough to relate to and strategic capacity to attract high calibre members and contact; officers to work with partners to shape the future of • easier to resolve dual rating and resource issues; this area and the sub-regions and region in which they will operate. We believe the four unitary option • extension of parishes to unparished areas. does this well and also delivers considerable savings over the current structure for investment in the Benefits for local voluntary and community future. sector partners: • significant resource base from bringing together Benefits to all stakeholders: grants; • main needs met more effectively; • opportunities to develop voluntary & community • working with new authorities based on sub sector through procurement approach; regions that make sense; • ability to work across broader areas of new • leadership and partnership with four authorities of authorities for those who wish to; great capacity and influence but still able to relate • more cost effective; to needs of localities; • capture greater public value because of the • significant savings for investment in services; benefits provided by third sector suppliers and • rationalisation of asset base. volunteer; • reinvestment in the local economy and Benefits to people and communities: community, local responsiveness and accountability, which in turn enhances and • improved cost effective services; supports the new authority’s role as a place • they know who to go to and who to call to shaper and community leader; account; • greater opportunities for transferring community • customer centred services and responsive assets. governance in their communities; • all local authority services in community owned by Benefits for local public sector partners: one authority; • shared planning in unitary areas that make sense; • clarity in understanding people’s needs especially • mechanisms to work together to achieve shared in areas of deprivation; outcomes; • abilities to respond to diversity issues more • authorities of great strategic capacity and effectively; resources; • people able to influence what the authority does; • effective sub regional and regional voice; • visible and accountable leadership; • areas which will form a robust long term structure • focus on place shaping locally and authority wide. for public services; • effective areas for place shaping.
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Benefits for regional and sub regional partners: Benefits for Government: • clarity of voice and purpose from Devon through • guarantee of continued improvement with four large, capable and resourced authorities; reduced costs to save or reinvest; • strong support for developing regional and sub • four large, capable and resourced authorities regional planning; playing their part in delivering for area, city • coherent areas to deliver sub regional plans. regions and region; • effective appropriately sized Local Area Agreements (LAAs); • four authorities that reflect sub regions.
The Preferred Option for Eastern Devon
Exeter lies in a central location within the wider improvements should also be put in place to South West region, and it is situated at a crossroads complement transport links between these on the regional transport networks. It lies at the settlements and Exeter, particularly public transport centre of an extensive hub for living, leisure and links and rail services. business, the road and rail links of which connect eastern Devon with the wider world. This reflects its The city of Exeter has a large influence across this importance as a major focus for economic and area and we see the successful future of the city and commercial activity, with extensive travel to work its zone of influence as inextricably and symbiotically and retail catchment areas encompassing a range of linked. A new unitary council for this new area towns and rural settlements within the sub region. As (probably with new offices in a new community) is a consequence, the area’s importance as a regional the only option that will establish the following centre is great. benefits.
The vision for eastern Devon is that it should Arrangements that provide a strong improve the quality of life and opportunities for those strategic area: living in the whole area, conserving its historic • based on a natural sub region with spatial integrity heritage and enhancing its environment and setting and individual socio-economic footprints; within the wider landscape. The eastern Devon area should be developed so that the range, quality and • represent a discrete area within which people live, scale of cultural, retail and other facilities should move around and work; enhance the strategic needs of the wider sub region. • encompass those economic drivers pivotal to the The eastern Devon area will be a focus for strategic regeneration and prosperity of the Exeter sub economic development. Opportunities for job region; growth within Exeter and the other main towns in • able to work with wider city/sub regions to which the area should be promoted and encouraged, they are connected not just in Devon but also reducing existing imbalances between population and Somerset; employment and reducing dependence on • provide strong, effective leadership for commuting. The vision for the area also seeks to communities that already have common identity improve the quality of life and opportunities within and affinity; the other communities in the sub region. While local • comprise a logical area for community planning, employment opportunities, facilities and services in working with partners, and delivering local area these communities should be enhanced, agreements;
9 A Vision for Devon: A Concept for a Four Unitary Pattern of Local Government in Devon
• cohesive and understandable place in which the A new authority that provides value for money interests of diverse communities can be identified, • Through capacity to commission, procure and respected and reflected in how local government deliver the full range of services. is structured and works; • By delivering high quality services to national • builds on partnership working that is already standards whilst enabling local variation and established; accountability in outcomes and management. • gives a vibrant tourism and cultural mix with • By providing excellent public services in areas that opportunities for better linkage. can be co-terminous with other public, voluntary and private agency boundaries. Arrangements that can empower communities: • Through ongoing gross annual revenue savings of • Because they are closer to the people who elect at least £20 million after four years. councillors. • With council tax bills harmonised downward and • Through simplified and transparent governance able to make further savings (we have not and local accountability, reflecting the expectations included savings from rationalisation of services, of recent legislation and the aspirations of the contracts and buildings at this stage). White Paper. • Through discrete travel patterns with convenient Our vision is about the future of local government, access through arterial routes. Indeed the not self-preservation. Both East Devon DC and motorway, rail, airport and main arterial roads Exeter CC have established reputations as deliverers support and bind this new structure. of good high quality services but with a low council • Through local service delivery centred around tax. Neither of the two councils could be described local people and needs and reflecting the realities as proponents of high tax and hyperbole. This will be of mixed income communities. to the benefit of those current residents of Mid Devon DC and Teignbridge DC who would form part • Through community influence over service delivery. of a new authority but would also see clear benefits • Of a size to attract quality members and officers in terms of their levels of council tax. and to ensure that major services are not put at risk by the change.
Strategic Leadership
“The more an authority’s area We are clear that the Four Unitary model and matches the economic reality, particularly the Eastern Devon concept acting either the more likely that it will be through an elected mayor or a leader with a strong stable mandate will enable the new unitary council to effective in providing the represent the community in discussions and debates strategic leadership necessary with organisations and parts of government at local, to create prosperity.” regional and national level. Indeed the areas of the Mark Shepherd new authority already feature independently in regional Waitrose branch manager planning and the new council will have increased influence on bodies operating at a regional level.
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Partnership Working • spatial integrity – based on “real” place • geographic cohesion We would foresee a simple partnership framework for eastern Devon that enables all relevant parties to • accessible transport linkages. participate in a productive way: • The Local Strategic Partnership will be Travel to work patterns and retail catchment areas supported by thematic partnerships for relevant show congruence with the socio-economic areas programmes, for instance the Crime and Disorder described earlier. This spatial cohesiveness will also Reduction Partnership (CDRP) or local Business or enable community engagement in local decision Environment Forum. These would identify at a making – the proposed new authority will make more detailed level the contents of the Local Area sense to local people and the council will be a natural Agreement (LAA) and oversee its delivery at that community leader. level for the LSP. • A strategic public sector board to engage all Because the new council area will reflect the way principals of the relevant agencies to work people interact and live their lives, it will: together in support of the LSP and sustainable • Have a more cohesive housing market area than community strategy and in creating the virtual Devon. public service for each area. • Have a more coherent economic footprint – • Enabling all councillors to lead in bringing reflecting travel to work interactions. partners together to plan locally the delivery of • Have a more coherent cultural and leisure services and to tackle local issues. footprint – reflecting the patterns in which local • Developing and adopting the principles and good people take their leisure time. practice of neighbourhood management so as • Reflect more accurately how the private sector to support local partnership working and ensure a works. customer centred culture is developed from the • Provide a clear focus to transport initiatives and early days. for improving travel into the city from the surrounding hinterland. The White Paper stresses the importance of • Be freed from having to force policies, services partnership working and of LSPs in producing a and relationships between, say, Bideford in sustainable community strategy and delivering it Torridge and Seaton in East Devon (a distance of through a local area agreement. The White Paper is some 72 miles) that do not reflect the way the as much an agenda for partners as it is for local economy, housing markets or effective services government. The new authority will see all operate, or how people interact. However relationships with stakeholders as one of partnership residents of Seaton do shop in Exeter. It is their where each is respected and listened to and has the principal destination for non food shopping. opportunity to participate and/or influence at the • Be coherent as places, being based on level and to the degree it needs to be effective. communities that already work closely and interact well. Exeter College, for example, attracts An eastern Devon unitary is a natural public service large numbers of 16-19 year old students from area that will enable strong relationships between local Exmouth. The Regional Spatial Strategy recognises public agencies and a new level in shared and joined the complex functional relationship between the up services, particularly because this spatial integrity city and a number of towns in the sub region reinforces how people live their lives and interact. This including Exmouth, Crediton, Dawlish, Honiton is reflected in the Exeter and Heart of Devon Economic and Ottery St Mary. Partnership, the Exeter sub region in the Devon Local Transport Plan, the circulation of the Express & Echo and numerous other indicators. In other words a virtual unitary public service which will have:
11 A Vision for Devon: A Concept for a Four Unitary Pattern of Local Government in Devon
• Be polycentric – a number of settlements with • deliver services that the public sector is not best strong relationships but with individual equipped to deliver; characteristics. The new council will forge strong • relationships with clients that local authorities may working relationships with Town and Parish not always have; Councils (based on existing good practice that • services in areas of need where it is not economic already exists in East Devon) to reinforce the for the private sector to provide; identity of these individual settlements and will • jobs, training and volunteering opportunities other explore the creation of new parishes in non- sectors cannot provide; parished areas under the new powers. The new unitary will take this to a new level of community • operate effectively at a small neighbourhood level; interaction in decision-making. • bring added value through their own resources and social capital; The Voluntary and • help local communities and hard-to-reach residents have a voice and influence service Community Sector (VCS) provision; We would foresee that a new unitary would work • encourage good citizenship. with VCS organisations in a way that would see them being more influential and effective than they are Procuring services through commissioning by the new now. They will have a more effective voice through unitary plus bringing together disparate budgets will partnership arrangements that ensure their provide the chance to innovate and respond to best involvement and meet their needs and aspirations. value and efficiency challenges. They will be partners in creating the virtual public service for each area. The new authority would work VCS organisations are currently engaged in county with the VCS to achieve excellence and equality in wide consortia and partnerships but struggle to make public service delivery for all residents, rather than a sense of these arrangements over such a large area. top down approach of doing things to the sector, and Often county-wide structures impede delivery at a look to have services provided through appropriately local level. There are good examples of joint working supported VCS organisations wherever possible. which meet the socio-economic needs of the communities across boundaries. These will continue Joint working arrangements and agreements with the across the four socio-economic sub regions without VCS will have particular advantages: the constraint of county boundaries. The VCS will • help to prioritise and target resources where they support the transformation of the new areas of are most needed; Devon. They will energise local residents on local and • opportunities for the most disadvantaged and strategic issues which affect their quality of life and vulnerable residents; well-being.
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A Governance Model for Eastern Devon
Individuals to L identify needs O and wants S C Access to A E L information R Community V S Influence engagement to I C and action help identify C R service priorities E U T Towns and Local Councillors Community control/ D I Parishes (both parish and unitary) calls for action N Constructive E Y dialogues to S determine style I and scope of G service delivery N S Local Eastern Devon unitary T Partners A R Eastern Devon A unitary and LSP N D T to align service E delivery with key G partners to meet D I local needs E C Eastern Devon local L strategic partnership I S V C Strategic R responsibility for E R U commissioning Local Area Agreement T and co-delivery for Eastern Devon Y I of services N Y
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Broad Cross Section of Support
“As a businessman, I share the As a result of the consultation we carried out prior to belief that a unitary council submitting this concept for an Eastern Devon unitary based on the Exeter Travel we believe that our proposal does have support from a range of key partners/stakeholders/service To Work Area would be the users/residents. best way to ensure success.” Tim Ford In particular we identified the following five Managing Director of Fords conceptual/discussion options (with indicative only Complete Home Supplies Service population figures):
DEVON DEVON N (741) (540) (225)
PLYMOUTH TORBAY PLYMOUTH TORBAY PLYMOUTH TORBAY E (310) (275) (248) (133) (310) (275) (315)
Option 1: Unitary County Option 2: Unitary County but Option 3: 4 Unitaries reflecting larger Plymouth and Torbay TTWA for Barnstaple, Exeter, Torbay and Plymouth
N (225)
PLYMOUTH TORBAY E (248) (133) (315)
S (200)
Option 4: 5 Unitaries reflecting Option 5 TTWA for Barnstaple, Exeter, Torbay and Plymouth but Plymouth and Torbay staying as they are
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Option 5 was intended to allow attendees to submit Preferred alternative ideas for unitary structures within Devon. Total Number Percentage Option
We carried out four consultation events. The first Option 3 77 50 was on the 6th March at the AGM of the East Devon Business Forum. Present at that meeting were No Comment 29 19 representatives from some 23 businesses in East Devon. In addition we carried out three consultation Other/Option 5 17 11 events on the 13th, 18th and 19th March to which we invited all district councillors, town and parish Option 4 12 8 councillors, voluntary and community sector partners, Option 2 11 7 other partners and members of the public. In all some 153 representatives signed in as attending. Option 1 7 5 Their responses are set out in the table opposite.
The East Devon Business Forum was unanimous in supporting Option 3. On this basis we have concluded that the Four Unitary Option commands a broad cross section of support. This is particularly the case in respect of the proposed new Eastern Devon unitary.
Neighbourhood Empowerment
“A single unitary authority for work on stronger socially, economically and Devon would be too big and environmentally cohesive community boundaries. there are clear risks that the Our vision includes: authority would be seen as remote by local people and Providing Services Locally - Responsive services delivered locally that centre on the needs of hence less able to deliver customers not providers and which reflect local neighbourhood empowerment.” priorities and outcomes. Services that demonstrate Councillor Mike Green an understanding that needs and impacts are Beer and Branscombe Councillor different in different places, and therefore Leader of the Independent Group solutions will vary, especially in areas of deprivation.
We are clear that within the sub regions of Devon Enhanced local democracy - Ensuring communities neighbourhood empowerment has been established will influence decisions, ideally taking them in a range of formats and relationships developed themselves. Local councillors will be supported in with community groups and especially parish councils. their work and will have devolved decision making The new authority would improve this tried, tested and budgets. This will be a key early requirement and and valued model of working which builds on natural quick win for the new authority in its formative years links and common issues and concerns. The aim is to to secure ownership and embed this way of working
15 A Vision for Devon: A Concept for a Four Unitary Pattern of Local Government in Devon in its culture. Senior members and officers would be Equality Based tasked to ensure increased participation for communities and community groups to provide Community Cohesion them with a fair and equitable voice and the All authorities need to help people understand, opportunity to have their say and be listened to. respect and value the differences that go to make up communities. This responsibility is set in statute Local Community Ownership and involvement - through a range of equality duties and all services will The new authority will transfer management and challenge discrimination, promote harmony and ultimately the ownership of assets to the understand and meet needs where services may community. This will build on work done in advance impact differently. Again the challenge here is for to invest in capacity building and provide skills to strong and open leadership. people in communities as part of local working. Diversity brings economic benefits, but change and Place shaping will be at a local level, not just migration also create challenges. Creating cohesive authority-wide. People live much of their lives in a local communities based on equality and tackling community, whether a village or a suburb, and it will extremism will be an integral part of providing better be part of the authority’s leadership role to work with public services to the residents and the place-shaping partners to apply to these neighbourhoods a parallel role of the authorities. process to that which is applied to the whole area in terms of community planning. Decisions by partners The new council will be best placed to understand and the authorities themselves must not be made in the challenges of its area and work with communities isolation from an understanding of the wider implications and partners to respond. They will be local enough to for, and needs of, each community they serve. understand the underlying tensions of drivers and address them. Building the capacity of the community This requires the authority to provide a strategic and creating cohesive communities will be a cross- leadership and enabling role. The main elements will be: cutting principle underpinning all the policies and • A commitment to neighbourhood working will be work of the new authority. With sound intelligence, one of the core values for the new authority. good partnerships will be well placed to put in place solutions that work. •A cabinet portfolio (proposed at Deputy Leader level) will have specific responsibility for securing this approach to working by the authority and the We will collaborate to develop strong community portfolio holder will be supported by the overview leadership at all levels to engage with diverse and review committees in ensuring this happens. communities. Together we will tackle social tensions due to inequality, prejudice, discrimination or • The new authority will inherit a variety of service vulnerability by promoting positive community spirit outlets and other assets and will develop them to with equal and influential representation in local secure an improved approach to neighbourhood decision making for all. working or community based services for the future to reflect the core values they have adopted. We will use this information to tailor improved services to address economic and social disadvantage, directly through positive regeneration programmes and also by integration though all our activities.
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Relationships with Town and establish what form of community governance is best suited to each community or collection of Parish Councils – Developing communities. This will be undertaken with local Their Role and Responsibilities members playing a leading role in finding out what carries the broadest measure of support. “I would like to see a unitary council that is fully inclusive and The new unitary will continue to promote with the centralised around the Travel To Association of Parish Councils the Quality Parish Work area.” Council initiative through which the parishes can Sophie O’Connell draw down additional authority and powers. Seaton Town Councillor Each parish council is unique and will be respected as such. For new roles they will need support tailored Much of the area of the proposed new authority is to their needs and wishes. Some will take on parished and predominantly has town and parish additional services, others will want better councils. Our evolving approach has included work consultation. The new council will give support with parish and town councils, with jointly agreed through training and central services and strengthen arrangements for providing local services and the their role as local community champions by co- delegation of decision making in respect of planning ordinating work at the local level. Parish Plans are decisions. valued, their production supported and the new council will continue/build on existing practice to ensure that these plans inform local planning policies Parishes will be full partners with the new and decisions. All of this will reflect the core value of authority and will work together to address the the new authority to work in partnership at a local democratic deficit in our communities. A review of level. unparished parts of the new unitary area would
Value for Money and Equity on Public Services
“The wider Exeter area will Our vision to transform local government in Devon become a focus for strategic has as an integral part the transformation of the economic development. contract between public services and the communities they serve. Opportunities for job growth within Exeter and the other The creation of strong, visible and accountable main towns in the area should leadership is at the heart of our proposals and it is be promoted and encouraged, the leadership be it elected Mayor or Leader (each rebalancing population and elected for a four-year term) that will champion the employment and reducing delivery of services in effective, efficient, integrated dependence on commuting.” and coherent ways. David Lockwood Senior Partner in Stags Estate Agents The approach to service delivery encapsulated within and Auctioneers our proposals is that services should be shared where possible but that decision-making about service
17 A Vision for Devon: A Concept for a Four Unitary Pattern of Local Government in Devon
levels, design and specifications should be This is an approach that already works and ensures devolved to the lowest possible level. that an effective balance is achieved between value for money and engaging the wider community. This A key feature of the Eastern Devon unitary would be approach will enable us to combine low cost the move from traditional approaches of service services with high levels of citizen engagement delivery and contracting to a new approach based and influence over the precise level and service around enabling and commissioning. In developing quality provided to the area in which they live. the detailed business case, each individual service element will be analysed to facilitate a radical re- A key role for non-executive Councillors will be modelling of service delivery within the sub regions to lead locally through advocating and driving or pan Devon if this remains appropriate. Wherever improvement at the lowest level. This will be key to appropriate, services would be shared and managed striking a balance between a powerful executive able at a multi-unitary level but with democratic to drive forward the economic development and accountability. This is particularly the case where it is growth agenda with the need to empower and either most cost effective to do so, and/or where engage citizens in the democratic process. there is a requirement for specialist expertise, and/or where this best facilitates joint arrangements with key We are proposing democratic arrangements that partner organisations such as the Constabulary or establish clear responsibilities for a series of portfolios Fire and Rescue Service. Examples of where we aligned to community and government priorities. might expect to retain joint arrangements might These portfolios need an effective management include strategic planning, transport and pensions. If it arrangement within the organisation through which should be that some services are organised at a pan- they can deliver real benefits to the community. The unitary level they could be overseen by a Shared new unitary will have a streamlined management Services Trust drawn from each of the unitary structure to achieve government expectations based authorities. around People, Place and Performance & Capacity.
This body could have two key roles, firstly to oversee People will bring together the cabinet portfolios such the range of shared services which will operate on a as Health and Wellbeing, Children, Young People and pan-unitary level, and secondly to act as the voice of Families and Vulnerable People into a single, people- local government for Devon. Relevant key partner centred, programme which adopts a ‘whole-person, agencies such as the Primary Care Trust(s) and the whole life’ approach. The new unitary will ensure Constabulary will be invited to work with the Trust that all residents can make positive choices that Board in order to facilitate the governance of services impact on their health, development and well-being shared beyond the immediate local government family. regardless of personal circumstances.
However the service level and quality required in Place will bring together the cabinet portfolios of each unitary area will be determined at the level of Environment, including all aspects relating to physical each individual council. Thus services could be planning, regeneration and economic prosperity, managed or commissioned at the level of the housing management, climate change and community individual council. We would also seek to devolve safety. The objective will be to shape and maintain both budget and a significant number of services to prosperous, healthy, clean, green and safe towns, parishes or neighbourhoods who will be able communities where the residents and visitors of each to determine their own service requirements. area can be proud to live, work and visit, and where businesses want to invest.
18 www.eastdevon.gov.uk
Performance and Capacity will ensure that so as to delivered. It will be customer driven and systems deliver the outcomes for local communities in our based focused with three main sets of customers: proposals the new unitary will need to change residents and other users; members; and officers radically the way support services are structured and delivering the People and Place agendas.
Affordability
We are confident that the four unitary option will We therefore believe that the four unitary option is deliver demonstrable financial benefits. Although affordable, offers excellent value for money and will detailed savings and budgets will need to be prepared have a beneficial impact on council tax levels for we are confident in setting prudent targets that will future years. ensure: • ongoing gross savings in excess of £20m per year In addition the four unitary authority solution will from 2013/14 from senior management, support deliver further efficiencies in front line services. At services and democratic arrangements; this stage a prudent target of £8m annual savings is • all costs of transition and shadow authority costs assumed, with further savings possible from enhanced being recovered in four years; procurement and rationalisation of office and other accommodation. Finally, a unification of service • council tax levels being harmonised to the lowest delivery at a local level will also reduce the liaison and level in each Unitary Authority; consultation costs for our partners in all other • further ongoing savings based on a history and sectors. In line with the guidance we have not tradition within both East Devon DC and Exeter modelled any of these savings but assume they would CC of careful control of costs. contribute to the Gershon targets for each authority.
Conclusion
We have presented a considered case for four unitary It will be for the new authorities to agree and authorities, focusing on Eastern Devon that will meet implement their own arrangements and we present the expectations from local government as articulated this as a blueprint for a structure, culture and ethos in the White Paper and, perhaps more importantly, for how modern local government could operate deliver improved services for local communities. effectively in Devon.
We have been radical where we see the benefit of this approach, but pragmatic in recognising that there are existing arrangements that do work and need to be retained and enhanced rather than dismantled.
19 A Vision for Devon: A Concept for a Four Unitary Pattern of Local Government in Devon
Main Contacts and Further Information
This proposal is submitted to the Boundary Committee This document was prepared and designed in-house on 11 April 2008 on behalf of East Devon District for publication on our website. It is also available in Council by: ordinary print, large print, audio format and other languages upon request. Sara Randall Johnson, Leader Mark Williams, Chief Executive We understand that, between 14 April and 4 July, the Boundary Committee will consider the initial ideas for East Devon District Council unitary local government in Devon that are submitted Knowle by the eleven existing councils and seek information Sidmouth EX10 8HL from those authorities and other stakeholders. On or around 7 July, the Boundary Committee is expected to publish its draft proposals for public consultation Telephone: 01395 516551 through to 26 September. Fax: 01395 517507 Email: [email protected] Further information will be made available on our website www.eastdevon.gov.uk.
20 East Devon District Council Knowle Sidmouth EX10 8HL
Telephone: 01395 516551 Fax: 01395 517507 Email: [email protected] www.eastdevon.gov.uk