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Policy, Governance, and Implementation

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Policy, Governance, and Implementation Evidence briefing paper Policy, governance, and implementation This evidence briefing paper summarises some of the key issues related to policymaking, governance and implementation in Wales, and reflects upon issues that we expect the incoming Welsh Government to face after the 2021 Senedd election. The paper presents evidence about the strengths and weaknesses of current approaches to policymaking, governance and implementation in Wales. While these may appear to be slightly abstract issues, they are very important for any government’s success. www.wcpp.org.uk Evidence briefing paper Key messages The next Welsh Government needs to give attention not just to what it wants to achieve, but also how it plans to do so. This means giving careful consideration 1to how it approaches policymaking, governance and implementation. Although the devolution settlement limits Welsh Ministers’ formal powers, there is a broad range of policy levers available to them. Ensuring that these are aligned 2with the Government’s priorities, and used in a coherent and coordinated way, will be key to strengthening the economy, tackling inequality and promoting sustainability. The current system of governance in Wales is complex and bureaucratic, and undermines the ways of working set out in its ground-breaking legislation that 3was designed to secure the wellbeing of future generations1. There appears to be little appetite for top-down restructuring and there are other ways to address current problems. But without a concerted effort to improve 4current approaches to governance and implementation, they will continue to act as a drag on efforts to improve outcomes for the people of Wales. The Welsh Government needs to play an active role in supporting, overseeing and, where necessary, challenging local and regional actors in their efforts to 5understand communities’ needs and aspirations; and to develop effective solutions that respond to them. It should be working with partners to identify and address the current fragmentation in national policy, and the associated accountability and financial structures that local actors encounter. At various points since devolution, efforts have been made to address the delivery gap in Wales. But this remains an issue, and there needs to be a greater 6focus on the processes of implementation. As policy is developed and introduced, it should be possible for those responsible to articulate: who is going to do what; what are they going to stop doing to create the capacity needed to deliver that policy; and what support will they receive to ensure that they have the necessary skills and resources. 1 This was the Wellbeing of Future Generations Act of 2015. Policy, governance, and implementation 3 The need to define an approach to governing A critical question in public policy is The limited range of formal powers how governments bring about change available to national policymakers in in society. Policymakers around the Wales means that this challenge is both world wrestle with this question. And more complex and acute. while policymakers are one of the most powerful actors, with direct control The impact of the Coronavirus pandemic, over some key policy levers – like taxes, and the public sector response, government expenditure and legislation have highlighted both strengths and – governments need to work with and weaknesses in the system. As Wales starts mobilise other actors to be able to effect to emerge from the crisis, attention needs change. to be given to how the Welsh Government will work with public services and other actors to achieve its aims. There are The impact of the three key areas where action will be Coronavirus pandemic, needed: policymaking, governance and and the public sector partnership working, and implementation response, have highlighted and delivery. Each is discussed below. both strengths and weaknesses in the system Evidence briefing paper Policymaking in Wales As the devolution settlement has evolved, The evidence that our research and other so the Welsh Government has had to studies have generated suggests that, in build its capacity and capability for making these decisions, the Government policymaking. It is still only relatively should: recently that it acquired legislative powers and a degree of control over • Consider the mix of policy tools taxation, and there remain some key required, recognising the broad range policy areas over which it has little direct of levers available to governments, influence. beyond fiscal and legislative powers. (These range from ‘hard-edged’ instruments, such as audit and There is a need for greater inspection, through to ‘softer powers’, coherence and coordination such as persuasion and capacity- across different policy building.); • Be ambitious and innovative in domains, and in the ways articulating policy objectives, but in which the levers available also realistic about the constraints to Ministers are deployed and limitations to what the devolved government can achieve; • Actively monitor implementation to The fragmentation of policymaking at enable policies to be fine-tuned and the national and local levels has been to hold actors to account for their an acknowledged issue since the earliest performance; days of devolved government in Wales, • Learn from evaluations and experience and it continues to be a challenge. elsewhere; There is a need for greater coherence • Proactively collaborate with and coordination across different policy stakeholders, and develop coalitions domains, and in the ways in which the of actors who can support and levers available to Ministers are deployed. supplement Government action; and The Well-being of Future Generations Act • Focus on implementation as a key part provides a framework for this, but it is not of the policy process, which starts in the fully embedded. Public bodies are still very early stages of development and working to realise its aspirations and fully is sustained right through to assisting embed its intended ways of working. ‘frontline’ or delivery organisations in their efforts to introduce change. As the Wales Centre for Public Policy’s work on the recovery from pandemic This will require a joined-up, whole highlights, the incoming Government will government effort, as well as effective need to clearly define a manageable set of governance and collaboration with priorities. Importantly, this means deciding partners, and a greater focus on what it intends to stop doing and what it implementation and delivery. needs to do differently, as well as what new policies it introduces. Policy, governance, and implementation 5 Governance and partnership working Collaboration has been at the heart This is underpinned by the recognition of the public service reform agenda in that efficient and effective public Wales for almost 20 years. Various efforts services should be citizen-centred and have been made to embed partnership responsive to local needs. Different working in the public sector at the local parts of Wales’ public service need to level, including through legislation and work together effectively to address funding arrangements. There has also ‘cross-cutting’ priorities, such as been a focus on leadership development reducing health inequalities, improving to nurture behaviours and cultures that educational attainment and transitioning facilitate collaboration. to a net-zero-carbon Wales. For this to happen, public sector bodies need to work together, across organisational Efficient and effective public boundaries, to share knowledge and services should be citizen- coordinate activity. The current systems centred and responsive to of governance in Wales, however, local needs present several challenges to this kind of partnership working. Evidence briefing paper The complexity of governance The recent OECD review of the governance arrangements of economic policy in Wales is the latest in a long line of reports to conclude that: In theory, a relatively small country “A significant rationalisation [of the layers should find it relatively easy to achieve of policy and service intervention] may ‘joined-up’ policymaking. However, with not be popular among all stakeholders multiple public bodies operating in Wales, but it would help better channel already often covering different geographical strained human and financial resources, areas, and with overlapping objectives and introduce greater clarity in lines and priorities and differing funding of responsibility, thereby boosting streams and performance regimes, the accountability. Furthermore, it may complexity of the partnership working reduce ‘co-ordination fatigue’.” landscape has long been recognised as an obstacle to fully coordinated action. It is not clear that there is appetite for the kind of top-down rationalisation As highlighted in the most recent review of partnership structures the OECD of governance structures, successive recommends. Nevertheless, incoming UK and Welsh Governments have Ministers need to be clear about the established a plethora of ‘strategic ‘architecture’ for delivering change: partnerships’, either in statute or to without meaningful efforts to address the manage specific grants. The number issues created by the existing overlapping and diversity of these partnerships, and structures, these will continue to hamper the blurred boundaries between their efforts to achieve positive change ‘on the remits, lead to inefficiencies, risk creating ground’. ‘silos’ between the different partnerships, and undermine transparency
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