A New Single Unitary Council for

many voices, one vision One Cumbria - Many Voices, One Vision One Cumbria - Many Voices, One Vision

Cumbria Council’s submission to the Boundary Committee The Council believes that a Contents single for • Introduction ...... 3. . • Vision and Executive Summary ...... 4. . Cumbria is the only model • Delivering the Vision ...... 6. .

• Characterising the Needs of Cumbria ...... 8. . which can deliver any prospect • A Single New Unitary Authority for Cumbria of quality services, efficiency Making Cumbria's Voice Heard ...... 14

Meeting Local Needs - Community Leadership ...... 18 savings and significant influence

Strengthening Strategic Capacity ...... 22 on the regional agenda. Improving Performance ...... 28

• One Cumbria - The Financial Case ...... 32 . . Resolution, 23rd January 2003

• One Cumbria - One Council ...... 34. .

Rex Toft Mike Ash This submission gives clear expression to the nature and style that the new Authority should adopt and to Leader of Cumbria Deputy Leader of County Council Cumbria County Council the critical issues facing it. However, it does not presume to design either the political or management structures of the new Cumbria Unitary Council. Those will be matters for the new Council to determine following consultation and the decision of the Secretary of State.

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The Executive Summary Our vision for the new A Clear Vision - focused on Cumbria's future needs Cumbria represents a unique challenge for Even as a single unitary, the new authority will have a unitary local authority: effective and efficient . smaller population than many others in the UK. We This submission demonstrates a compelling, must not reduce council size to a level where the best evidence-based case for choosing the most politicians and officers are not attracted to work for it. effective and economic response to that a powerful force for the • Strategic capacity… by generating sufficient challenge. It backs up a vision that is founded critical mass to address complex service development, upon a realistic mix of experience and procurement and modernisation issues such as people and businesses ambition. Louis Victory strategic service partnerships, e-Government and Chief Executive of We believe that this vision is the only viable sub-regional economic regeneration. of Cumbria Cumbria County Council option to deliver on these issues: Cumbria’s recent experience with major innovations • Community Leadership… by giving Cumbria’s demonstrates that a sufficiently strategic approach is We see one powerful new authority that makes a difference, here diverse communities the weight they need to influence essential to deliver effective modernisation. Only a regional and national policy makers. single unitary authority can provide the energy, expertise and influence which are needed. in Cumbria, across the region, and nationally. We also see that authority Only a single unitary authority can provide the necessary leadership that Cumbria demonstrated • Simple, effective and accountable local delivering the best local services and providing best value year on year. during foot-and-mouth, including the development of government… by ensuring a single point of a nationally regarded rural regeneration agenda. customer contact and guaranteed high standards of service for all local authority functions across • Community Engagement… by providing the level The new authority will be open and accessible. It will enable Cumbrians Cumbria. of organisational support for delegated decision to easily influence, shape and make use of all local services. making at a local level which only a single unitary for Only a single unitary authority will have the capacity Cumbria could offer. to deliver such standards. Only a single unitary will build on Cumbria’s national • A smooth transition to unitary Local people and communities will have a significant voice in determining reputation for devolved neighbourhood and local area government…by minimising disruption to existing working to empower the individual communities with organisations dependent on Cumbria-wide coverage policies and strategies, and these will be implemented by a single which people identify. and giving greatest continuity to employees and partners. • High performing services… by exploiting large- organisation with sufficient resources and capacity to be truly effective. scale synergies between services such as social care Only a single unitary authority will minimise disruption and housing, education and children’s services, and maximise the potential for streamlined funding and highways maintenance and centre management reporting arrangements to the myriad of (particularly The new authority will reconcile the diversity of competing interests in across an adequate population size. voluntary sector) organisations already operating at the Cumbria-wide scale. Cumbria and represent them coherently, regionally and nationally. Only a single unitary authority can deliver high-powered management of these services that will Already Cumbria is 28th in population terms enable full integration of functions without undesirable among the 34 English . joint management arrangements between smaller This adversely affects national funding and the councils. power with which we can press the interests of Cumbrians regionally and nationally. • High quality political and managerial leadership… by offering sufficient scope, breadth To go for anything less than a Cumbria-wide of responsibility and capacity to attract and retain the new unitary Council risks sending this best in local leadership. wonderful part of into powerlessness and depression compared with the big Councils in the north west region.

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Delivering the Vision

• The County Council believes that a single unitary • The expectations of Government and local tax • Our submission provides an evidence-based • The chart below illustrates how a new unitary authority for Cumbria is the only model which payers form the specifications for a new and argument to support the case for a single authority will build on existing strengths and can deliver any realistic prospect of quality vibrant authority - one that has the capacity to unitary authority for Cumbria to deliver the eliminate weaknesses to provide real benefits for services, cost effectiveness and significant be innovative, responsive to local communities agenda for a modernised local government. the whole of Cumbria and it's local communities. influence on the regional agenda. and provide better value and one that can make a significant impact regionally and nationally.

CUMBRIA 2003 CUMBRIA 2006 where Councils are now CHALLENGES One Unitary Authority AND • County delegation to local commitees & • One clear vision neighbourhood forums OPPORTUNITIES • Clear identity - understood by local people • Cumbria Strategic Partnership (CSP) & Local Strategic Partnerships (LSPs) • Strengthened local decision making

• High performing County education authority • Empowered local communities

• County regeneration success including creating • Community Leadership • Citizen access & participation • Aligned & focused partnerships

Strengths innovative regeneration companies • Community Engagement • Clear vision of community well-being • Improved ability to manage conflicts internally • County economies of scale: education, social services & highways • Sustainable communities • Framework of standards & accountability • Strengthened regional influence • County service and partnership innovation • High quality political leadership • Devolution to encourage diversity & creativity • Increased capacity to build and deliver

• Clearer accountability Community Leadership Community

• One efficient and cost effective Council Seven local authority bureaucracies causing: • Effective, convenient local government • Sound financial management • Shared skills, better services • Fragmented service delivery & regional influence • Innovative • Front line flexibility • Improved performance • Strategic capacity • More choice for customers • Duplication • Improving, managing performance • Enjoy the confidence of • Combined resources • Limited capacity • Maximise partnership potential customers & partners • Good recruitment and retention

• Confusion for the public • Locally responsive aknesses • Lack of co-ordination • Equitable

We • More flexible & accessible services • Artificial internal council boundaries BETTER VALUE

BETTER SERVICES Quality Services CUMBRIA 2003 CUMBRIA 2006 where Councils are now One Unitary Authority

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Characterising the Needs of Cumbria

Unique context Scale and sparsity Landscape and environment Infrastructure and communications

Cumbria is a unique county that justifies a unique The Cumbrian land mass shapes one of England’s Cumbria contains all of the Lake as well The M6 creates Cumbria's ‘spine’ of 97km of approach to local government. Even Carlisle, it's most recognisable and well-defined counties with as closely associated parts of the Dales motorway through the east side of the land mass. largest settlement, contains less than 70,000 people. 73% of residents showing fairly or very strong sense National Parks (Map 9) and four Areas of In addition there are 357km of trunk roads and of belonging at the time of MORI research in the The next largest, Barrow has a population of less Outstanding Natural Beauty (Map 30) in Allerdale, 355km of principal and non-principal roads. 1993 review. This sense of geographic identity is than 60,000. No other town has more than 26,000 Carlisle, Eden and South Lakeland. The County Significantly a network of 3729km of unclassified growing stronger. residents, with 70% of settlements containing less Council collaborates closely with the National Park roads is also the County’s responsibility (Map 5). than 200 people. And yet there are all the major Cumbria is naturally defined by the Irish Sea to the Board and others on an integrated approach to East – West communication is of critical importance problems of industrial decline and urban and rural West, the Solway Firth and Morecambe Bay to the managing these world-class environmental assets. poverty experienced in more populated areas. North and South and bounded by the North to the prosperity of the West and South of Pennines to the East. Cumbria is exceptionally rich in biodiversity. Cumbria. The A66, A595 and A596 are of strategic These conditions pose a set of real This richness is reliant upon an approach to land- importance and Cumbria has been instrumental in The Cumbrian land mass also comprises England’s challenges for any model of future use and development which can take a sufficiently driving forward the Carlisle Northern Development third sparsest county with only 0.7 persons per local council: strategic view to water quality, farming practice, route as a key to unlocking access to West hectare, compared with the England and • How to deliver cost-effective services to a average of 3.2. Even this figure masks areas of tourism, energy generation, waste minimisation and Cumbria. super-sparse population extreme or super-sparsity such as Eden, England’s other key factors. Rail links are also important with the West Coast sparsest shire district with an average density of Cumbria County Council has developed with mainline running parallel to the M6. Also important • How to adapt national policy to fit rural and 0.23. The combination of sparsity, remoteness and Lancaster University, an International Centre for are the coastal route via Workington to Barrow, the isolated urban settlements pockets of deprivation presents Cumbria with Sustainable Uplands. This will develop innovative link from Barrow to Carnforth and, particularly in unique challenges. • How to be heard and achieve influence in a solutions for the future of rural communities and is tourism terms the Carlisle – Settle trans-Pennines region, often driven by a metropolitan agenda Cumbria’s total population at 487,800 is already based on a broad understanding of issues across the line. In total 15 stations serve Cumbria and the considered at the margins of viability for key whole Cumbrian upland area and its hinterland. County Council is working with rail operators to • How to be in touch with the needs of real services such as education and social care. improve these services (Map 6). communities at the same time as meeting the In settlement terms Carlisle is the only shopping other, apparently contradictory challenges and service centre of regional significance. A new model of local government A new model of local government A new model of local government for Cumbria must therefore: for Cumbria must therefore: Only a single unitary Council for Cumbria can for Cumbria must therefore: • Recognise the cohesiveness of the Cumbrian deliver credible solutions to all these challenges. • Enable transport planning which is broad Only this model takes full account of and capitalises • Provide sufficient critical mass for the land mass, centred on the Lake District enough to address access across the on the County’s unique qualities. management of modern core services • Enable effective, strategic land-use and land Cumbrian land mass, acknowledging the interdependence of it's communities The remainder of this section develops these • Acknowledge that although geographically management planning which minimises the challenges further in the context of the character large in scale, and very diverse, there are need for clumsy joint responsibilities • Provide sufficient weight of influence to lobby of Cumbria, setting out a series of tests against common issues of sparsity and deprivation • Permit and foster innovation and leadership, for Cumbria’s needs in the context of a which any future model will need to be measured. across the land mass capitalising on Cumbria’s growing national regional agenda for investment which favours profile in rural sustainable development Metropolitan and North-South links

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Economy, regeneration and inequality the first Rural Action Zone and the first Rural The plethora of organisations is a reflection of Effective, joined up public administration Regeneration Company. precisely the wrong response to geographic size. Nearly 15 million people a year visit Cumbria, Cumbria now has seven local authorities with the This has been reorganised in a recent change in generating over £400 million in direct tourist These innovative organisations have depended on of Allerdale, Barrow, Carlisle, Copeland, which one Chief Executive has been appointed for the vision, energy and power of the County Council related spend. Balancing this well-known strength is three PCT’s, and we have little doubt this ‘merger Eden and South Lakeland. To meet the special a world-class manufacturing sector with a number and have secured multi-million pound Government trend’ will have to continue across Cumbria. It needs outlined in this section, the County Council of international firms and a particular specialism in funding by demonstrating that Cumbria’s economic reflects the key issues of ‘spend versus effectiveness’ has already evolved in ways that are very distinctive energy based on the nuclear and gas industries. problems can only be tackled at a strategic level. with which this submission is concerned. and unique. They seek to fundamentally change the context for Cumbria's farming sector is undergoing radical In the Education sector, the lack of a broad-based The creation of 55 Neighbourhood Forums investment in Cumbria. changes following the Foot and Mouth epidemic. Cumbria Higher Education facility is acknowledged together with six local committees (Map 31) since This disaster demonstrated the fragility of this A new model of local government by all partners as a key weakness for the County. 1993 gives Cumbria the highest level of local sector and the inextricable links across Cumbria for Cumbria must therefore: The County Council has had a major leadership delegated authority of any English County. between farming and tourism, between agriculture impact on this issue, culminating in the recent Although Carlisle is the administrative centre, • Acknowledge and respond to the physical and and support industries (such as construction) and report by Sir Brian Fender for the Higher Education there is no ‘County Hall’ and employees are economic interdependencies of urban and between the countryside and market . Funding Council, which found that only by dispersed very effectively in a number of community rural, East and West, North and South Cumbria collaboration across all existing Cumbrian providers based locations, giving the County Council a higher Cumbria’s urban communities have also • Give leadership to regeneration activity at a could a modern, progressive and diverse higher presence in the community than any other experienced traumatic changes. Reduced scale which can address the underlying causes education consortium be created. comparable organisation. employment in ship-building and other traditional rather than simply treating the symptoms sectors has resulted in many leaving the labour As a Local Education Authority, Cumbria manages The County Council has been able to achieve this market through redundancy, long-term sickness and • Have the financial breadth and capacity to 42 secondary (Map 19) and 289 primary schools level of delegation because of its size and capacity early retirement.The nuclear industry is also set to meet the needs of deprived communities (Map 20) with 23 independents and already to centralise effective administration whilst considers itself at the margins of viability in terms decline.There are high levels of unemployment in exacerbated by isolation and remoteness devolving powerful decision making. of securing staff and providing adequate curriculum some areas, especially for youth. Many other public and voluntary organisations have and special needs support. An important current Overall, 11% of Cumbria’s wards are in the top A healthy and learning Cumbria innovation is the use of rural schools to support found it essential to operate at a county-wide basis 1000 most deprived according to the Index of the wider needs of their community through the too, reflecting the same balance of capacity and Collaboration and the need for effective outreach Multiple Deprivation, particularly in Workington, extended schools programme. influence. working are key features of both the health and Whitehaven and central Barrow. The remoteness education sectors in Cumbria. The health of these urban and rural communities exacerbates A new model of local government • Avoid triggering a lowest-common denominator community in Cumbria is overseen by the Cumbria the experience of deprivation and unemployment. in Cumbria must therefore: approach, with small local authority areas having and Lancashire Strategic Health Authority: this • Encourage and give leadership to large-scale low capacity and influence Traditional regeneration activity led by Cumbria’s includes two Acute Trusts, with key hospitals in multi-agency collaboration in order to deliver local authorities had failed to make a radical Carlisle, Kendal and Barrow (map 25). There are • Continue to work effectively with other difference to these conditions. In response, the the quality of services essential for improved also four Primary Care Trusts (map 8) and one educational bodies (HEFCE, LSC, County Council has led the creation of the first performance by the work force Mental Health and Learning Disability Provider Connexions etc) on a Cumbria-wide scale non-metropolitan Urban Regeneration Company, trust.

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Cumbria - Diverse and Unique

Particularly significant are the Cumbria Tourist A new model of local government Board and Cumbria Inward Investment Agency, both in Cumbria must therefore: sharing local government’s twin objectives of local • Maintain and enhance the capacity to delegate representation and external influence (Map 7). decisions to communities which people can The voluntary sector in particular is very closely really identify with aligned with Cumbria-wide governance and has • Ensure minimal disruption to the boundaries found the need to operate at this scale to provide or relationships under which other Cumbria- adequate support to communities of interest (e.g. wide organisations operate Cumbria Deaf Association, Cumbria Cerebral Palsy • Invest in voluntary sector support Society,Victim Support Cumbria). organisations with the scale to work To make these services viable requires building • Keswick Town Centre • Furness Business Park - Barrow strategically critical mass and developing an ability to lobby and campaign on issues of mutual concern. • Ensure effective engagement with minority groups This has particular implications for equality issues in a future unitary council. Cumbria has made slower Conclusion progress than many authorities in this area, in part because of low representation of widely spread This document will go on to address these minority groups. Progress would slow down with challenges, demonstrating that only a single unitary smaller Councils, some of which would have, authority for Cumbria can balance the competing for instance, little ethnic mix. demands required of modern local government.

With such a range of influential agencies A single unitary authority for Cumbria might be independently choosing Cumbria as their frame of unique in the English context. However, as this • Maryport Harbour • M6 at Tebay reference, the County Council has played a key role section has demonstrated, Cumbria demands this in encouraging cooperative approaches kind of innovation because of its special (e.g. Cumbria Disability Network); improving characteristics.

service delivery (e.g. Citizen’s Advice Bureaux); A central tenet of the Government’s policy for and the significant success of supporting in excess regional government is to encourage locally of 200 people from Kosovo. distinctive and relevant responses to the needs of modern governance.This case will demonstrate how Cumbria deserves a distinctive approach.

• Show 2003 • Dixons Chimney - Carlisle

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A Single New Unitary Authority for Cumbria

Making Cumbria’s Voice Heard Influence through connecting interests Quote from draft CRED report for Carlisle Council: Creating one new unitary authority is the best way to influence regional and The solutions to the challenges faced by Cumbria’s communities can only come through cooperation national policy makers, giving Cumbrian communities the voice they deserve. ..there is concern about the between diverse and historically very fragmented interests which in the past have obstructed creation of a unitary authority in A single new authority for Cumbria will: progress. Whether the priority is improving road Allerdale-Copeland which would access to West Cumbria and Furness, upgrading the have a relatively high level of • Create powerful, cohesive and coherent • Articulate the needs of diverse rural and urban quality of Further Education provision or leadership for Cumbria communities deprivation and reliance upon regenerating the economy of Rural Cumbria, the certain industries for employment • Ensure Cumbria is heard regionally and answers will only be delivered by cooperation, not • Engage effectively with both strategic and local prospects.. nationally partnerships confrontation between urban and rural areas,West and East Cumbria, Lake District National Park versus the rest, public, private and voluntary would lack the capacity and influence to engage Influence at regional level WHERE WE ARE NOW - 2003 sectors. effectively at regional or national level. From the regional perspective, a single partnership Influence through partnership Physically, geographically and culturally, Cumbria is with Cumbria will be essential. Economic To tackle the key issues that people want addressed extensively interdependent, relatively self-sufficient Over the next five years Cumbria's two nationally regeneration is the key to the aspirations for well- in their communities, all Unitary Councils in the as a whole, consisting of communities and economic innovative regeneration companies are expected being in Cumbria.The North West Development North West will need to develop policy, funding and sectors which are reliant upon each other for their to draw down over £350 million to regenerate Agency has already indicated its intention to focus influence to exploit opportunities regionally and mutual success. Most obviously at a national and Cumbria's economy. its local strategic action through five sub-regional nationally. Whether the focus is on delivering a international level it is the globally recognised partnerships in the North West. One of these is This influence was created by the County Council prosperous economy, modernising schools and ‘brand’ of the Lake District that will influence the Cumbria Strategic Partnership which the pulling together public voluntary and private health services or maintaining clean and safe streets, potentially beneficial investment decisions. County Council created with partners.This organisations and by developing a real partnership tackling these complex aspirations will require many The debate about future land-use and potential direction for NWDA already suggests that new with the North West Development Agency. competent agencies and interests to work together economic regeneration within the National Park unitary authorities below this level will be at an adequate scale around a complex shared has immense direct importance for the closely ineffective in regional working. Major inward investment has been attracted agenda. connected periphery (West Cumbria/Furness, Eden through concerted lobbying and now - for the first Influence through legitimacy valley etc). At the national level, Cumbria has demonstrated time, a cross-sector partnership is able to speak on two recent occasions that by working together For too long, Cumbria’s ambitions have been for Cumbria with one voice.The leadership and To give legitimacy to partnership working of this on the larger scale it can truly make its voice heard. thwarted by ignoring such interdependencies, and coordination provided by the County Council was kind requires a council that can clearly speak with Firstly in 2001 following Foot and Mouth Disease, by internal squabbles blunting efforts to speak critical to this success. authority for the local communities to which it is the Cumbria Rural Action Zone proposals arising clearly to regional and national interests. In recent directly accountable. from the County Council-led Task Force resulted Cumbria therefore now stands on the cusp. years this picture has begun to change because of A decision about future unitary structures could in the largest single grant from any regional Cumbria County Council has made a virtue out of the County Council’s leadership, a fact welcomed by tip Cumbria in one of two directions. On the one development agency across the UK.This was a its geographic scale, developing local committees key regional and national decision makers. Only the hand it could lead to the creation of an even more direct consequence of the County’s leadership, a and neighbourhood forums which offer unique creation of one single unitary authority for Cumbria powerful, cohesive and coherent council able to fact acknowledged in the House of Lords by Lord community direction to its policies and its can continue this progress, by providing a unified build on recent successes. On the other it could Whitty in December 2002. partnerships, bringing legitimacy and balance to forum for political debate in order to project clarity, move backwards by creating councils inevitably less its work across the Cumbrian land-mass which vision and purpose to the outside world - the competent and more parochial - these could remain smaller authorities could not equal. North West and UK as a whole. locked into historical jealousies and inequalities and

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Secondly, the recent leadership by Cumbria Inward of the County Council, the Audit Commission In the face of divergent individual small unitary Building on this partnership work, the new Investment Agency, supported by the Cumbria indicated the importance of its leadership role in council perspectives, the involvement of regional authority will forge even closer delivery links with Strategic Partnership (CSP) - both founded and creating the partnership.This has been in the face and national partners would evaporate again, leaving the two innovative regeneration companies for funded by the County Council - to secure the of original opposition from some smaller councils, existing sub-regional organisations and partnerships Cumbria, and with other key agencies like Cumbria location of the Nuclear Decommissioning Agency denying the power and influence of a coherent sub- to weaken and fragment. Association of Local Councils (CALC),Voluntary (with £20Bn pa spending power) was entirely regional agenda. We would therefore argue that the Action Cumbria, Cumbria Tourist Board, Cumbria Instead, by creating a new single Unitary for dependent on Cumbria speaking with one voice. CSP is likely to wither without the cementing Chamber of Commerce and Cumbria Rural If sectional interests had required a specific, District influence of a Cumbria-wide council. Cumbria, it would retain and enhance the capacity Enterprise Agency. based lobby for the NDA, the argument would have and legitimacy to provide effective local leadership Cumbria therefore demonstrates a paradox. lost national credibility and Central Government at both regional and national levels. The single authority will have capacity to continue would have turned to more coherent, metropolitan On the one hand, its history demonstrates that to supporting current major projects like the Nuclear There is therefore, every reason not to go for small advocates elsewhere in the UK. achieve effective leverage, wide spread unification Decommissioning Agency, the Nuclear Skills Group, unitaries sub-dividing Cumbria on current district, and collaboration are essential. On the other hand the Centre for Sustainable Uplands, the Cumbria Influence through leadership proposed joint district, or historical county conflict of interest is strong and there is a tendency HE Consortium,The LSC’s Modernisation of boundaries. To do so would be regressive and It could be argued that the recent creation of the to disintegration and ineffectiveness. Such issues Further Education, the NWDA’s Barrow Initiative - counter-productive. CSP demonstrates the potential for voluntary strongly suggest that without a Unitary Council for and so on. But even more importantly, it will be able cooperation between organisations to continue at Cumbria, it would quickly become almost - unlike smaller authorities - to continue with WHERE WE WILL BE - 2006 a sub-regional level in spite of any council operating impossible for local community aspirations to be developing such innovative and powerful work. at that scale. However, in their CPA assessment effectively argued at a regional and national level. A new single unitary authority will be mandated to legitimately take its place at the heart of a powerful There is a strong case on the grounds of influence and partnership sub-regional partnership, the Cumbria Strategic for a single unitary for Cumbria because the new authority would: Partnership, delivering a multi-agency, visionary strategy for Cumbria in partnership with an elected • Deliver sufficient clout to balance the powerful • Avoid frustrating and alienating private and Regional Assembly and its delivering agencies.

metropolitan authorities in the south of the voluntary sector partners by resolving political The Government, in encouraging the creation of region and thus promote a healthy, balanced issues at an appropriate level Local Strategic Partnerships, clearly envisaged their debate within the region capacity to influence and encourage joint service • Ensure rural and urban issues are balanced and planning as critical to their success. However, in so • Give continued democratic legitimacy to the prioritised, and tackled as an integrated system many areas like education, social care, strategic infrastructure and joint procurement, Cumbria is Cumbria Strategic Partnership, ensuring the • Enable the council to engage with significant already at the lowest margins of viability for array of agencies represented therein are taking effective strategic planning. None of the current territorial issues, outside the feasible scope of account of the views of local communities joint-district LSPs has adequate scale or capacity to smaller unitaries – West Coast Mainline, be as effective or strategic as they really need to be. • Council meeting - listening to Cumbria's views • Ensure open, democratically accountable debate Broadband, Further / Higher Education By focusing on its community strengths together takes place across a broad community to inform provision, the future of the Lake District with its partnership working at the Cumbria-wide partnership working with a clear vision National Park level, the new single unitary will have a chance to create real strategic progress for Cumbrians.

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A Single New Unitary Authority for Cumbria

Meeting Local Needs - Community Leadership Leadership through local partnerships Social inclusion and community regeneration continue to be tackled through a variety of local Creating one new unitary authority is the best way to effectively engage, This valued experience of delegating resources and approaches including Health, Sport and Education devolved decision making helps Cumbria County empower and improve the well being of Cumbria’s communities. Action Zones. Council to actively support the four Local Strategic Partnerships (LSPs) and a broad cross-section of ‘Have your say days’ are well publicised, easily accessible events for local people on a whole range A single new authority for Cumbria will: local partnerships in Cumbria.The County Council is investing further resources into improving of local issues.Tracking of enquiries and responses • Be open, fair and welcoming by working closely • Release resources currently tied up in multi- community action through, for instance, significantly is an essential element of the events including close within the natural geographical communities council bureaucracy to improve front line increased investment into voluntary sector joint joint working with district councils and other partners. where people actually work and live, service performance through equitable and working arrangements coupled to agreed performance outcomes. irrespective of artificial local council boundaries responsive community government New unified Forums between County, District and Parishes are now effectively being piloted in arrangements Leadership through community • Effectively bring together and engage Cumbria’s Copeland and demonstrate the benefits of strong engagement and empowerment joint working across counter productive diverse communities of interest including boundaries. Such pilot schemes are extremely minority and harder to reach groups, to The County Council underpins local committees practical methods of research and development. and LSPs with an extensive network of 55 encourage inclusion and cohesion Where an Authority has sufficient scope and neighbourhood forums that are spread throughout economy of scale, opportunities for improvement rural and urban communities.These forums work such as this can more readily be identified. closely with parish councils and community WHERE WE ARE NOW - 2003 central decision making, often through formal A Cumbria unitary would provide the greatest organisations to ensure that even the smallest scrutiny, to ensure that local people obtain better resource to continually improve community Cumbria's strong track record of community community voices are clearly heard and resources value and better services.This approach to local development and capacity building in such ways. engagement, leadership and local accountability democracy or ‘localism’ seeks to apply large can reach every corner of the county. Each forum would be greatly enhanced and strengthened in a strategic resources as effectively as possible through not only identifies local issues and local solutions Community engagement, inclusion and new single unitary authority. broad policies of social inclusion and local they also accurately target small grants through empowerment are about far more than forums, excellent local knowledge. This was recently empowerment, but with local appropriateness. committees and meetings. For example, the County typified through the County Council’s First Aid for Leadership through local These local committees are supported by a Council’s ‘web discussion’ platform was cited by the Cumbria Foot and Mouth Recovery Fund that Anderson Inquiry as a vital example of fast, personal democracy and accountability comprehensive network of neighbourhood forums, rapidly and effectively distributed resources to and effective community engagement that was which have been developed over the last 10 years. Cumbria County Council is a national leader in 104 affected local communities. greatly appreciated during the devastating period of developing local democracy. It actually devolves To enable County Councillors to strengthen their An innovative Local Public Service Agreement called foot and mouth disease. more resources to local executive committees community leadership role a Member Development ‘Building Active Communities’ has just been The County Council was quick to recognise that than any other county council (£23m pa). package has been introduced that includes training, agreed with ODPM to analyse and improve the lesson and had the capacity and skills to introduce I.T support and mentoring. Area Support Managers Six locally accountable committees ensure that engagement infrastructure. This is complemented new web technology including special electronic with locally accountable teams coordinate by a totally new support programme targeted resources are carefully invested to meet varying notice boards for parish/town councils and community engagement and strengthen the specifically at rural communities.This capacity local needs and wishes.This includes challenging neighbourhood forums. An even more extensive democratic framework. building work includes special support to accelerate Community Website is currently being planned. the Quality Parish programme. Additional New and significant investment into consultation resources for this are only possible due to the means that existing arrangements are being A strong, welcoming Authority effectiveness of the County Council’s Rural Action overhauled and standards improved. Zone for Cumbria and consequent funding that meets local needs. successes.

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This track record demonstrates what can be There is a strong case on the Devolved services This upwards network of communication and achieved by a county-wide authority in Cumbria's influence for the community will extend, through grounds of community identity The new single unitary would have the capacity to geographically large, sparsely populated area. the Cumbria unitary council, to many other for a unitary Cumbria because: ensure more money and more services are invested organisations like Cumbria Association of Local Leadership and localism • The communities that people actually relate within the strategic framework and firmly given into Councils (CALC), Cumbria Tourist Board, Cumbria Most people in Cumbria have been shown to relate to identify themselves across existing and local hands. Strong local democratic structures Chamber of Commerce and Voluntary Action to their very local community, not to the arbitrary proposed small scale council boundaries. would be built, building on current outstanding Cumbria. and diverse district units of local government. Internal boundaries within Cumbria are County Council practice. The combined property Since 1974, the idea of Cumbria, an identifiable artificial portfolios of seven previous councils would be The new authority will clearly want geographical land mass, centred on the Lake • Many communities of interest are spread rationalised to produce excellent, economic to build on the considerable success District, bounded by water on three sides and throughout Cumbria, carry that name and services and accommodation with high levels of of the County Council in local Pennine uplands on the fourth, seems to have would naturally relate to a Unitary Cumbria public access. Such accommodation would be working. However we recognise caught on.This is signified by the number of firms organisation developed to include community partners to that this will be a completely new and other organisations which have adopted the produce customer-focussed single-point delivery • A Cumbria Unitary would have the resources authority, different from anything name and the associated scope. at very local levels. and flexibility to work within and across the that has gone before. We have This combination of very local community identity, natural communities in which local people therefore not presumed to second- Enhanced local partnerships coupled with a broad recognition, in most areas, actually live guess the right of the new authority of the Cumbrian identity, supports the essential The new unitary’s powerful ‘centre’, excellent to design and develop its political concept of a single and competent unitary Cumbria council will be able to provide this framework. support services, and strong community based and management structures in Council exercising powerful strategic leadership It will attract sufficient funding and the necessary organisation, will greatly enhance local partnership consultation with the people of quality of Members and officers to think about big whilst being accepted by a plethora of diverse working. For instance, Parish Councils,Town Cumbria. small communities. Such communities have little issues for the whole of Cumbria and to exert Councils and local regeneration agencies will find A new single authority will: identification with subdivisions of Cumbria, and influence on behalf of the community regionally and they have greater access to Members and Senior there seems to be no real case for artificially nationally. It would be able to provide extensive Officers with greater powers and more funding - • Strengthen existing local initiatives by further creating future new boundaries by establishing back office support for competent and powerful able to make a bigger difference to the lives of local improving community and partner access to smaller unitaries. community activity. people.We envisage that the new authority would all levels of local decision making have an early and energetic dialogue with these Resources released to community • Create broader and deeper community WHERE WE WILL BE - 2006 organisations about structure and working governance to ensure that community voices Evidence elsewhere in this submission shows that arrangements. Community Governance Framework are heard only the Cumbria-wide unitary will produce public Such partnership working will enable easy access Localism works and is effective only when cost savings. Other options show only increased • Enable members to strengthen their role as to all levels of the authority's decision making. supported by high-capacity strategic organisations costs over a generation: such increased costs will community leaders to strongly promote local Local people and organisations will find that the which can provide a broad framework of contextual mean less investment in local communities. aspirations and needs new authority’s consultation and feedback intelligence, planning and support services. The single unitary will release new money after • Achieve real cost savings which will enable mechanisms will have the capacity to influence the three years from savings made by minimising the increased resource delegation to invest in In a large but low-population, low-resource area work of the whole Council, the Cumbria Strategic number of new councils, savings on management local communities like Cumbria, only the single unitary Partnership, and the elected Regional Assembly. costs, administration and other overheads.

20 21 One Cumbria - Many Voices, One Vision One Cumbria - Many Voices, One Vision

A Single New Unitary Authority for Cumbria

Strengthening Strategic Capacity In recent years the County Council has invested important base from which we can all carry out heavily in improving this important area of work – effective qualitative and quantitative research. A single unitary authority in Cumbria will achieve significant gains from investment to ensure that we are ‘connecting with Only the County Council has the capacity to economies of scale and increased critical mass, and minimise the difficulties our communities’. We have had the capacity to facilitate this on behalf of the partners to ensure of low population and sparsity, through increased strategic capacity, work across and together with the District that there is no duplication or consultation Councils to ensure that as organisations we pull overload, and this results in quality findings that improved procurement capability and attractiveness as an employer together to undertake coordinated, quality research are then used to help all the organisations deliver that not only informs, but that actually drives the better services A single new authority will support modern ‘capacity’: delivery of quality services in Cumbria. ‘Community Voice’ is only one example of how, The recent Office of Public Management paper for ODPM "Capacity Building in Local by working together across Cumbria as one well- Government – research on capacity building need" highlights the difficulties faced by WHERE WE WILL BE - 2006 resourced organisation, we can improve our smaller authorities in delivering high quality services and fulfilling the modernisation Political Leadership services. It also demonstrates that we already agenda. Examples are cited throughout the paper where organisational benefits accrue to have quality mechanisms in place to undertake the a larger organisation. A single unitary authority in Cumbria will be of necessary research to help a new unitary establish sufficient scale to continue developing these Areas covered include: itself and keep in touch with the needs and training, development and consultation approaches, aspirations of its public. • Elected Members’ capacity to think and act • A climate promoting challenge & risk-taking and provide the level of support to Members that a strategically modernised local authority requires for effective, By combining expertise and experience in • Employee opportunities & development open and speedy decision making. This growing consultation with a highly skilled and well supported • Economies of scale – procurement, delivery, • Recruitment & retention, particularly of strategic political capacity will be crucial to ensuring political body, the new single unitary authority e-government maximum benefit from aligning policies, strategies will be able to provide Cumbria with the political specialist skills and senior managers and organisations across the full range of local leadership required in both service provision and • Capacity for partnership working government services, interests and influence. representation at regional and national level.

It will be vital to involve the public from the outset WHERE WE ARE NOW - 2003 development measures, ranging from IT support to WHERE WE ARE NOW - 2003 in developing the vision for a unitary Cumbria. This mentoring. Benefits from this approach have been Partnership Working Political Leadership would involve a significant period of public debate seen in Cumbria leaders who are prominent on the and consultation with a view to developing a vision Today's local authorities increasingly work with The skills and abilities of Elected Members are regional and national stages.Today they can be seen that really reflects a wide cross-section of local and through partnerships. Partnerships and critical to the strategic capacity of authorities. in such areas as the improvement of health scrutiny views and needs.This process would draw on and individual partners have local, Cumbria-wide, The changed and changing roles of Members in which has been strongly influenced by the develop the County Council’s deep knowledge of regional and national interests. Their brief can be as executives, scrutiny and community leadership effectiveness and skills of Elected Members the whole area and its various communities and its wide as that of the Cumbria Strategic Partnership, demand the very best candidates for elected roles. following intensive development work. extensive experience of consulting with citizens, as or as tightly-drawn as the Cumbria Archives Service The County Council has a track record of Key to successful political leadership is a thorough outlined below. Public Access Network (CASPAN). Partners may exceptional people in these roles, supported by a understanding of Cumbria’s needs and the be individuals, or bodies from the public, private ‘Community Voice’ is an excellent example of what well established package of Member support and expectations our communities have of local and not-for-profit sectors. can be achieved when organisations in Cumbria, government. Cumbria County Council is combine their efforts through a single vehicle. It is a committed to quality consultation with the people The partnerships cover a huge range of policy ODPM research identified that: true partnership between Cumbria County Council, of Cumbria and has a number of mechanisms in formulation, service delivery & procurement issues five of the six district councils and the Police. Only The key capacity gap for elected place - the Citizens Panel, Neighbourhood Forums, and arrangements. this year these organisations pooled resources to members is around being able to Consultative Forums and web based consultation in enable a full re-recruitment exercise, ensuring that The maps provided as a separate appendix and the addition to the extensive cumulative and analytical think and act strategically. the panel continues to be a real cross section of the activity undertaken within service directorates. section ‘Characterising Cumbria’ illustrate the range Cumbria Population.‘Community Voice’ provides an and coverage of significant partners for the County

22 23 One Cumbria - Many Voices, One Vision One Cumbria - Many Voices, One Vision

Council – the listings are illustrative, not exhaustive. A number of Cumbrian organisations have realised In the past the County Council has: Where such partnerships operate in distinct and separate parts of Cumbria, a single unitary authority The number of Cumbria-wide partnerships, and that only a Cumbria-wide operation can be • Been instrumental in supporting the will be able to bring the wider perspective and partner organisations that are themselves based on effective. An example is Cumbria Chamber of establishment of larger voluntary greater financial benefits to them. Particularly wider boundaries, is particularly significant. Any Commerce, which (with CCC support) has brought organisations to meet the needs of vulnerable important, the authority will ensure equitable break-up of Cumbria-wide functions between two together smaller chambers into one outstanding people, such as the development of the treatment of groups across Cumbria, removing the or more unitary authorities would inevitably lead to organisation since 2002. Similar arguments apply in Cumbria-wide Gay and Lesbian Network; post code lottery that applies currently to e.g. core difficulties for these partners, who might have to relation to working with the voluntary sector. • Encouraged and supported voluntary funding of Citizens Advice Bureaux by District reconsider their viability, and perhaps split along the Cumbria County Council currently supports and Councils. organisations to collaborate and form lines of several new authorities, to become less well works with the voluntary sector in Cumbria by networks, such as Cumbria Disability resourced, working with essential Cumbria-wide voluntary WHERE WE ARE NOW - 2003 Network; less effective and less influential. organisations (as well as with development Benefits of Scale • Encouraged organisations to merge to organisations, such as Councils for Voluntary In the area of procurement the scale advantages of Tackling crime and the fear of crime is a key improve service delivery, such as Citizens Service). a single unitary authority for Cumbria will be very priority for local government and its partners. Advice Bureaux in their delivery of money apparent in capacity and economy terms. Ease of fit between Cumbria-wide partners makes Many voluntary organisations in Cumbria operate advice via a County Council funded Service A single unitary authority will be able to bulk-buy a major contribution to this work. A key Cumbria across the county, and gain from working with one Level Agreement quality goods and services in a way which smaller County Council partner, the Cumbria Police ‘top tier’ local authority. Examples include Cumbria authorities will struggle to achieve. Authority, clearly makes this point in its submission Deaf Association, Cumbria Drug and Alcohol WHERE WE WILL BE - 2006 to the review, stating that the criminal justice Advisory Service, and Victim Support Cumbria. The scale of operation of Cumbria County Council Partnership Working has enabled massive economies through system in the area is based on the geographical Cumbria’s size and population sparsity encourages consolidated contracts for common use goods and entity of Cumbria – police, magistrates’ courts, It is essential that any changes to local government such voluntary/community groups to draw organisation in Cumbria recognise the key part services. Just over the last few years savings of over probation service, and others all operate membership from across Cumbria to make the that powerful partnership working plays in the £1 million per annum have been generated beyond Cumbria-wide. provision of support services viable, or to recruit community. It is vital that the views and interests existing economies and will continue into the future. Critically, even such cost problems as The submission specifically points to significant enough people to develop a support group. of partners and stakeholders are taken into account distribution of goods from national suppliers across advantages to the criminal justice system from in determining council structure. It should be an Many smaller organisations come together in one aim of the reorganisation that as far as possible, the the vast minor roads network of Cumbria has been those arrangements. Cumbria-wide association, examples of these most effective Cumbria-wide partners and tackled by our ability to create central delivery/ include Cumbria Disability Network, Cumbria Youth partnerships gain from the changes, rather than local redistribution facilities. The Cumbria Police Authority Alliance, CALC and Cumbria Association of being damaged. says there is: Councils for Voluntary Service. By grouping A single unitary authority will be able to deliver this DEFRA recognises that: together, these organisations can build critical mass, aim. By operating across Cumbria, the authority will ..an important practical work together and lobby effectively. As a result of be the best fit with those organisations that cross ..smaller authorities may existing District Council boundaries, those which advantage for the boundaries of these groupings networking and sharing ideas struggle to deliver the full service individual organisations become stronger. are Cumbria-based, and those covering a wider local authorities in Cumbria to remit regionally or nationally. agenda…loss of economies of scale, Local authorities tend to support organisations that remain co-terminous with those of At the same time, through its community presence, for example in service planning and carry out most or all of their work ‘in the patch’. the constabulary and the Police both politically and in service provision, it will commissioning, and in delivering Thus if Cumbria ends up with several councils, equally be ideally placed to work with those Authority.. funding for effective wider organisations is likely partners operating in more tightly defined specialist services.. to suffer and there is much evidence for this. geographical areas.

24 25 One Cumbria - Many Voices, One Vision One Cumbria - Many Voices, One Vision

Our support services buying-power was sufficient sometimes insufficient to attract scarce high-calibre WHERE WE WILL BE - 2006 to attract extensive national interest when we staff concerned about the isolation, rurality and Benefits of scale Smaller services, such as Archives, externalised many functions to CAPITA plc - resourcing issues in this area. Nevertheless, we have Trading Standards and Emergency The new unitary Cumbria Council will form large achieving large year-on-year savings in the process been able to overcome much of this with the Planning currently provided by County and economic purchasing arrangements for goods whilst creating major new employment quality of our staff recruitment and development Councils also raise concerns. For and services. It will support the fragile local opportunities for Cumbria. Now this process is package, and the career opportunities inherent in example, the DTI identifies that: economy by using local businesses wherever being extended through our Invest to Save and our large organisation.We believe smaller unitaries possible and it will work to expand current Improve initiative to a range of other strategic in Cumbria would have significant recruitment and ..some smaller single tier initiatives with the Regional Assembly, NWDA and partnerships, on a scale of public benefits which retention problems. authorities have found the (Trading the Strategic Health Authority on development of could not be achieved by smaller councils (even if the whole public sector work force. Standards National Performance they were to create administratively expensive The draft report by Northumbria Framework) difficult to implement.. joint arrangements). University Centre for Regional Such a council will be an employer of first choice, able to offer exceptional job opportunities, training it is also very difficult for a small For instance, our current ICT strategic partnership Economic Development for Carlisle City and development and career progress comparable service to establish the needs of its initiative will radically modernise Cumbria-wide with elsewhere in the UK.The scale of council IT services, bringing in huge investment to create Council evaluating the three unitary users and respond to them.. requirements will lead to rapid improvements in greater productivity, effectiveness and, importantly, option identified the following weakness: e-enabled and e-accessible services, with truly better public access. Only a national level partner, effective customer relationship management. In attracted by the scale of our services, can achieve ..the lack of economies of scale other areas too, the new unitary will use its size this. In parallel with this initiative, we are leading a to deliver certain services and ‘buying power’ to ensure that strategic partnership of District Councils to develop the partnerships continue to expand to take advantage Cumbria e-government information Hub for all especially education and social of skills and economies in other sectors. authorities: another case where modernised public services consideration should service could not be achieved without the also be given to issues surrounding involvement of a large Cumbria-wide operator. Department of Health points up concern innovation and flexible service The procurement and retention of sufficient quality on overall management capacity of small staff is another major issue. Already even the size delivery.. authorities: and achievements of Cumbria County Council are the combined budget for education and ..the need to take into account DfES refers to: social services for 2002/3 was £297 the availability of staff with the ..increasing evidence of the million, over 60% of the total budget capability of working as Directors

inherent instability of smaller of Cumbria's local authorities and Assistant Directors of Social • Education - economies of scale mean real LEA’s." then "..retention of for the year Services.. investment in Cumbria's future appropriate specialist expertise might be an issue..

26 27 One Cumbria - Many Voices, One Vision One Cumbria - Many Voices, One Vision

A Single New Unitary Authority for Cumbria

Improving Performance As shown, output from CPA 2002 assisted in In many of these LPSA targets the County Council establishing our improvement priorities. leads District Council partners, demonstrating yet Creating one unitary authority is the best way to improve the performance However, we had already taken steps during 2002 again the essential capacity and leadership which of local authority services for the people of Cumbria. to enhance performance by setting up (in a strategic only a pan-Cumbrian authority can provide. partnership with Price Waterhouse Coopers) a WHERE WE WILL BE - 2006 A single new authority for Cumbria will: Performance Enhancement Programme (PEP). Better Services, Better Value • Be in a strong position to create a performance • Co-ordinate all ‘duties and powers’ to deliver This enabled us to tackle CPA improvement tasks improvement culture that is borne out of a new improvement in services - for instance, in very rapidly and a major issue still requiring Performance improvement culture vision, new objectives, a new identity and relation to the health and well-being of the significant performance improvement is the quality adequate quality resources citizens of Cumbria The County Council is already described in its of child and family care. This is subject to intense CPA assessment as having an ambitious corporate • Pool existing skills, expertise and resources in • Achieve the most from Best Value reviews which effort and considerable investment. order to build capacity to deliver improvement can consider the most expansive range of strategy and to be making progress in top priority in services services How the County Council is areas.There is evidence of strength in community • Learn from and build on existing innovative • Better manage projects that transcend existing managing performance leadership initiatives, and partnership working is County Council models of service delivery to organisational boundaries delivering improved outcomes in regeneration and The County Council is highly motivated to improve improve service in the future elsewhere is supplementing existing capacity to arrangements for managing performance. Soon after deliver improvement. CPA 2002, the implementation of our Performance WHERE WE ARE NOW - 2003 Despite these difficulties, many excellent things Management Framework (PMF) was brought National policies and priorities have been reflected have been achieved and extensive improvements Clarity on what the County Council forward from September 2003 to April 2003. in our local actions and progress has been made in is trying to achieve are underway. key areas such as delayed discharges from hospital. Our PMF takes a broader view of performance The Council’s corporate strategy 2003 provides Areas identified in 2002 beyond gathering and using performance indicator Education attainment is deemed by our inspectors clarity for all citizens and employees in terms of as needing improvement: information. Achievement is not seen as solely to be good and improving. In social services what we are trying to achieve. evidence of direct payments and pooled budgets • Improving recruitment and retention of dependent on Service Performance Indicators and To underpin this, the County Council is committed employees rests equally on fostering cross-departmental with the health sector are providing real benefits to continue establishing a strong customer focus, for service users. • Fully implementing our modern HR strategy. learning and improvement, using good practice by listening to people's views and to working with examples of project management and procurement, These achievements were reflected in the CPA communities to improve services. • Introducing the existing Performance Management Framework initiative people management, financial management, risk assessment, and their is no doubt that since then We aim to be one of the top councils for cost, management and process management. the authority has got on track for 'good' or • Further sharpening the objectives and targets quality, access and service outcomes by 2005. 'excellent'. But if this is to be achieved quickly and in the Corporate Strategy The County Council has also recently negotiated a We continuously strive for improvement in services permanently, the barriers created by multiple local that will meet the needs of our service users. • Expanding corporate working by assigning local public service agreement (LPSA) with Central authorities in Cumbria must be removed. corporate responsibilities to Chief Officers Government.The LPSA contains a number of high The Council's CPA assessment in 2002 was 'fair'. A new single unitary authority will be in a strong • Completing the integration of budget performance stretch targets that have been agreed This was a tremendous achievement given the management and service planning processes with partners, and is effective from 1st April 2003. position to tackle these barriers and create an massive diversion of energy and resources to outstanding Performance Improvement culture. tackling foot and mouth in the preceding year.

28 29 One Cumbria - Many Voices, One Vision One Cumbria - Many Voices, One Vision

Capacity to deliver Innovation Improving health and well-being

An emerging theme from the District Council CPA The creation of a new unitary authority will It is clear from CPA self assessment that both the Self Assessment submissions is the need to build provide an opportunity to secure new and County and District Councils are seeking capacity in these small councils to deliver innovative models for service delivery that create improvement in the health and well-being of citizens improvement on many and varied national and local completely new ways of customer-centred working, through various solutions to social, economic and priorities. This issue of severe capacity and for instance between housing, social services and environmental issues. However, the dispersion of resource constraints has not gone unnoticed by the education. However, this will only happen if the functions and efforts amongst all the Councils has Audit Commission. A single unitary in Cumbria is scale and capacity of the individual services are not capitalised on the relatively new ‘power of the only way to address these issues. adequate. well–being’ that has created scope for improving a wide range of health- Cross cutting best value reviews Project management related services. Since the duty of Best Value was introduced, the The new Cumbria unitary would build on the A new unitary Cumbria authority County Council has taken the opportunity to extensive high-level project management skills would have the combined services, skills rigorously review its services. Our approach is which the County Council presently possesses. and resources to push at the boundaries always to approach reviews with a willingness to The scale of operation would enable retention and of this ‘power’, and to bring about real challenge the status quo and a challenging development of special skills which smaller unitaries step change to Cumbria where health programme of reviews has been established to could not afford. Current experience (e.g. with the problems are worse than most parts of complement our improvement priorities. Cumbria Information Hub) indicates that effective the UK. The creation of a new single unitary authority planning and decision-making will accelerate if will create an opportunity to increase the pool of competing interests are removed by creating a resources and the skills that could be drawn on to single unitary Cumbria. make real improvements for our citizens. Bringing together duties and powers For example, the County Council has plans to carry out a cross cutting best value review in 2003/04 The bringing together of ‘duties’ and ‘powers’ under that will focus on achieving improvements in a new unitary Cumbria authority will lead to better ‘Corporate Parenting’. This is the sort of review synergy between setting strategy and improved which, in the new single unitary, would more readily service delivery. For example, the County Council embrace housing, leisure services, education, and has a duty to prepare a Community Safety Strategy social services in an integrated way. Such a review for Cumbria. This is hampered by the fact that by the new unitary Council will be able to create a District Councils have set up their own crime and follow-up which is currently almost impossible, and disorder reduction partnerships under their own would be hampered if several 'competing' unitaries powers, making concerted and powerful action very were created. difficult. Service improvements can only be realised where a new single unitary can resolve such • Cumbria County Council's Corporate Strategy and Performance Plan duplication and ineffectiveness.

30 31 One Cumbria - Many Voices, One Vision One Cumbria - Many Voices, One Vision

Graph 1 - This graph demonstrates the total cost of transition for each option together with how many years it One Cumbria - The Financial Case will take for each option to pay for itself

A single new unitary authority for Cumbria provides the best value option. It incurs the lowest cost of change, is the cheapest to run, and recovers the Option 4 cost of the transition within three years - no other solution does this. Three Unitary Authorities

FACT: The total public financial resource Barrow Council (2.12%) Carlisle (2.83%) 40 for all authorities in Cumbria is £467 million Allerdale District Council (2.75%) Copeland Borough Council for 2002/03: (1.95%) 35 Eden District Council 30 Option 3 One Unitary Authority (1.41%) East/West Transitional 25 Split Morecambe Bay/Cumberland £ million South Lakes District Council (2.68%) Costs 20 East/West Split Cumbria County Council 402.762 Option 2 15 Morecambe Bay/ £Million Three Unitary Authorities Allerdale District Council 12.819 Cumberland 10 Option 1 Barrow Borough Council 9.904 One Unitary Carlisle City Council 13.215 5 Authority Cumbria County Council Copeland Borough Council 9.099 (86.26%) Eden District Council 6.63 246810 12 14 16 18 20 22 24 26 28 30 32 34 36 38 40 NEVER South Lakes District Council 12.495 Years required to pay back the full cost of transition for each option Total 466.924

Ta b le 1 - This table demonstrates the savings each authority would generate per annum as well as the transitional costs and payback period for each option FACT: FACT: FACT: FACT: A single unitary The Morecambe Bay/ The East/West The three unitary Transitional Costs Savings per annum Payback £million based on a budget of £466.9m period (years) authority for Cumbria Cumberland option will never pay authority option will would pay for itself option would take for itself as it never pay for itself as Unitary County 15.9 -5.7 3 within 3 years - then approximately 39 years generates no annual it generates no annual Morecambe Bay/Cumberland 35.9 -0.9 39 generating year on to pay for itself - then savings - in fact it savings - in fact it

year savings of generating annual savings costs approximately costs approximately East/West Split 29.9 +1.3 Never approximately £5.7 of only £0.9 million, to an additional an additional million to offset costs offset costs of change £1 million a year £7 million a year, on Three Unitary Authorities 36 +7.2 Never of change approximately into the far future, on top of transitional £15.9 million. £33 million. top of transitional costs of £36 million. Additional Information costs of £30 million. • The financial model applied by the Boundary • At the request of the County Councils’ Network Option 1 Option 2 Option 3 Option 4 Committee is concerned only with the cost of this financial model has been designed to One Unitary Morecambe Bay/ East/West Three Unitary being in business element. ascertain the transitional and on-going costs of Authority Cumberland Split Authorities any change to a local government structure. • The calculations shown here are based on a model prepared by the National County Councils • The graphs above are derived from the County FACT: The cost effectiveness of a FACT: All options for more than one new Council network which has been the subject of extensive Council's Network Financial Model single unitary authority for Cumbria lead to higher costs, with no prospect of recouping extrapolation from the last Local Government • Given the timescale for the current review the would enable a choice for tax payers the costs of change inside a generation. Tax payers reorganisation and the cost outcomes from that calculations given here are indicative, based on between reduced council tax and will have to choose between higher Council Tax or exercise.We believe that this provides a better extrapolated data. enhanced services within 3 years. fewer services. picture of the realities facing Council Tax payers.

32 33 One Cumbria - Many Voices, One Vision One Cumbria - Many Voices, One Vision

One Cumbria - One Council Only a single new authority will deliver everything Government, the Regional Assembly and the Council Tax payers of Cumbria want.

COMMUNITIES - BETTER

Provides a one Gives Cumbria stop shop for Integrates services a strong voice everyone's needs Works in the POWERFUL to make sure heart of Cumbria's IN the public is not passed communities PARTNERSHIPS from pillar to post Brings together communities with Delivers real shared interests opportunities for EFFECTIVE growth in skills IN COMPETITIVE and economy AND Has no artificial LOCAL COMMUNITIES ATTRACTIVE boundaries dividing EMPLOYER economic and Attracts investments social communities R T and jobs to BETTER I E Cumbria A

B SERVICES

B Understands that strong economies BETTER E A

make strong I T VALUE Can be local and communities strategic when R appropriate B

WIDESPREAD Provides the ECONOMIC CAPABLE same level of high AND OF Is big enough to quality service SOCIAL STRATEGIC address transport throughout Cumbria IMPROVEMENT PLANNING links and problems across Cumbria Tackles REGIONAL isolation and Provides high quality, AND deprivation improving education Understands and NATIONAL Has the and training supports Cumbria's INFLUENCE capacity to make business needs a difference

C OMMUNITIES - BETTER

ONLY A SINGLE CUMBRIA UNI TARY COUNCIL MAKES SENSE

34 35