Foreword By the Leader of the Council This is an informal statement prepared by Mid Devon District Council. This Council has made it clear that, along with several of its neighbouring Authorities, it favours continuation of the “enhanced two-tier approach”, which it believes was an intelligent, forward-thinking strategy, based on partnering and service-sharing initiatives designed to attain economies of scale while preserving the all-important localness of focus and community leadership expected by those who live and work in Devon. The unitary project is an unsought diversion of attention and resource from both that strategy and also this Council’s own improvement plan, which has been acknowledged by the Audit Commission, GOSW and IDeA as making significant progress. As we understand that the Boundary Committee will not give consideration to any comparison between the relative merits of unitary and non-unitary solutions, we have prepared proposals as requested. We believe that, given the terms of reference of the investigation, the two options presented here constitute reasonable ways forward, with a good chance of meeting the expectations of the five listed criteria. We are undertaking such consultation as is practicable within the extremely restricted timescale offered to us and intend continuing this beyond 11 April with a view to feeding analysis of the responses into the ongoing dialogue with the Boundary Committee. Councillor John Berry 2 mddc unitary solution submission april08 Introduction Mid Devon District Council believes that any unitary solution for Devon would be less satisfactory for the people of Devon. We, along with many of the other Devon Districts were, until the Review was announced, pursuing the opportunities of “enhanced two tier” service delivery. It is, therefore, with regret that we now find ourselves required to provide concepts for a unitary solution for Devon. Nevertheless, we owe it to our residents to ensure that the concepts considered will provide viable models for a unitary solution for Devon. The proposals contained in this document we believe provide viable, cost-effective, unitary solutions for the County, providing economies of scale and strategic influence, whilst re-invigorating local democracy based on community identity and need. The proposals take into consideration the criteria set out by the Department for Communities and Local Government and the Boundary Committee. The Boundary Committee Structural Review of Devon challenges the authorities to look at structures across the County and develop a unitary solution for Devon. The purpose of this paper is to provide Mid Devon’s submission with suggested models of local government which could fit the stated criteria. We believe that the proposals could transform local government and provide a solution that acts local, feels local and is accessible locally yet has a strategic grip on what matters for Devon and carries weight with regional and national government. However, they do offer different balances between, on the one hand, local empowerment and on the other, recognition of economic realities. The proposal will provide lean, low-cost authorities which will deliver significant savings to the public purse. There would be a model of service delivery and governance that provides for services to be shared where possible but where accountability and decision making are devolved to the lowest level possible. At the same time, we believe the suggested model could embrace new, more flexible and responsive ways of working and aggregating service delivery where appropriate whilst devolving decision making to the local level. Tangible and meaningful community empowerment could be provided encouraging the community and voluntary organisations to be involved in service design. 3 mddc unitary solution submission april08 Criteria Any proposal contained in this submission has been assessed against the following criteria as set out by the Department for Communities and Local Government and the Boundary Committee in their Key Lines of Enquiry:- • Affordability • Broad cross section of support • Strategic leadership • Neighbourhood empowerment • Value for money and equity The test of affordability has not been examined in detail at the concept stage although we recognise the arguments proposed have relied on arguments used by other areas to support large unitary solutions. 4 mddc unitary solution submission april08 Outcomes of Unitary Government In submitting both outline concepts, the District Council started from a set of outcomes we would want unitary governance to deliver. They are:- • A stronger economy which improves the standard of living for all residents; • A narrowing of the gap between the best and the worst off within the County by improving the position of the worst off; • Fair access to high-quality public services without the confusion of two-tier services; • Best possible value for money for council tax payers removing unnecessary layers of duplication; • Minimum disruption for local people and proportionate costs of change; • A strong voice for citizens in their parishes and towns and clear accountability for local government services; • Higher profile for the unitary Devon options both in the regional platform and the national platform and strategic resilience to be able to deal with major emergencies; • People would see a simple, easy-to-access organisation that you could contact by phone, by email or in person by visiting one of several front-of-house offices; • People would have a minimum, consistent standard of service no matter where they lived and pay equal level of council tax for those services; • Because different communities have different needs, local people would be able to exercise choices at a local level; • Residents would be able to attend and ask questions at local council discussions on issues affecting them. They would know their local councillor, see him/her in action at local meetings, have opportunities to feed in their views and concerns and be confident in their councillor’s ability to influence and take decisions on their behalf. In applying the four criteria we have made ambitious assumptions of the type of authority of any unitary concept. The suggested solutions have no democratic endorsement, but are simply an attempt to offer possible scenarios for delivery of services. 5 mddc unitary solution submission april08 Regional Partners The larger the unitary proposals the more beneficial the outcome of working with regional partners. Working with small numbers of authorities would provide a streamlined system that is less resource-hungry and would reduce duplication of effort. It would share planning in unitary areas that make sense and where key borders are co-terminous. There would be a mechanism to work together to achieve a shared outcome and a greater strategic capacity to have an effective sub-regional and regional voice. The outcome would be a workable and complete local government structure in the County. There would be continued improvement with reduced costs to save or re-invest and the Local Area Agreements (LAAs) would have the ability to develop Multi Area Agreements (MAAs) with partner authorities with distinct targets and outcomes. 6 mddc unitary solution submission april08 Devon’s Population Density The map clearly illustrates the very large sparsely populated area of Devon. Population is mainly concentrated in the south and east of the County. The problem this causes is that any amalgamation of Districts to the north of the County is unable to provide the critical mass of population needed to provide services across a vast area. This, therefore, is one of the principal reasons for suggesting only two options. 7 mddc unitary solution submission april08 The Two Options For Unitary Governance In Devon Option A A Single Unitary Council for Devon excluding Plymouth and Torbay Option 1 would represent a “big is beautiful” solution for Devon. It would be affordable, providing value for money and equitable services across the County. There would be visible leadership for the County and there would be an end to duplication and confusion in the minds of the public. It would dramatically simplify and strengthen partnership working across a whole range of services and deliver much more joined up services throughout the County. This option could include an extension of the boundaries of Plymouth and Torbay if it was seen to benefit the unitary solution for Devon and provide realistic areas of growth for the existing unitary councils. Devon PCT, Devon and Cornwall Basic Command Unit and Devon and Somerset Fire and Rescue Authority have very similar service delivery areas as a new Unitary Devon. 8 mddc unitary solution submission april08 However, Devon is a very large county and it can take a long time to travel from one part to another, given the nature of many of the roads. This option would carry the risk of being seen as too big and with the Local Authority being seen as too remote by many local people and therefore less able to deliver local empowerment. On the other hand, the potential economies of scale would be maximised. 9 mddc unitary solution submission april08 Option B Western and Eastern Devon, Plymouth and Torbay This option recognises the existing authorities of Torbay and Plymouth but dissects the remaining County into two halves; one western and the other eastern. The eastern unitary authority takes on board Exeter and much of its travel to work area and the existing areas of Mid Devon and East Devon. It recognises the diverse nature between the eastern part of the County and the western part of the County; the western taking in both coastal areas of south Devon and north Devon with similar problems and challenges. The western area straddles both Exmoor National Park and the Dartmoor National Park and could act as a cohesive factor in the unification. They are, therefore, a mixture of moor and sea. Eastern Devon concentrates on the pattern of travel-to-work areas and the focus of Exeter in its place in the eastern part of Devon.