I continue to work through the vast amount of data that I have for my town and parish council research. I have been working with the Department of Communities and Local Government to help inform components of their localism agenda. The following is a version of a policy brief designed to do just that and drawing on the parishs research as well as previous work exploring the effectiveness of Local Strategic Partnerships.
Town
and Parish Councils: Enhancing Local Governance
SECTION
1: EXECUTIVE SUMMARY
Parish councils are an effective and
established vehicle for service delivery. Increased devolution of services to
this level of government should be measured and accountable. This policy brief draws on insights from over
6000 town and parish councillors and is the most compressive research study on parish
councils that focuses on achieving sustainable development with an emphasis on sustainable
communities (Borne, 2009, 2010a, 2010b, 2012, 2013). The Localism Act and the Open
Public Services White paper must be seen as the broader agenda of creating
sustainable communities. The brief responds to three principal questions:
Increasing the capacity of town and parish councils to deliver services?
How do experiences with town and parish councils inform Neighbourhood Community Budgets?
- Skills and
Education were seen as essential for the further enhancement of local
level government. Whilst the level
of up skilling within town and parish councils differed it was recognised
that there was a need to increase these skills at least with the clerk of
the councils.
- With increased
responsibility for service delivery there is also a need to devolve in
real terms the appropriate powers that enable the effective and efficient
delivery of services
- An effective and
transparent consultation process is a repeated theme with parish
councillors often lamenting the lack of genuine consultation that has
little impact on gauging response from parish and community.
- Communication
takes many forms but is seen as pivotal for the effective delivery of services
and the establishment and enhancement of local government structures. This communication is seen as cyclical
and not uni- directional.
- The town and
parish council’s relationship with their principal authority is
consistently seen as pivotal to any local governance structure.
The current policy environment can be aid to
be underpinned with the following drivers
1. Localisation – where decisions about service design, commissioning
and delivery
are taken closer to and based on engagement with service users;
2. Personalisation – further encouragement for bespoke and
locally-specific service
delivery approaches;
3. Collaboration – a loosening of organisational boundaries, with scope
for more
integrated service delivery, often with a focus on place;
4. Open access – greater opportunities for new service providers to
enter the market
from outside the statutory sector;
5. Volunteering – a desire to involve local people and organisations in
service planning and delivery
6. Growth – an emphasis upon development which better meets economic and
housing needs.
Strong synergies exist between Local Government Act and Sustainable Communities Act (2007). Existing initiatives should converge to increase the effectiveness of policy decisions. For example, the outcomes of the barrier busting consultation relating to sustainable Communities. Whilst parish councils are capable of submitting these independently of their local authorities it is suggested that parish councils are encouraged to do so in an effective and coordinated manner. Output from this would create a significant resource for the creation of sustainable communities utilising town and parish councils.
There are over 10000 parishes in England, of which approximately 8500 have councils, with approximately 70000 parish councillors. Over 15 million people live in communities served by town and parish councils nationally, that’s 35% of the population. Town and parish councils have been described as the nation’s single most influential grouping of grassroots opinion-formers (NALC 2012). They are representative of, and part of the local community; they are able to provide services to meet local needs as well as having the ability to improve the quality and well being of their local community. The Localism Act (DCLG 2011) as well as the Open Public Services White Paper (HM Gov 2012) is putting an increasing emphasis on town and parish councils to represent their communities and effectively deliver services. A number of policy drivers for local level delivery have been identified and can be summarised as follows:
Parish
councils are a highly effective local governance structure and offer an established
vehicle to realise localism addressing all of the above drivers. Whilst predominantly a rural structure as a
result of the Local Government and Public Involvement in Health Act (DCLG 2007)
there is potential for increased urban parish governance. Evidence of this can
be seen in the establishment of London’s Queens Park Parish Council which will
be the first parish council in London for 50 years when established in 2014.
Considering the incredible potential for town and
parish councils to realise the localism agenda very little work has been
conducted at this level of local government that moves beyond general
commentary (Peterson 2012). Some work is of relevance however. Bishop (2010) explored the nature
of parish councils in the localism agenda with reference to community led
plans. The importance of multi-scalar
governance as a model for exploring the neighbourhood level has also received
some attention (Sommerville 2012).
Other studies have explored the role of democratisation at the parish
level (Coulson 1997) and more recently DEFRA (2012) has explored a number of
areas relating to the devolution of public services under the banner of ‘rural
proofing’. There is an urgent need to ensure that the process of devolution to
this layer of government is fully informed or there is a risk of marginalisation and
missed opportunity. The following will address the principle questions
of this brief.
Efficiency – An
increased perception of efficiency within the delivery of services dissatisfactions
with the level of advice support and overall service provision. There is a
general perceived level of overall of providing services to the local community
by using town and parish councils ultimately creating sustainable communities.
Relevance – Local level governance is seen as being relevant to
the local community. Local governance
structures are seen as capable of prioritising the right issues for the local
communities.
Opportunity – The opportunity to draw on multiple resources
and be engaged with the mechanisms for improving local communities.
Foundational
barriers include a parish’s history and heritage, the composition of its
population and the engagement or place attachment of that space. However, the following issues may be
considered thematic for the creation of community level governance:
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Recommendations
There is an urgent need to
open up the communication lines between the parish council and the
principal authority. Provide the
relevant and focused information. Be
aware of the differences at different levels but also be balanced in your
approach and facilitate effective governance structures. Be sensitive to the differing backgrounds
heritages and relationships that exist at the parish level
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There is
evidence that the ambition and capacity to increase service delivery is
increased in a particular areas where a number of factors converge. This includes a strong community identity, Leadership
within the parish with an emphasis on the important role of clerk and a
strong relationship with statutory service providers
Lack of understanding - as to what an increased level of service delivery would actually involve. Concern over budgetary commitment, review, and accountability for increasing a service portfolio were identified as barriers. There was also concern over what impact this will have on the formal or otherwise structure of the interaction within parish councils. Concern is raised that this additional time and intensity of activity will actually deter people from wanting to become parish councillors in the first instance having a counterproductive impact on the localism agenda. As a predominantly voluntary group this is of particular concern in the smaller parishes which rely exclusively on the good will of those elected. Concerns have been raised that this increase could actually mean that the smaller parishes will lose the support of local community members effectively reducing the capacity of the council.
Relationship
with Principal Authority
‘You need to be aware of who the service provider
is and of course most of the services provided is the local authority so you
have to get on board with them (parish councillor)
The relationship between the principal authority
and parish council is essential for the effective delivery and devolution of
services. Whilst this
relationship was identified as absolutely essential, it was often noted that
the principal authority was not always as supportive as it could be in facilitating
service delivery. The following issues are seen are central and transferable.
Effective
consultation- A process that considers views of parish
councils that move beyond the symbolic.
Communication
and education that effectively supports parish’s and
considers entrenched local issues that will impact specifically on the parish
area. These issues were particularly
highlighted within Cornwall as the county moved to Unitary Authority status. Currently Cornwall Council offers guidance
and support to parish councils for the devolution process. It has outlined a number of case studies that
it segregates into coastal parish, coastal town and rural parish. Such initiatives are essential for the
effective take up of services by parish councils. This process however, must be inclusive,
extensive, transparent and accountable.
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Recommendations
Cornwall Council has
been proactive with their approach to devolution particularly with the
establishment of the Devolution Management Group. This strategic innovation needs to be
effectively executed in order to support the complex evolution agenda
within Cornwall. This also applies
on a generic basis to the relationship between principal authorities and
parish councils
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Observations
at the parish council level of
government offer rich insights into the ongoing development of NCB’s. Parish councils present some parallels when
considering service delivery and the establishment of community/ neighbourhood
levels of government. There is a need to
set realistic priorities and visions that
effectively frame the neighbourhood budgets. Again this returns to earlier observations
concerning communication. This will require a rigorous consultative process
with the local community. There is a
possible tension when it comes to the accountability of budgets the statutory partners restricting or
blocking how the ‘community’ wants to
allocate the resource. Experience and analysis of Local Strategic Partnership’s
arrangements also suggests that within statutory bodies, ‘partnership equity’ should be maintained and
monitored.
The most
important element to encouraging those communities that have the capacity and
inclination to develop this agenda is to clearly communicate the value of this
agenda to their local communities whilst maintaining a strong emphasis on the
role of the statutory budget providers. This
effective communication and framing will not only strengthen the capacity and
appetite of those areas already looking to engage with the process it will also
alert those areas that are yet to engage or feel they do not have the capacity
to the opportunities that are incumbent with the initiative.
Atkinson, H. (2008) Democracy and Empowerment
in London’s Neighbourhoods, 23(4):325-331
Bishop, J. (2010) From Parish Plans to
Localism in England: Straight Track or Long Winding Road? Planning Practice and
Research, 25(5):611-624
Borne, G. (2012)
Power to the Parish, Public Services Review: Local
Government and the Regions 20 http://goo.gl/hmkFf
Borne, G.
(forthcoming) (2013) Governance in Transition: Sustainable Development at the
Local Level in a Global Context, Edwin Mellen Press
Borne, G. (2010a) A Framework for Sustainable
Global Development and Effective Governance of Risk, New York, Edwin Mellen Press
Borne, G. (2010b) Promoting Sustainable
Communities in Devon and Cornwall, Promoting
Sustainable Communities 2(1) http://goo.gl/M8oJ7
Borne, G. (2009) Understanding Town and
Parish Council Needs for a Sustainable Cornwall, Promoting Sustainable Communities 1(2) http://goo.gl/l3UER
Coulson, A. (1999) Decentralisation and Democracy:
The Neglected Potential of Parish Councils, New Economy 6(2):115-118
DEFRA (2012a) Local Level Rural Proofing http://goo.gl/dAPqw
DEFRA (2012b) Local Level Rural Proofing Resource
2: Rural Proofing in Practice http://goo.gl/Vdcze
DCLG (2012), Proposal from Town and Parish Councils Under
the Sustainable Communities Act 2007 http://goo.gl/Adbsh
DCLG (2011) Localism Act http://goo.gl/r6hVt
DCLG (2007) Public Involvement in Health
Act http://goo.gl/X214C
Fenwick, J., McMillan, J., Elcock, H. (2009)
Local Government and the Problem of English Governance , Local Government
Studies, 35(1):5-20
HM Government
(2012) Open Public Services White Paper http://goo.gl/GTpZn
Lehal, J. (2012) A Year on Its Time for a
Charm Offensive on Open Public Services http://goo.gl/LHjnc
McIntyre, T.,
and Halsall, J. (2011) Community Governance and local decision making. Paper
Presented to the ‘Diversity and Convergence: Planning in a World of Change’
Conference, Local Economy, 26(4):269-286
National Association of Local Councils http://goo.gl/9OX8V
Pearce, G., and Ellwood, S. (2002) Modernising
Local government: The Role for Parish
and Town Councils Local Government Studies 28(2):33-54
Peterson, H. (2012) When is a Public Servant
not a Public Servant http://goo.gl/mMqFq
Somerville, P. (2011), Multi-Scalarity and
Neighbourhood Governance, Public Policy and Administration 26(1):81-105
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