Written evidence submitted by Blackburn
with Darwen Borough Council
(LOCO 080)
1. Executive Summary
¾ Blackburn
with Darwen (BwD) have a proven track record around holistic assimilation
of localism and a bottom up approach to planning and delivering
services (see 2.3).
¾ The
level of partnership and joint working (efficiency) within
the borough is second to none; bringing stakeholders closer for
efficient service delivery. Examples include Local Strategic Partnership
/ Public Service Board, single integrated management team amalgamation
and commissioning health and social care services via Care Trust
Plus (see 2.4 & 5.3).
¾ Decentralised
public service delivery is welcomed. Local autonomy will strengthen
"lean" principles across the organisation and
partner organisations via local authority leadership role. Reinvesting
efficiency savings will ensure service delivery in austere times
(social enterprise model) (see 3.1).
¾ Local
authorities under decentralised model have strengthened capacity
to shape localities and resolve areas of underperformance and
deprivation at the root (see 3.2).
¾ Subsidiarity,
empowerment and appropriate objective setting as a result of decentralised
model (see 3.4).
¾ Learning
from Practice Based Budgeting / Local Integrated Services to date
highlight the importance that only through partnership and radical
change can public services maintain improvements, whilst coping
with the contraction of finance. Thus, re-trenching to silos will
undermine such priorities in disadvantaged parts of the UK (see
4.1).
¾ Local
government role is critical and should be strengthened
to one of leadership across the borough. Particularly pertinent
around helping places deal with change; and reshaping of the state
re: private and third sectors.
¾ Local
government to ensure leadership steer and one direction for the
improvement of the place and services provided via accountability
role with locality at operational and central government at strategic
level (see 5.1 & 5.2).
¾ Central
government departments to grasp and engage fully with the decentralisation
agenda across all boards and employ Flexible Outcome Framework,
remove barriers to delivery and change and ensure single
local budget (see 6.1).
¾ Establish
psychological contract between central and local based
a relationship of trust which is supported thoroughly and
consistently > shift from top down to bottom up (see 6.3).
¾ Integrated
strategy and delivery can derive efficiencies
particularly if change is supported at a range of spatial scales
(see 7.1 and appendix).
¾ Joint
intelligence, improvement and the learning partnership
(see 8.2).
¾ Council
communications are vital in ensuring effective
and appropriate accountability to be achieved (see 9.1).
2. Introduction—About Blackburn with
Darwen Borough Council (BwD) and elaboration on its track record
within the field of local governance, engagement and empowerment
by means of localism at the heart of its organic approach
2.1 Blackburn with Darwen is a unitary authority
area in Lancashire. It consists of Blackburn, the small town of
Darwen to the south of it, and the surrounding countryside. The
Borough covers an area of 13,700 hectares and at the time of the
2001 census had approximately 55,000 households. According to
the 2001 census Blackburn with Darwen had a population of 137,470.
The 2009 Office of National Statistics mid year population estimate
shows that this has increased to 139,900.
2.2 BwD's population is diverse, with 80% identifying
themselves as White and 21% as non-white. The non-white population
is the highest in the region, and almost four times higher than
the national average. Most of the non-white population comes from
Indian (11%) or Pakistani (9%) backgrounds. The borough also has
a population that is significantly younger than the UK average,
with a 30.3% aged 0-19 compared to 23.9% nationally.
2.3 BwD is esteemed for its nationally renowned
track record of innovation, improvement and efficiency at neighbourhood,
borough boundary wide and multi boundary spatial levels. Coined
the town where "partnerships began" by HRH Prince of
Wales (1996); innovation, experimentation and importantly the
endorsement of localism have played in to the strengths of the
Borough and wider relationships with those who make Blackburn
with Darwen a bottom up and democracy focused borough.
Emphasizing localism; The Belonging campaign,
100 hundred voices & neighbourhood voices[1]
provide continuous conviction in bringing to the fore community
action and in delivering a bottom up philosophy.
Continuous improvement as an organisation and community
involvement in setting its ambition was instigated by means of
extensive engagement and consultation in developing "vision
2020" in 2000 forming the borough wide community plan.
In 2009-10 "vision 2030" was finalised and forms
the crux of strategic visioning and target setting by means of
its sustainable community strategy.
2.4 Advancing integrated and efficient strategy
and delivery around the impact a decentralised model of governance
can instil; the borough's Local Strategic Partnership first piloted
a resource mapping exercise in 2004-05, examining single pot funding,
which has acted as a national pre-cursor to "place-based
budgeting". Notable examples of BwD taking a leadership
/ place shaper / facilitator / strategist role include:
2.4.1 a £450 million pooled adult social
care and children's services commissioning budget (Care Trust
Plus) and more recently a nationally renowned single integrated
management team merger between the Borough Council and the Care
Trust Plus (formerly the Primary Care Trust);
2.4.2 £200 million Pennine Lancashire
pooled budget in support of the multi-area agreement (MAA)
infrastructural/capital investment programme supported by a comprehensive
governance structure at the sub-regional level; and
2.4.3 devolution of £1 million of LSP
partners resources to community-led, participatory investments
(in addition to cash for communities funding).
2.5 By adopting this progressive and transformational
approach, the Council has brought forward in year cuts of
£7 million (including £2 million from the Care Trust
Plus integration programme), £2 million efficiencies in Building
Schools for the Future procurement processes and has advanced
planning in place for a further 25% reduction and is leading initiatives
to remodel local public services in concert with borough wide
and sub-regional partners.
3. The extent to which decentralisation leads
to more effective public service delivery; and what the limits
are, or should be, of localism
3.1 In order for the public sector to carry out
decentralised functions effectively, dispersal of financial
as well as policy (some) responsibility will be of core importance.
Adequate level of revenues are necessary, of which, sources can
stem from being raised locally or transferred from central government.
BwD welcome the opportunity to better design the benefits system
in line with local economic strategy within the context of
devolution of both commissioning and delivery role (eg Welfare
to work programme). Holistic design of the system within the locality/boundary
can be run more efficiently when planned locally. Furthermore,
BwD welcomes the opportunity to plough potential savings/efficiencies
back into the boundary (Place Based Budgeting/Local Integrated
Services see 4.1) as per model illustrated via social enterprise
methodology (ease cuts area).
3.2 The notion of decentralising governance and
in so doing, putting the power back into the hands of organisations
such as local authorities, gives local areas the ability to shape
their own destinies and resolve issues / provide solutions
at the root rather nipping issues at the bud. Thereby reducing
central government department burden, financial costs and providing
a timely and appropriate response/solution to place based need.
Subsequently achieving bottom up delivery as opposed to
the traditional method of top down services under the one size
fits all centralised governance model.
3.3 The Council therefore welcomes the forthcoming
"general power of competence" via localism and decentralisation
bill and existing "well being power" via Local Government
Act 1972/2000, whereby local authorities can exercise the autonomy
to pursue a local leadership role with greater certainty and
encouraged innovation by means of independence to do "anything"
which is considered likely to be of benefit to any given local
area or to any people who are resident in, or present in the area,
as well as the power of improving economic, social and/or environmental
well being.
Furthermore, integrated and efficient strategy/delivery
are paramount when developing autonomy through a decentralised
model, hence the importance of partnership bodies.
3.4 The extent to which decentralised public
services increase effectiveness are three fold:
3.4.1 Building on the principle of subsidiarity,[2]
public servants and or organisations lower down the chain have
a greater understanding of the environment they work in
and the people (residents and colleagues) that they interact with.
This, in turn diversifies knowledge, skills and experience gained
and contributes toward the right decisions being made at the
right time.
3.4.2 Leaders at a national level have more time
to concentrate on the most important and major decisions required.
Decisions at a local level are undertaken by local leadership,
consequently, delivering "freedom to lead—trust to
deliver" model. Furthermore, increasing the level of local
government accountability to local residents will have a number
of benefits including the ability to set appropriate objectives
and service delivery to meet community/locality need.
3.4.3 Transferring decision making away from
the "centre" is a form of empowerment, thus increasing
motivation and therefore an increase in staff output. When put
into context of the changing face of the public sector and global
financial austerity, empowerment is a crucial factor to work through
this period of colossal change.
Furthermore, Blackburn with
Darwen have embarked upon an organisational transformation programme,
namely, "Reach", which is a programme that will ensure
the Council is working proactively to ensure a fit for purpose
organisation is the result as we work through times of change
and austerity. The devolving of decision making powers cemented
with increased levels of motivation as well as softer side of
organisational transformation (Reach), are effective ways of ensuring
increased levels of public service delivery are achieved.
3.5 We are mindful that localism can lead to
post code lottery, so we propose a flexible national outcome framework
across Whitehall departments. Hence, initiatives such as Place
Based Budgeting/Local Integrated Services are important as they
provide a medium for addressing disadvantage and championing change.
There is also a need to ensure clear dialogue of
suitability when using power to do, delegate or decide anything,
but ability to work freely with little interference; similar to
that of a manager and officer, whereby improved service efficiency
and workforce improvement is achieved by a relationship built
on the principles a psychological contract around "trust
to deliver" (see section 6).
4. The lessons for decentralisation from Total
Place, and the potential to build on the work done under that
initiative, particularly through place-based budgeting
4.1 Blackburn with Darwen Council is at the forefront
of taking forward Local Integrated Services through Place Based
Budgeting; having recently submitted its request to take part
in the pilot which Cabinet Office and Communities and Local Government
are jointly leading.
4.1.1 Lessons learned through the submission;
only through partnership and radical change can public services
maintain improvements, whilst coping with the contraction of finance.
Re-trenching to silos will undermine such priorities in disadvantaged
parts of the UK; slipping back into new public management model.
A copy of the submitted Place
Based Budgeting / Local Integrated Services proposal is included
in appendix.
4.2 The proposal builds on the proactive, community-led
approaches to budgeting and service improvement already underway
in Blackburn with Darwen, to offer a unique range of options for
complimentary "multi-spatial" place-based budgets and
local integrated service models. The spatial and budget options
proposed include:
4.2.1 Ward—level intervention with a target
population of circa 8000 and a pooled budget of circa £50-100k.
4.2.2 Building up to neighbourhood—level
intervention with a target population of circa 25,000-35,000 and
a pooled budget of circa £500k.
4.2.3 Building up to Local Authority—level
intervention with a target population of circa 140,000 and a pooled
budget of circa £115 million.
4.2.4 Building up to Sub-Regional—level
intervention with a Pennine Lancashire target population of circa
500,000 and a pooled budget of circa £350 million.
4.3 In adopting this approach, partners in Blackburn
with Darwen are seeking to embed a new model of public service
intervention in order to address the following socio-economic
outcomes:
| Improved outcomes for families
| ? | Think Family model of intervention
|
| Improved skills and economy | ?
| Prosperous Towns Skills and Economy |
| Strong and resilient communities | ?
| Connectivity—Strong and Resilient Communities
|
The outcomes-based themes, and the key elements of the local integrated
service and place-based budget model, are founded on principles
of community engagement, community-led design of services and
a new relationship with voluntary and community sector partners
to reflect the Big Society agenda.
5. The role of local government in a decentralised model
of local public service delivery, and the extent to which localism
can and should extend to other local agents
5.1 The role of local government within a decentralised
model of governance is one of vast importance, and one which should
be strengthened. A role consisting of characteristics such
as that of a place shaper, strategist and facilitator
surface to attention.
Local government is located at the heart of a given boundary,
it is therefore of imperative importance to position its function
one step backward in the form of the corporate centre / "boiler
room" for the boundary by taking the chair / offering
leadership steer / ensuring single direction[3]
and at the same time continuing to deliver both statutory and
non-statutory services; hence the role of local government within
a decentralised model as one of a "leadership and delivery"
body.
5.2 Diagram 5.2.1 is illustrated as an eye; the subsequent
cross-section provide further clarification around the notion
of local government helping places deal with change and
in the re-shaping of the state re: private and third sectors).
This tied in with the forthcoming "general power of competence"
grants freedom and flexibility to shape activity underpinned by
resident and organisational/sector benefit (qualitative and financial)
in mind. Hence, in order for decentralised public service delivery
to blossom, agents across the public service delivery sector
(public, third and private) are of paramount importance
and play a priceless role when making localism and the Big
Society part of everyday life by decentralising power as far a
possible.
- New Local Public Service Eye
-
5.3 As mentioned within the introduction Blackburn with Darwen
have initiated and are continuously developing effective working
arrangements across all sectors within the borough as well as
at a sub-regional level (Pennine Lancashire). TheLocal Strategic
Partnership and Local Public Service Board bring together each
and every stakeholder in all things public service delivery
related. The success in synchronising alternate areas of service
delivery is no mean feat, and recent execution of the nationally
renowned single integrated management structure amalgamation (SIMT),[4]
preceding conversion from Primary Care Trust to Care Trust
Plus; illustrate the leadership aptitude in response to national
policy agenda. Moreover, and in recent times, the integration
of a joint chief executive between Borough Council and
Care Trust Plus, has resulted in progressive dialogue between
General Practitioner and relevant bodies in the run up to the
formation of GP Consortia arrangements as per Health White Paper.
All the above examples illustrate the ability for local government
to carry out "leadership and delivery" functions.
5.4 Importantly, effective devolution cannot be put
into effect without bodies such as the Local Strategic Partnership
(LSP) and Local Public Service Board (LPSB). Building
on integrated and efficient strategy/delivery; the benefits of
partnership arrangements include joint intelligence / joint
planning / shared services.
Furthermore, the ongoing "professionalisation" agenda
within the third sector and the Big Society initiative further
strengthens the role of civil society involvement within the delivery
of public services.
Partnership arrangements such as LSP/LPSB provide a vehicle for
getting the right people around the table first time every
time to avoid duplication, repetition, and ensuring one collective
voice across the area.
6. The action which will be necessary on the part of Whitehall
departments to achieve effective decentralised public service
delivery
6.1 Examples of the roles/requirements/asks needed
to achieve effective decentralised public service delivery include:
6.1.1 That there would be a single local budget under the
control of the lead responsible local authority—no ring
fences within these budgets or nationally imposed restrictions
> reinforcing importance of Place Based Budgeting concept.
6.1.2 A senior lead civil servant as the Accountable Officer
for Government underpinned by a Flexible Outcome Framework.
6.1.3 A commitment in principle across Whitehall to remove
barriers to delivery and change, via the introduction of Flexible
Outcome Framework across all departments.
6.2 Mindful of culture change implementation in realising
effective decentralised public service delivery; it is important
to bring to the fore and contextualise potential delimiters within
central government routine/culture. There may be a particular
dilemma in central government to do with the centralised nature
of financial and political accountability and the impact this
has on the ability of managers down the line to take initiative
in addressing specific problems. That saying; one broad message
is the importance of focussing on people management and development,
as much as on finance and other resources if there is a wish to
improve standards of public sector management. Higher levels of
public service will not be delivered by a dissatisfied workforce.
For a decentralised model to perform, surely, the need for relationships
to be strengthened is critical. Strengthening, thus, can take
the form of developing the model of the "psychological contract"[5]
both between local and central. The latter of which plays
pivotal effect on decentralised public service delivery. However,
the nature of the psychological contract between latter and former
will differ, but basis will remain due to the nature of public
sector management at: central level, central to local and local
governance level.
6.3 The psychological contract therefore looks at the reality
of the situation as perceived by the parties, and may be more
influential than the formal contract in affecting how employees/organisations
behave from day to day over a given period of time. It is the
psychological contract that effectively tells employees/organisations
what they are required to do in order to meet their side
of the bargain, and what they can expect from their area
of responsibility.
6.3.1 Whitehall departments to support thoroughly and consistently
the development of psychological contract between local and central;
putting emphasis around an organic relationship based on values,
behaviours, relationships, standards, and trust. Within
the context of the decentralised model, a fresh approach would
focus around developing effective local governance based around
a relationship of trust; rather than merely the handling
out of grants for the purpose of developing any given area economically,
socially, physically (regeneration) etc.
6.4 In order for the reforms set out in DCLG "structural
reform plan", whereby, the notion of turning government on
its head, by taking power away from Whitehall and putting it into
the hands of people and communities to be holistically achieved;
one fundamental ask is proposed: For the plethora of departments
to genuinely grasp and engage in the foundations positioned
within the "CLG SRP". Moreover, for all departments
to operate a "one voice" strategy, ensuring mixed
messages are avoided and for a positive communication around decentralised
public service delivery a result via continuously engaging and
acting upon a model of an "empowering devolved governance
model".
7. The impact of decentralisation on the achievement of
savings in the cost of local public services and the effective
targeting of cuts to those services
7.1 BwD is confident that integrated strategy and delivery
can derive efficiencies particularly if change is supported at
a range of spatial scales. For example Blackburn with Darwen Care
Trust Plus at LSP and Multi Area Agreement at sub regional level
(PLACE—Pennine Lancashire Association of Chief Executives).
See 4.1 & appendix.
8. What, if any, arrangements for the oversight of local
authority performance will be necessary to ensure effective local
public service delivery
8.1 The key areas/asks for consideration in relation to performance
management include: increasing local government accountability
to residents; preparation of data relating to information important
to spatial boundaries; reduction in inspection regime with more
focus on areas of risk/resilience of an area and sector led peer
review to ensure continuous improvement, to name but a few. Various
points will now follow to bolster the response to the question
set:
8.1.1 Prioritise economic development and resilience based
forward planning. Proactive management of high risk areas,
for example safeguarding.
8.1.2 Formation of "Place Based Indicators",
in line with "Place Based Budgeting" concept, with focus
on locally set measures to tackle areas of need within the geographical
boundary.
8.1.3 Sector led benchmarking, whereby SIS, would be
analysed and collated in such a way to ensure benchmarking with
similar areas. ie Blackburn with Darwen benchmarking against authorities
with similar priorities.
8.1.4 Ensuring and placing accountability on local authorities
to ensure bottom up approach used in setting measures:
Performance management, form a stance of
improvement focuses on making it work for the locality and not
for an external system such as that of the national indicator
set. Taking heed of "localism, localism, localism",
the utopian way to achieve it is to involve local people in formulating
the vision and measures needed to improve an area. Simply
put, local residents who are eating, breathing and living
locally are in as good if not better place than centralised policy
makers.
8.2 Reaffirming the role of partnerships and joint intelligence
in developing improvement; BwD LSP as a "learning partnership"
has adopted a process of annual self assessment. The Local Public
Service Board on behalf of the LSP in November 2009 agreed to
adopt an urgent consideration of collaborative intervention for
under-performing Local Area Agreement targets, in relation to
health inequalities.
The resultant accelerated delivery planning (ADP) process, led
by the Director of Public Health and the Council's Policy and
Communications Department, involved a series of facilitated workshops,
with a wide range of stakeholders, including lead clinicians.
Underpinned by a robust analysis of historical and projected trend
data, and a sound understanding of the Health Inequalities National
Support Team's (HINST's) interventions model, stakeholders were
asked to identify short, medium and long term priorities for delivery.
8.2.1 They HINST commented that they wish to recommend the
ADP process nationally saying "In conclusion, the process
followed is exemplary and will be used by the HINST as best practice".
9. How effective and appropriate accountability can be
achieved for expenditure on the delivery of local services, especially
for that voted by Parliament rather than raised locally
9.1 Council communications are vital in this context.
"The Shuttle" is published by BwD to keep residents
informed about the work of the Council and its partners. It is
distributed to all homes in the borough, more than 59,000. It
is a six-weekly publication with wide readership. The Shuttle
attracts various articles and comments from the residents of the
borough. In recent months, following the evaluation of the "workroutes"
and "re:fresh" campaigns. Findings have illustrated
the significant impact "The Shuttle" has made on active
participation for the services. "workroutes" focussed
on economic development and employment, and "re:fresh"
on engaging residents toward healthy lifestyles via health and
well being directed activities (free leisure).
9.2 In order for effective and appropriate accountability
to be achieved for expenditure on the delivery of services, innovation
such as that via "The Shuttle", Council and LSP internet
and frequent public meetings hold the key to delivering accountability
to the end user—the resident.
In Blackburn with Darwen, a track record of innovation and creativity
as well as involving all stakeholders in the decision making and
planning process of services, puts the authority at a favourable
advantage in continuing and improving on providing effective accountability
to all stakeholders (through and across central and local tiers).
In line with statements made throughout this evidence, references
have been made toward closer working between public, private and
civil society in shaping a better borough (new public service
eye). Moreover, Blackburn with Darwen within its "leadership
& delivery" role plays the pivotal role in the schema
of accountability. It is therefore, of critical importance, that
publications' such as The Shuttle continuously improve as one
element in the delivery of effective accountability to all stakeholders,
whether central or local.
9.3 The Shuttle has evolved over time and attracts robust
reinforcement via the wider local strategic partnership and the
local public service board in both contribution to and outcomes
from. Closer working within public service delivery is one of
the "keys" to success in the form of reducing duplication
and ensuring one message is employed by relevant bodies. The Shuttle
is one method of reducing duplication both in financial as well
policy and in highlighting performance (accountability).
9.4 Further to the notion of financial accountability; service
performance in the form of answering "so what?" and
"what difference has it made?" play a vital if not equal
role. Financial and performance related accountability
work hand in hand. Blackburn with Darwen has developed multi layer
governance at various levels across the borough, ie participatory
budgeting at the neighbourhood level. Furthermore, Elected Members
hold regular surgeries with residents, neighbourhood board arrangements
are present, public meetings are held, live internet webpage available,
web 2.0 endeavour as well as publications such as The Shuttle
are all part and parcel in answering how effective and appropriate
accountability is already taking place across all levels within
the borough, including:
9.4.1 "Performance Information Packs" covering
key areas of spend and performance information in relation to
current activity is a tool for communicating (both strategic "centrally"
and operational "locally" as appropriate) a holistic
model of accountability and can be used in any element of the
multi layer governance arrangements that exist within BwD.
9.5 The above points highlight that this local authority has
a consistent approach of delivering initiatives and engaging all
stakeholders whilst working with accountability systems and structures
that have been set centrally.
10. Recommendations
¾ Invite
relevant committee members to visit the borough for further insight
into current activity and innovation.
¾ Strengthened
role of Local Authority within the borough—partnership bodies
(LSP/LPSB) are a fundamental toward effective decentralisation.
¾ Outcomes
framework to be developed underpinned by a level of flexibility
whereby local partnerships take ownership for improving those
outcomes which matter to local people.
¾ Sector
led improvement and innovation which builds on the self awareness
of learning partnerships.
October 2010
1 Belonging Campaign (2004)-One
of Blackburn with Darwen's great strengths is our diversity and
the way in which so many different communities and individuals
actively contribute to the life of our borough. A common vision
and sense of belonging for all communities was translated into
a belonging campaign.
Belonging Charter-Further to the "Belonging Campaign"
citizens, voluntary/community groups, schools, organisations etc
were encouraged to sign the Belonging Charter (outlines a set
of common values around cohesion and equality) to build mutual
respect, civility and hopefully bring people from different backgrounds
together.
100 Voices (2007)-(Borough wide level)-Facilitated discussion
with local people regarding the key issues relating to community
cohesion within the Borough and identify actions that organisations,
communities and individuals can take. The Borough wide
"100 voices" events agreed three outcomes and these
are as follows:
1. Delivering the 100 voices consultation at a neighbourhood level.
2. Twinning of Schools-currently the council encourages all its
schools to develop twinning so as to provide community cohesion
and to address the issue of parallel lives.
3. To start the planning process of a Belonging Event, which creates
a sense of belonging and togetherness.
Neighbourhood Voices (2008)-Facilitated discussion with
local people at neighbourhood level around key issues facing them
in their neighbourhoods around litter, traffic, jobs, education,
anti social behaviour and crime etc. Resulting in collective joint
action between communities (whatever background) and provided
a shared sense of neighbourhoods, developing understanding and
adopting common priorities.
Key Outcomes for Neighbourhood Voices
- Local consultations to sharpen Area Action Plans.
- Provide the Neighbourhood dimension for the 2008 LAA.
- Eight Reports (key findings/compiled independently).
- Community Cohesion Strategy & Action Plan.
- www.blackburn.gov.uk/neighbourhoodvoices Back
2
Subsidiarity is a concept for the division of legislative powers
at the lowest possible and efficient level. The principle is close
to the principle of decentralisation. Back
3
Particularly pertinent around the notion of helping places
deal with change and in the re-shaping of the state re: private
and third sectors Back
4
http://www.lgcplus.com/briefings/joint-working/health/blackburn-unveils-shared-management-plans/5016733.article Back
5
The psychological contract can be defined as the perceptions of
both parties to the employment/agreement relationship, organisation
and individual, of the reciprocal promises and obligations implied
in that relationship. The value of the psychological contract
lies partly in its recognition of the individualisation of the
employment/agreement relationship. It can usefully be understood
as an individual organisation relationship or intra organisation
relationship for the purposes of an empowering decentralised model
of governance. Back
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