Jonathan Werran is Chief Executive of Localis.
Like a wild schoolyard football game, it will be a case of everyone’s eyes on the ball, with their legs enthusiastically following, as we throw our attention into the joyful pile-on of local and devolved election results.
We should certainly enjoy the spectacle of postponed local democracy restored, while voters in their millions flock to polling booths across England to vote in various district, county, unitary, London mayoral and regional mayoral combined authority elections.
But were we to zoom out and survey the whole frame, we’d see a tangled skein of pitches with different games being played out on fields of various sizes, to somewhat different sets of rules.
This is because, for many parts of England, a devolution destiny remains unfixed. This means, in certain cases, it remains doubtful whether there will be repeat polling business four years hence. The baked-in assumption is that in order to secure prized strategic devolution deals, parts of the country will submit themselves to the Whitehall meatgrinder of reorganisation.
The white paper and the problem of “place”
Today Localis has issued a place-based analysis of “Building Back Better” in a report entitled A Plan for Local Growth. The central thrust of our argument is that there should be a strict separation between short-term, community-led decision-making for town centre and high-street renewal – which boosts place prosperity – and long-term, high-value central government infrastructure strategies aimed at raising historic low-levels of productivity.
To this end, central government must get behind community control of high-street regeneration, accelerate devolved skills reforms and define a clear role for local authorities and their economic partners in driving economic development and meeting net zero targets.
On that vexed issue of local government reorganisation, our analysis questions the efficacy of driving economic recovery through changes of machinery to the local state. Localis firmly believes that national recovery through building back better and “levelling up” will only succeed through a grounded approach focused on place – melding the horizontal elements of place with the sector based vertical deals from the ancien regime’s industrial strategy.
However, the problem seemingly is that the definition of “place” can mean literally anything across separate Whitehall departments operating in the same place. This is often to the bewilderment of authorities seeking inward investment and businesses seeking to survive and thrive beyond Brexit and Covid.
This Whitehall disconnect also applies to public services. Anything from dedicated schools grant, migration to criminal justice reform can see individual departments taking on bit parts – research, funding, delivery. Perhaps whether the ambit of the Levelling Up White Paper can solve the perennial problem of un-joined-up government is a moot point. But a way is needed to integrate disparate cross-departmental central government agendas so that there is actual early proof these connect at the level of place, work in practice and inspire confidence to move onwards at speed.
This is where we must pin our hopes upon Neil O’Brien to ride to the rescue.
On account of the time, money, political capital and economic potential forever lost to the pandemic, we find ourselves at more of a crucial moment than we perhaps realise. The moment calls for urgently aligning the agenda for devolution and decentralisation with that of growth and recovery.
So it is a hopeful sign that O’Brien has been set the task of pulling together the disparate threads of the levelling up agenda into a forthcoming white paper, resurrecting a cause deflated by last autumn’s failure to launch the English Devolution and Economic Recovery White Paper amid the sudden ministerial departure of Simon Clarke.
The challenge demands a policy mind as sharp and political senses as keen as O’Brien possesses. The levelling up agenda currently risks a fate worse than “Big Society” – as a potentially hugely transformative agenda with popular appeal that dies from lack of rootedness in local daily life and concrete, plainly visible outcomes.
Joining the dots on levelling up
Devolution and growth must be seen as so intrinsically linked as for one to be as impossible to conceive of as existing without the presence of the other. There’s a fancy term from classical rhetoric for the occasion, “hendiadys” or literally “one through two”. In common parlance, think of “bread and butter” or “fish and chips” and try imagining in your mind one of these essential elements without the thought of the other arising.
In an earlier Localis contribution to ConHome on England’s place in the union, and taking our cue from George Orwell, we advocated that “England has got to assume its real shape”. A bit of local laissez-faire and free choice when it comes to English local governance might not be the worst outcome, it was argued. And as Paul Goodman instantly observed of the Plan for Growth in ConHome, “if it really wants to go for sustainable and more even growth, the Government will need to devolve more power”.
So on the basis that levelling up, a radical economic overhaul and zero carbon cannot be delivered from the centre, and that we must trust in the new mayors to use their convening powers to get the local political economy around the table, how might we suggest the Levelling Up White Paper create maximum benefit for minimum effort? To build on the foundations laid out in the Plan for Growth, Localis recommends that the Levelling Up White Paper should:
- Create pathways to community autonomy as a vehicle for hyperlocal, small-scale and patient financing of regeneration;
- build a framework for devolution to skills advisory panels to facilitate local collaboration between employers, providers and education authorities to further accelerate the push to improve skill levels;
- create a clear role for the local state in driving towards the skills for net zero; and
- clarify and codify the role for existing institutions of the local state particularly local authorities in LEPs – in driving economic development.
The political and economic imperative
Many Red Wall Conservative MPs will become if they are not already are acutely alert to the fact that they risk paying the political price for an unreformed, silo-fixated Whitehall’s disjointed and agonisingly slow local delivery at local level.
The test for Levelling Up White Paper will be its ability to work through connective administrative tissue of the “people’s priorities” – clean growth, whatever new badge is thrown over industrial strategy, as well as local skills training. A joined-up and fleshed-out levelling up can achieve a virtuous circle of devolution, leading to growth and recovery that inspires further trust and pride in place and place leadership.
Witness the electoral fortunes of Ben Houchen in Tees Valley and Andy Street in the West Midlands. Their likely success is testament to the policy vision laid out for trusting men of “push and go”, charismatic regional leaders with energy and vision to champion their wide economic area. So on the basis that a combination of the vaccination bounce and whatever local political factors ensure a satisfactory set of local and regional results overnight, there should be both confidence and conviction to repay this trust with Whitehall ceding more powers to metro mayors in a deeper devolution settlement.
Otherwise, we risk the continuation of a lop-sided, centrally-led, interventionist growth policy which only serves to hamstring our localities from achieving anything like their fullest inherent economic and place potential.