Community engagement with English devolution

DOI: https://doi.org/10.58248/HS98

Overview

In September 2024, the government stated the importance of English devolution to plans to increase economic growth.[1],[2] English devolution refers to the handing over of certain powers usually exercised by central government to lower levels of government.[3] These differ in scope depending on the level of devolution (see Figure 1).[4]

In December 2024, the government published the English Devolution White Paper.[5] Key elements include:

• Universal coverage in England of “Strategic Authorities” (SAs) made up of several councils working together, including conversion of current combined authorities.[6]
• A “clear and easy” framework in legislation setting out the powers with each authority type.[7]
• Moving Mayoral SAs to simple majority voting for decision-making.[8]
• Mayoral authorities to receive a consolidated budget across housing, regeneration, local growth, local transport, skills, retrofit, and employment support.[9]
• Further powers regarding transport; housing; planning; adapting to climate change; sustainability; Net Zero; energy; nature recovery; skills; strategic investment; police and crime; fire and rescue; and health and social care.[10]
• Conversion of all two-tier authorities to unitary authorities, and a “re-wiring” of the relationship between town and parish councils and Local Authorities, to strengthen engagement and community voice.[11]

Local authorities choosing to have a mayor will receive more devolved powers than those who do not.[12] SAs (with or without a mayor) will be created by ministerial directive where local leaders do not progress towards agreement.[13]

In 2000, the first devolved English authority – the Mayor of London and the GLA – were created after a referendum.[14] Subsequently, combined authorities (CAs) were created, via secondary legislation under the Local Democracy, Economic Development and Construction Act 2009.[15] This allowed two or more councils to collaborate and make collective decisions. The first was Greater Manchester, in 2011.[16]

In 2014, the government established mayoral CAs (MCAs) with directly-elected mayors.[17] By October 2024, 11 MCAs existed, covering about half of England’s population.[18][19] Although CAs can be set up with or without a mayor, all current CAs are MCAs. Devon and Torbay, and Greater Lancashire, were approved as new non-mayoral CAs in October 2024.[20][21] Between July and December 2024, two new Mayors and 6 non-mayoral devolution agreements have been confirmed.[22]

MCA mayors are sometimes referred to as “metro-mayors” because many MCAs map onto old metropolitan county council areas – a level of local government abolished in 1986.[23] They have been created via different “devolution deals” (some of which have been re-negotiated), meaning mayors have different powers (see Figure 1).[24]

In 2023, Combined County Authorities (CCAs) were created under devolution deals: East Midlands is the first.[25] Greater Lincolnshire CCA and Hull and East Yorkshire MCA were approved in September 2024: both will hold mayoral elections in May 2025.[26]

Challenges and opportunities

A Public Administration and Constitutional Affairs Committee (PACAC) report from 2022-2024 found an “urgent need for significant reform” to local government in England “to strengthen and restore public trust”.[28] Governance structures were found to be complex, confusing, opaque, over-centralised and underfunded.[29]

In some areas there is a two-tier system (county council and district); in others, a single-tier “unitary” authority; others are covered by CAs, MCAs and CCAs, with public service boundaries (such as police, fire, probation, and health) not always aligned.[30],[31] Below all these, there are town and parish councils.[32]

The mayoral model is not well understood,[33] and the public are confused about where responsibility and power lie.[34] Academics, councils and thinktanks have also criticised devolution “deals” as opaque, prone to be interpreted as “cynical” transfers of power between elites, and not clearly representing the needs of all local people.[35] The government has noted that devolution is currently opaque, unclear, unsystematic and inconsistent.[36]

They plan to end one-off deals and introduce a clear and easy-to-follow legislative framework of powers.[37] Public service boundaries are to be coterminous, including more Mayors being responsible for fire and police, and engaging in Integrated Care Partnerships in the long-term.[38] The government intend to “rewire” the relationship between parish and town councils, and local authorities, to improve engagement and local voice.[39]

Thinktanks and academics have called for improved scrutiny and accountability mechanisms of opaque mayoral activity and decision-making.[40] Contributors emphasised that decision-making should incorporate diverse community voices, especially regarding race/ethnicity, socio-economic background, and gender. They noted the decline in local media affecting scrutiny of local politics: over 300 local newspaper titles closed between 2009 and 2019.[41]

While economic impact “cannot yet be directly measured”, the thinktank Institute for Government (IfG) concluded from a review in 2022 that “there is already evidence” that metro mayors “are starting to add value in their regions”.[42] For instance, they can be more attuned to specific local need for adult education and gaps in provision.[43] The government plans to create a statutory duty for Mayors to produce a Local Growth Plan.[44]

This said, IfG noted “the performance of the mayors themselves has … been variable over time and across different regions”.[45] Despite successive governments’ stating devolution would increase enthusiasm, engagement and participation, turnout is generally low in mayoral elections.[46] For instance, in May 2024, turnout for nine of the 10 mayoral elections held varied between 24-32%, with the London turnout highest at 41%.[47]

Although 50% of people say it is important to influence local decisions, only 23% feel able to do so.[48] Feelings of disempowerment have been linked to the first-past-the-post electoral system, used in metro-mayor elections since 2023. Previously, the supplementary vote system was used.[49] IfG have called on the government to reconsider that change.[50]

PACAC recommended a shift in focus from metropolitan to rural and coastal areas, and to improve people’s trust that political participation brings about change.[51] Directly elected mayors may work less well in more rural areas, with tensions between the appropriate geographical scale for elected mayors and local identity.[52] Counties face different challenges to cities, and their situations can be more complex.[53] The government announced devolved powers for some coastal and/or rural areas in September 2024,[54] but called off deals for Norfolk and Suffolk.[55]

In December 2024, the government promised to “explore” how SAs and Mayors can better provide “for rural communities to be considered in local policy decision making” and that SAs should cover areas that people recognise and work in.[56],[57] They also announced a phased reorganisation of all remaining two-tier local government areas covering 29% of people in England within the lifetime of this Parliament on the basis unitary councils improve clarity and accountability, requiring fewer elections and fewer councillors.[58],[59],[60]

New unitary councils will generally cover a population of 500,000 or more,[61] but poorly performing existing unitary authorities may also be reconfigured.[62] The creation of unitary authorities may only be a first step to the creation of further CAs, CCAs, and MAs,[63] which will become SAs[64]. However, research suggests large, unitary authorities are no more efficient or effective, and are less democratic, than district councils, and proposals to create them may lack popular support.[65] The Chair of the Housing, Communities and Local Government Select Committee has stated the proposed reforms raise questions around local representation and concerns of a loss of voice for residents.[66] Available evidence suggests communities are most interested in things that are closest to them – their home, their street, their neighbourhood. Engaging communities in local authority level issues is difficult. For instance, local plan consultations often have low response rates.[67],[68],[69],[70]

Creating and submitting devolution bids, setting up new infrastructure, and holding mayoral elections all take resources. The District Councils Network suggests it reduces political and financial capital for tackling local issues.[71] Local authorities’ budgets have decreased since 2010. Eight councils issued twelve section 114 notices between February 2018 and October 2024 indicating they are unable to meet its expenditure commitments from its income.[72] The government has promised to postpone local elections to save some costs.[73]

Key uncertainties/unknowns

• Evidence of the efficacy of relatively new Metro mayors, MCAs and CCAs is scarce.
• SAs are entirely new: how they will work and be implemented is unknown.
• The government has said it will strengthen engagement and community voice but public trust in, and understanding of, local government is low. It is unclear how public trust and local voice will be maintained within consolidated SAs and unitary authorities that include fewer elections and fewer councillors.

Key questions for Parliament

• Is the new framework for mayoral powers promised by the government an effective step change in devolution? Should the first-past-the-post continue, or the supplementary vote system returned to?
• How can it be ensured communities, and diverse voices, are engaged scrutinising local government? How can local representation be preserved in new SAs and/or unitary authorities?
• How will government ensure devolution, equity and growth are delivered for rural and/or coastal regions and/or those areas which are not yet unitary authorities?

References

[1] Deputy Prime Minister kickstarts new devolution revolution to boost local power – GOV.UK (www.gov.uk) (accessed 19 September 2024); Lincolnshire and East Yorkshire devolution deals given approval – BBC News (accessed 19 September 2024).

[2] Deputy Prime Minister kickstarts new devolution revolution to boost local power – GOV.UK (www.gov.uk) (accessed 19 September 2024); Lincolnshire and East Yorkshire devolution deals given approval – BBC News (accessed 19 September 2024).

[3] English devolution | Institute for Government.

[4] As above.

[5] UK Government. Policy Paper: English Devolution White Paper.

[6] As above.

[7] As above.

[8] UK Government. Policy Paper: English Devolution White Paper.

[9] As above.

[10] As above.

[11] As above.

[12] UK Government. Policy Paper: English Devolution White Paper.

[13] UK Government. Policy Paper: English Devolution White Paper.

[14] Greater London Authority Act 1999 (legislation.gov.uk); House of Commons Library, London Elections 2024 (2024).

[15] As above.

[16] House of Commons Library, Briefing Paper: Combined Authorities (2019).

[17] English devolution | Institute for Government (accessed 2 October 2024).

[18] Everything you need to know about metro mayors | Centre for Cities.

[19] Metro mayors | Institute for Government (accessed 2 October 2024).

[20] House of Commons Library, Briefing Paper: Combined Authorities (2019).

[21] https://mhclgmedia.blog.gov.uk/2024/09/19/major-step-forward-in-governments-devolution-revolution-as-new-powers-agreed-for-english-regions/ (accessed 2 October 2024).

[22] UK Government. Policy Paper: English Devolution White Paper.

[23] House of Lords Library, Local government and local democracy in England – House of Lords Library (parliament.uk).

[24] For more information, see also Devolution Register | Local Government Association.

[25] House of Lords Library, Local government and local democracy in England – House of Lords Library (parliament.uk).

[26] https://www.lincolnshire.gov.uk/devolution (accessed 2 October 2024); https://mhclgmedia.blog.gov.uk/2024/09/19/major-step-forward-in-governments-devolution-revolution-as-new-powers-agreed-for-english-regions/ (accessed 2 October 2024).

[27] https://www.centreforcities.org/wp-content/uploads/2024/02/Powers-table.svg.

[28] Governing England (parliament.uk)

[29] As above.

[30] UK government. Policy Paper: English Devolution White Paper (16 December 2024).

[31] House of Commons Library, Local Government in England: Structures (2024).

[32] As above.

[33] Institute for Government, How Metro Mayors Can Help Level Up England, 2022, 38-39.

[34] Governing England (parliament.uk)

[35] Tomaney, “Limits of Devolution: Localism, Economics and Post-Democracy”, 546-552; Ines Newman, Reclaiming Local Democracy: A progressive future for local government (Bristol: Policy Press, 2014); Institute for Public Policy Research, Empowering Counties: Unlocking Country Devolution Deals (2015), 19-21; Institute for Public Policy Research, Empowering Counties: Unlocking County Devolution Deals (2015), 4-5.

[36] UK Government. Policy Paper: English Devolution White Paper.

[37] UK Government. Policy Paper: English Devolution White Paper..

[38] UK Government. Policy Paper: English Devolution White Paper.

[39] UK Government. Policy Paper: English Devolution White Paper.

[40] Institute for Government, How Metro Mayors Can Help Level Up England, 2022, p.9.

[41] More support needed to halt damaging decline of local journalism, DCMS Committee warns – Committees – UK Parliament (accessed 19 September 2024); Government response to the Cairncross Review: a sustainable future for journalism – GOV.UK (www.gov.uk).

[42] Institute for Government, How Metro Mayors Can Help Level Up England, 2022, 28. Institute for Government, How Metro Mayors Can Help Level Up England, 2022, 28.

[43] As Above, 28-29.

[44] UK government. Policy Paper: English Devolution White Paper (16 December 2024).

[45] As above.

[46] Department of the Environment, Transport and the Regions, A Mayor and Assembly for London: The Government’s Proposals for Modernising the Governance of London. (London: The Stationary Office, 1998); Department for Business, Energy and Industrial Strategy, Evaluation of Devolved Institutions: Final Report, 2021; IfG, Six things we learned from the May 2024 local and mayoral elections | Institute for Government (accessed 19 September 2024).

[47] IfG, Six things we learned from the May 2024 local and mayoral elections | Institute for Government (accessed 19 September 2024).

[48] DCMS Community Life Survey, 2023-2024: Civic Engagement and Social Action.

[49] Electoral Reform Society, Democracy Made in England: Where Next for English Local Government? 2022, 12; House of Commons Library, The 2024 metro-mayor elections (2024).

[50] Institute for Government, How Metro Mayors Can Help Level Up England, 2022, p.39.

[51] Governing England (parliament.uk)

[52] Institute for Public Policy Research, Empowering Counties: Unlocking County Devolution Deals (2015), 4; Institute for Government, How Metro Mayors Can Help Level Up EnglandHow Metro Mayors Can Help Level Up England, 2022, 5.

[53] Institute for Public Policy Research, Empowering Counties: Unlocking County Devolution Deals (2015), 4.

[54] Lincolnshire and East Yorkshire devolution deals given approval – BBC News (accessed 19 September 2024).

[55] Norfolk and Suffolk devo deals dropped | Local Government Chronicle (LGC) (lgcplus.com) (accessed 19 September 2024).

[56] UK Government. Policy Paper: English Devolution White Paper.

[57] UK government. Policy Paper: English Devolution White Paper (16 December 2024).

[58] UK Government. Policy Paper: English Devolution White Paper.

[59] UK Government. Policy Paper: English Devolution White Paper.

[60] Institute for Government. Nine things we learned from the English devolution white paper. December, 2024.

[61] UK Government. Policy Paper: English Devolution White Paper.

[62] UK Government. Policy Paper: English Devolution White Paper.

[63] Institute for Government, How the government can extend devolution to the whole of England (September 2024).

[64] UK Government. Policy Paper: English Devolution White Paper.

[65] As above; Evidence to PACAC from DevoNet (2022), committees.parliament.uk/writtenevidence/16085/html/ (accessed 19 September 2024).

[66] https://committees.parliament.uk/committee/17/housing-communities-and-local-government-committee/news/204454/english-devolution-white-paper-florence-eshalomi-hclg-chair-comments/

[67] Bishop, J. (2015). The Craft of Collaborative Planning. (Abingdon, Routledge)

[68] Lowndes, V. and Sullivan, H. (2008). How Low Can You Go? Rationales and Challenges for Neighbourhood Governance. Public Administration, 86: 53-74

[69] Sturzaker, J., and Shaw, D. (2015). Localism in practice: lessons from a pioneer neighbourhood plan in England. Town Planning Review, Volume 86, Number 5

[70] Sturzaker, J., and Gordon, M. (2017). Democratic tensions in decentralised planning – Rhetoric, legislation and reality in England. Environment and Planning C: Politics and Space, Volume 35, Issue 7

[71] Evidence to PACAC from The District Councils Network (2022) (https://committees.parliament.uk/writtenevidence/16361/html/).

[72] Evidence to PACAC from The District Councils Network (2022) (https://committees.parliament.uk/writtenevidence/16361/html/); Tomaney, “Limits of Devolution: Localism, Economics and Post-Democracy”, 546-552; Governing England (parliament.uk); Local government section 114 (bankruptcy) notices | Institute for Government (accessed 1 October 2024.

[73] UK Government. Policy Paper: English Devolution White Paper.

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