Download - Conurbation lecture 2010
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Managing the complex
conurbation
The Greater Manchester City-Region
7th December 2010
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Structure
1 Introduction : managing the complex conurbation.
2 The urban policy laboratory3 Localities in the recession. 4 Mancunian Mechanisms5 RGF/ LEP = City Regional Policy
under the Coalition.
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“Fundamental questions of constitutional structures, centre-region relations, institutional co-ordination, and public expenditure… are addressed as the perhaps unglamorous dimensions of sub-national government and governance.” (Pike and Tomaney 2004)
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The Urban Policy Laboratory.
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POLICY STRAND 1 Regeneration Policy [Alphabet Soup]
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POLICY STRAND 2 The Local Government Modernisation Agenda [turning round the tanker]
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POLICY STRAND 3 Performance management measurement, audit and inspection [drowning in documents…]
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Joined up government?
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POLICY STRAND 1 Regeneration Policy [Alphabet Soup]
• Multiple initiatives • Time scale• Funding • Target regime• Area of benefit• Delivery mechanism / model• Thematic focus• Client group• Governance arrangements• Partnership requirements• “initiativitis”
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Regeneration – Governance
1997-2010 4 phases
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HO PSA Delivery
PSA 5
PSA 3
PSA 2 (Joint OCJR)
PSA 1
PSA 4
PSA 7
PSA 6
One City Partnership
(LSP)
Notts Police
GOEM (43Staff)
5 Police Forces; 9 DATs;40 CDRPs; 49 Local Auth’s
ProbationPrisonsNASS ASBPolicingPolicy
PolicingStandards
CrimeReduction
Drugs ACDCCU, REU, F
NDCLCJB
9 Area Committees
NOMS
CJS
OCJR CRCSG CommunitiesIND
NottinghamCity Council
Police Authority
Probation Inspectorate
CDRP DATCJIP
Compact
CPS
HMICPrisons
Inspectorate
Individual Regional Offices
Nott BCU
ProbationService
YOT
Courts
REGIONAL
NATIONAL
LOCAL
HMP
Voluntary & Community Sector
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POLICY STRAND 2 The LGMA [turning round the tanker]
LGMA shorthand for policy interventions designed to improve (perceived) issues around
Efficiency
Accountability
Decision making Process
Finance
Functions
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POLICY STRAND 3 Performance management measurement, audit and inspection [drowning in documents…]
Meanwhile elsewhere in Whitehall…
The Improvement Agenda (close to LGMA but not totally connected)
Empowered the Audit Commission
Waves of improvement
BVPI – Best Value Performance Indicators
CPA – Corporate Performance Assessment
CAA - Comprehensive Area Assessment
The PSA Regime (Public Services Agreements)
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Gordon Brown’s Approach – PSA regime
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PSA
• Connecting manifesto to delivery mechanisms of Whitehall
• Connecting to “floor targets”
• In some ways odd to have to invent this…
• The “machinery of government” is quite tricky…
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PSA match to ministers (2007)Power within the Core Executive I
• Figure 3 Number of PSAs for which each Cabinet Minister is operationally responsible.
• Minister Department Number of PSAs• Ed Balls DCFS 5• Jacqui Smith Home Office 4• John Hutton DBERR 3• Hazel Blears DCLG 2• Peter Hain DWP 2• Alan Johnson DH 2• John Denham DIUS 2• Hilary Benn DEFRA 2• Alistair Darling HMT 1• Jack Straw MoJ 1• Ruth Kelly DfT 1• James Purnell DCMS 1• Ed Miliband Cabinet Office 1• Douglas Alexander DFID 1• David Miliband FCO 1• Harriet Harman Government Equalities Office 1
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Underlying logic connecting
• PSA regime
• RIS
• MAAs/EPBs/SCR pilots
• LAA regime
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Police
Duty on local councils and other local partners to work together to agree a single set of priorities through a Sustainable Community
Strategy and a Local Area Agreement
Three year delivery plan:Local Area
Agreement (LAA)
Council
Local Neighbourhoods
Local Strategic
Partnership
Long term Sustainable Community
Strategy (SCS)
Service Charter
Service Charter
Health Private sector
Community sector
Local Neighbourhoods
Local Partnership governance architecture
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Measuring Success: State of the City
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Role of localities in the Recession
Policy
SNR
• Regeneration Framework
• Parkinson report
• CLG / BIS
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Central-Local Policy Network
Congested terrain!
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Think tanks re: recession
• LGA from recession to recovery: the local dimension
• CLES toward a new wave of local economic activism
• Work Foundation: Recession and Recovery: How UK cities can respond and drive the recovery
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Role of cities in a recession
Discuss in pairs/threes for 5 mins…What is the role of a city/locality in the
recession?
None? – let the market do it’s thing?Welfare? role of partners eg. jc+Leadership?Others – want 6 please
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Ideopolis - Work Foundation
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Barcelona Principles – The Work Foundation
i. Don’t waste the crisis, but respond with leadership and purpose.ii. Make the case for continued public investment and public services and the taxes and other sources of investment required.iii. In the long-term: build local economic strategies which align with long-term drivers and identify future sources of jobs, enterprise, and innovation.iv. In the short-term: focus on retaining productive people, business, incomes, jobs, and investment projects. v. Build the tools and approaches to attract and retain external investment over the long-term.vi. Build genuine long-term relationships with the private sector, trade unions, and other key partners.vii. Take steps to ensure the sustainability and productivity of public works, infrastructure, and major developments/events. viii Local leaders should act purposefully to support their citizens in the face of increased hardship.ix. Local economies have benefitted and should continue to benefit from being open and attractive to international populations and capital.x. Communicate and align with national and other higher tier governments.
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Role of localities in the recession : political considerations
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LGA ● London is the region most likely to underperform the national
average in a recession, and the South-West the least;
● Major cities outside London such as Newcastle, Leeds and Manchester are likely to do better than the capital.
This research strongly suggests that the most effective way of targeting a response to recession in the places it will make the most difference is to continue with the policies of devolving economic decision-making to which the government has committed itself.
In time of a recession, the need for devolution to sub-regions, including counties, functional economic areas, local council partnerships and individual local authorities becomes more obvious and more urgent.
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Brookings/LSE Cities
• New Report
• Comparison of 150 Global Metropolitan Economies
• http://www.brookings.edu/~/media/Files/rc/reports/2010/1130_global_metro_monitor/1130_global_metro_monitor.pdf
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Mancunian Mechanisms
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Books
• Managing the city: the aims and impacts of urban policy Brian Turnbull Robson 1987
• Managing the cityeds Liddle, Diamond, Southern 2007
• City of Revolution eds Ward and Peck• How Manchester is managed 1925-1939
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Stories of “Mancunian ways”
• Mancunian Ways : the politics of regeneration Robson (Chapter 3 City of Revolution)
• Metropolitan Manoeuvres : making greater Manchester Deas and Ward (Chapter City of Revolution)
• Greater Manchester – ‘up and going’, 2000 Hebbert and Deas
• Greater Manchester : conurbation complexity and local government structure Barlow, 1995
• Manchester: Making it Happen Hebbert, 2009
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Think tanks: Manchester
• Work Foundation : Ideopolis
• Localis : Can Localism Deliver? Lessons from Manchester
• Policy Exchange : Cities Limited
• NESTA : Original Modern : Manchester’s journey to innovation and growth
City publications
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What is Manchester?
• Political• Economic• Statistical• Administrative• Cultural (music and sport)Construction
A Brand?
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City / City Regional reification
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The manchester case• What are the features of the local governance partnership
architecture in the Greater Manchester city region?• How are existing institutions connected?• What are the connections back to National policy agendas?• What other international models are in play? • Is it unique in the UK? If so in what way? • Are the movers and shakers “the good guys”?
Contention; there is something about manchester ; confidence, autonomy, stability, leadership, assertive bargaining stance with the centre (bombast?) (Robson - Mancunian Ways)
“we use the bits of the SNR which fit our agenda and throw out the bits that don’t”
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Features of political landscape in manchester city region
• Helpful in explaining why confident city-regional governance may flourish in Greater Manchester
• Straightforward, horse-trading politics of this…• Traditional Labour authorities (leader of Wigan/AGMA since
1984)• Entrepreneurial authorities (Manchester/Salford)• Lib-Dem oppositional authorities• Role of non-Executive Cllrs• Role of communities/3rd Sector• MPs many with LG background
“we always had better discussions around policy within Labour Group than we do in the PLP…you have to work out how to be effective as an MP whereas in the council your authority is far more direct and tangible”
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what have they created?• Using an MAA bidding process (first in
the queue)• Building on AGMA, radically reformed• Incorporating TIF • Linking through to LAA structures• Stretching democratic mandate (!)• Working with business leaders (6/7)
A “Commission” model (QMV, delegated authority comparable to EU commission)
• 7 City Regional Thematic Commissions• Economic one central and fully formed
others immanent (?!)
Compare and contrast with readiness in other MAA areas ?
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Organigramme I ; the MAA
Transport Improvement Health Economy Environment
Public
Protection
Housing
& Planning
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• Interactions between separate tiers
• MAA self organising autonomous governance network
• LAA statutory output based performance framework
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How Manchester is managed, 1935
Regional Planning : The most effective planning scheme is one which is comprehensive in character and not limited by the artificial boundary of a local authority’s area. It’s success depends upon (1) securing an area capable of economic development (2) effective joint action with neighbouring authorities
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City regional bodies
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City Relationships:Economic linkages in Northern city regions
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City Regions and the North
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LA boundaries within “the North”
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The City Regions of the Northern Way
• 8 City Regions (2004)• Took CRDPs • and transformed into
MAAs
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Mersey MAA
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Merseyside MAA
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Leeds Statutory City Region
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‘eternal mobility’ in sub-national
institutional restructuring
Since 1997 policy discourse has “bounced around” scales eg…
• Neighbourhood (renewal)
• Regional (development agencies etc.)
• City Regional
• LOCAL??
The effect is fragmented delivery vehicles in competition
“of course The A of the ABI is not the A of the LAA”
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Treating complex networks as complex networks!
• From formal network theory – own terminology!!
• Clique governance is presented as ideal for innovation
• The role of brokers /boundary spanners is very important
• SNA ; ideal type clique governance via brokers
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Different types of networks
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AGMA
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SNA Greater Manchester MAA-LAA (accountabilty)
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SNA with local government decentred
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Summary : Urban Policy 1997-2010
Urban Policy “Laboratory” fast moving and complex
policy areas dynamic and in tension
Regeneration and economic development
Local Government Modernisation
Performance Management and Measurement
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Coalition Urban Policy
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Summary : Policy mechanisms 1997-2010
• Underlying logics re: fragmentation and strategic oversight in tension with democratic accountability, political oversight show up in various mechanisms
• PSA regime (National)
• MAA/EPB/SCR (City Regional)
• LAA (Locality plus)
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Coalition Localism WP
• Delayed
• Control Shift for planning
• Fundamentally different to what went before
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Summary : Recession
• Recession offers new challenges for city and locality leaders
• Barcelona Principles could underpin responses
• As could increased sub-national working
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Summary : Manchester
• Manchester Governance is a special case
• Current city regional interest builds on longstanding partnership activity
• Greater Manchester City Region and the roles of Manchester Enterprises, the Commission and AGMA have changed rapidly
• MAA activity underpins LEP