.
Town and Parish Councils: Enhancing Local Governance
Increasing the capacity of town and parish councils to deliver services?
How do experiences with town and parish councils inform Neighbourhood Community Budgets?
Responses to these questions will be directly explored as well as addressing a number of related questions. As already identified there are also a number of common themes pertinent to all questions:
The Current Policy Context
The current policy environment can be aid to be underpinned with the following drivers
Policy Synergies
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.
The Town and Parish Council Context
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.
What
shapes local decisions to establish parish councils and contribute to
neighbourhood level governance?
There are multiple and complex reasons for the establishment of local and community level governance. However, motivations may broadly be categorised as, identity, efficiency, relevance and opportunity.
I dentity
–In
an increasingly globalised and fragmented world evidence points to a
need for community identify of an area which
provides impetus for the responsible, effective and efficient use of resources
within that locale.
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.
Barriers
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:
Scattered and isolated communities within rural communities were seen as a barrier to effective local level governance.
There was a lack of understanding as to how new parishes may be set up and this falls within the broader remit of communication and support from the principal authorities.
Time was also a factor as the parish council level of government represents a volunteer’s commitment that means time away from other activities.
Administrative confusion was an issue that arose repeatedly within the data with communities unclear as to the logistics of establishing local was the idea of administration and the ability to deliver the services. This refers to both communication and skills education and training
‘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.
Parish councils and Neighbourhood Community Budgets
References
Atkinson, H. (2008) Democracy and Empowerment in London’s Neighbourhoods, 23(4):325-331
Town and Parish Councils: Enhancing Local Governance
Overview
The following post is a version of a policy report I presented on request to the Department of Communities and Local Government
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:
What
shapes local decisions to establish parish councils and contribute to
neighbourhood level governance?
Increasing the capacity of town and parish councils to deliver services?
How do experiences with town and parish councils inform Neighbourhood Community Budgets?
Responses to these questions will be directly explored as well as addressing a number of related questions. As already identified there are also a number of common themes pertinent to all questions:
- 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 Context
The current policy environment can be aid to be underpinned with the following drivers
Localisation – where decisions about service design, commissioning and
delivery
are
taken closer to and based on engagement with service
users;
Personalisation – further encouragement for bespoke and locally-specific
service
delivery
approaches
Collaboration – a loosening of organisational boundaries, with scope for
more
integrated
service delivery, often with a focus on place;
Open access – greater opportunities for new service providers to enter the
market
from
outside the statutory sector;
Volunteering – a desire to involve local people and organisations in service
planning and delivery
Growth – an emphasis upon development which better meets economic
and
housing
needs.
Policy Synergies
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.
Results and Recommendations
There are multiple and complex reasons for the establishment of local and community level governance. However, motivations may broadly be categorised as, identity, efficiency, relevance and opportunity.
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.
Barriers
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:
Scattered and isolated communities within rural communities were seen as a barrier to effective local level governance.
There was a lack of understanding as to how new parishes may be set up and this falls within the broader remit of communication and support from the principal authorities.
Time was also a factor as the parish council level of government represents a volunteer’s commitment that means time away from other activities.
Administrative confusion was an issue that arose repeatedly within the data with communities unclear as to the logistics of establishing local was the idea of administration and the ability to deliver the services. This refers to both communication and skills education and training
Increasing
the role of town and parish councils
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
Ambition
and Capacity. -There
is a willingness to increase service delivery and take responsibility for a
broader portfolio of service provision within parish councils. There is however a number of issues relating
to this that act as provisos to this statement. The increased level of control
brings about an increased level of responsibility. Whilst there is an appetite for the
devolution of services there is also a concern that this is not backed up with
the relevant support from both local and national government. Individual
parish’s capacity and ambition seems on a general basis to be aligned. Parishes
that are ambitions and forward thinking in their approach to service delivery
and creating a stronger community identity are capable of identifying their
weaknesses and this particularly applies to skill and training. Skills and training are seen as essential and
directly related to capacity for increased service provision
Barriers
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.
Barriers
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.
Parish councils and Neighbourhood Community Budgets
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.
Engaging
with the parish council and using this
as an inroad to community engagement provides an opportunity to utilise
established, ‘formal’ and ‘informal’ community networks, both of which are
present in parish councils. This should
be seen as only a first step in engaging with a fuller community base. Using the parish council does not presuppose a
representation of community, instead offers the opportunity of a significantly
informed body close to the community.
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.
References
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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