Assembly battle lines drawn

Local Government reporter David Higgerson looks at the issue...

TURKEYS don't vote for Christmas, so perhaps it figures Lancashire County Council wouldn't be in favour of a regional assembly which has the potential to put it out of existence.

But it isn't that leader Hazel Harding is opposed to the concept, it's just the fact that she doesn't approve of the reality which could be thrust upon the North West.

Her council unanimously voted to oppose a referendum on regional assemblies.

But at the same time, some people you'd least expect to get involved in a debate on local government have been throwing their weight behind the plans including comedian Steve Coogan, Manchester United manager Sir Alex Ferguson and Belmont-born singer Damon 'Badly Drawn Boy' Gough.

In last November's Queen's Speech, it was announced referendums on the issue could be held across Britain and Deputy Prime Minister John Prescott's office is consulting to see if there is an interest in the idea.

If the conclusion is yes, then a referendum could be held in the North West -- Merseyside, Lancashire, Greater Manchester, Cheshire and Cumbria -- as early as next year, signalling the largest shake-up of local government since 1974.

The existing two-tier system -- Lancashire County Council and the borough councils -- would be replaced with a regional parliament and a series of unitary authorities, dealing with everything from education to planning and fulfilling a similar role to that Blackburn with Darwen has played since 1998.

The new authorities' size and shape would be determined by the Electoral Commission. Hyndburn and Rossendale may merge, with Burnley and Pendle doing the same. Alternatively, the whole of East Lancashire could be grouped together. The Government might even decide to let Lancashire County Council become a unitary, although this is unlikely.

It is almost certain Ribble Valley would be split up because of its size, shape and rural make-up. The borough council successfully staved off extinction during the 1994 Local Government Review, when a review suggested it be divided between Blackburn, Burnley, Pendle and Preston.

Ribble Valley councillors have again voted to fight regional government tooth and nail.

But one thing is certain -- Blackburn with Darwen Council's boundaries won't change. Initially, the Government proposed all boundaries would be up for change until it was pointed out it would be the second time in a decade they faced upheaval. The same applies in Greater Manchester and Merseyside, where metropolitan councils exist.

Which is where Lancashire County Council's argument stems from.

Coun Harding said: "Even if every person in Lancashire voted against a regional assembly they could still be outvoted by people living in Greater Manchester or Merseyside. I can't see how that's fair, because the people of Lancashire will see most change.

"We're not opposed to regional assemblies and it's not a case of turkeys opposing Christmas. The proposals don't go far enough and don't take enough power from Westminster which would be a missed opportunity."

A North West Assembly would only control a budget of some £730million and would, it is suggested, have an "influence" over another £1.3billion of public spending in the region -- about three per cent of total public expenditure in the North West.

Initially it would take a strategic role in issues like housing. It would also oversee planning -- although exactly what powers it will take from Government are yet to be decided. Day-to-day planning applications would be still decided by local councils.

It would oversee the work of the North West Development Agency, which sources cash from Government to help regenerate the North West, and would be responsible for implementing employment policies, improving skills among the workforce and transport.

Supporters of the regional assembly point to the fact that while the North West is the fourth largest contributor to Britain's Gross Domestic Product, it is the second poorest region in the country.

Derek Boden, a councillor on Bury Council, and current leader of the North West Regional Assembly in its current form as a lobbying body, believes the change could close the so-called North-South divide.

Nelson-born Mr Boden said: "The assembly will be evolutionary, not revolutionary. We'll push for powers to be handed down. It won't just be 'that's your lot,' we will grow.

"We will be able to take decisions currently made at central Government, but will have the advantage of in-depth local knowledge. I'm aware of East Lancashire's issues and believe a regional assembly would be better at sorting them out." But another thing Coun Harding, who represents part of Rossendale on Lancashire County Council, takes issue with is the number of elected representatives the assembly would have. She said: "The North West has 76 MPs, yet the regional assembly plan includes just 35 members.

"People know how hard it can be to get hold of an MP. I can't see how a part-time assembly representative can serve the people in their constituency properly.

"We're in danger of losing a community-focused, two tier system in favour of something I don't think people in Lancashire will fell connected to."

Such issues have led some of the most ardent supporters to regional government opposing the new plans. Lord Tony Greaves of Pendle, a Lib Dem peer, said: "I've campaigned for regional government for 30 years, but this proposal does not go far enough by a long stretch. It isn't devolving power at all."

His view is shared by the majority of Lib Dems, while the Tories have always opposed regional Government.

But Mr Boden replied: "It's a start. I hope the Government do let us have more than 35 members because I think we need more than that to represent the diverse mix of people in the North West."

Councillors in Blackburn with Darwen have given their backing to a vote on regional government and leader Bill Taylor said: "It will mean very little change for our residents but an elected regional assembly would integrate and enhance the powers of the region to provide better use of resources." In Pendle, council leader Azhar Ali, is in a unique position as head of local council Pendle and chairman of the regional assembly.

He has said he feels people will back a regional assembly because they feel neglected by the county council and ignored over issues such as care homes.

He said: "The Government recognises the one-size-fits-all 'Whitehall knows best' days are over."

But Pendle Labour MP Gordon Prentice has told Mr Prescott there is no demand for the new body among his constituents.

He said: "I've not had one piece of correspondence from a private individual calling for such an assembly. We've a Labour government at Westminster which should be committed to giving areas like East Lancashire a fair deal and we simply don't need another tier.''

Mr Prescott said: "The creation of regional assemblies will signal the rebirth of political life across England."

The regional debate is nothing new. Jack Straw has been campaigning for a regional assembly since at least 1996.

Even then, as a shadow minister, he was quoted in the Lancashire Evening Telegraph, saying: "People are fed up with having a government office for the North West in Manchester, apparently speaking for the North West but run by a civil servant from London. They want people to speak up for the North West."

One thing that all sides agree on is that the public at large should use any referendum to have their say -- and Coun Harding believes that, despite voter apathy in recent years, people would come out in force.

She said: "If people think they are going to lose something they are generally happy with, in favour of something they will see as remote and unconnected to them, then they will turn out and vote, especially when it costs them £40million on council tax."

The argument for regional government...

n Devolution is already working in Scotland and Wales.

n Regional Government can make a real difference by providing regional solutions to issues such as flood defences, public health, social housing and transport.

n It will make quangos such as the North West Development Agency accountable to the people, because they will fall under the control of the regional assembly.

n Although there will be start-up costs, ultimately it will streamline local government by removing unseen extras such as overlapping, unaccountable bodies.

n The emphasis will still be on making decision locally. Councils will still take local decisions.

n It will make people feel more involved in big decisions.

n It will include other representatives (co-opted members) such as people form business to make sure decisions are taken after looking at all sides.

n More people will turn out to vote because they will see they can affect decision-making.

n People feel they are ignored by the County Council over issues such as care homes and now have a chance for something new.

...and against

n The Regional Assembly model proposed by government does not offer any significant degree of devolution.

n Lancashire County Council argues it is currently doing a good job, so why lose it?

n Functions proposed include strategic responsibilities for economic development and regeneration, planning, housing, transport, skills and culture. These are too intangible and without greater devolution of service responsibilities and decision-making regional assemblies would not "make a difference".

n The devolution on offer is substantially less than that for the Welsh Assembly, let alone the Scottish Parliament.

n An assembly with a maximum of 35 members is too small to effectively represent local communities. Assembly seats would be three times the size of MPs constituencies making it difficult for assembly members to fulfil an effective representative role.

n Only around two-thirds of the Assembly's members would be directly elected. The remainder would be elected via a 'top up' list under the Additional Member System (AMS) ensuring the Assembly membership overall is proportional to the votes cast for each party.

The one-off cost of changing over to a wholly unitary local government structure in Lancashire could broadly be in the region of £30M - £40M (depending on the structure adopted).

n Based on past experience these set up costs would have to be met locally without government grant support.

n 67% of the population live in Greater Manchester and Merseyside. They could, therefore, determine the local government structure in the counties.