Cotswold unitary bid FAQs

Executive summary

Central government is looking to make new devolution deals which would give more power and funding to local government. The aim is to give local councils and local people more of a say over how local public services are delivered and to help boost local economies.

In Gloucestershire, the county council, six district councils, Clinical Commissioning Group, Gloucestershire Constabulary and GFirst Local Enterprise Partnership (LEP) have submitted a joint bid for a countywide devolution deal. Our bid was submitted last autumn and feedback from central government is positive. Greg Clark, the Secretary of State for Communities reinforced this positive position when he visited on 3rd March.

As part of devolution around the country, some councils are opting to look at a new structure for local government including introducing elected mayors or becoming unitary authorities. In Gloucestershire, we already have a cohesive structure, common boundaries, and our partnership working arrangements are already well established so there is no need to change how we are organised. We would use our Leadership Gloucestershire group, which is made up of all the partners mentioned above, to act as a combined authority to oversee our devolution arrangements.

We expect to hear from central government in the autumn as to whether our bid is successful – we recognise that our bid will not be finalised until those with elected mayors have been dealt with.

On Thursday 25th February, Cotswold District Council revealed its proposal to consider creating a new unitary council based upon the existing boundaries of Cotswold and West Oxfordshire District Councils, as part of an Oxfordshire reorganisation and devolution deal. Up to this point Cotswold District Council has been fully supportive of the Gloucestershire devolution bid, however we understand the new proposals had been under discussion for some time.

The Oxfordshire plan, called Oxfordshire Vision, also includes the creation of three other small unitary authorities: Southern Oxfordshire Unitary Authority, Oxford City Unitary Authority and Cherwell-South Northants Unitary Authority. For more information, visit www.oxfordshire.vision

What has Cotswold District Council proposed?

In Gloucestershire, we already have a cohesive structure

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All partners within the Leadership Gloucestershire group, with the exception of Cotswold District Council, are united in opposing this plan. We are disappointed that Cotswold District Council, which had been committed to our devolution approach, has now become a part of Oxfordshire’s devolution proposals.

The historic county of Gloucestershire has existed for 1,000 years and the Cotswolds is an integral part. Public services and outcomes for local people work best when boundaries align. Gloucestershire public services are already working together. Our geography and structures already match. At the moment we have fantastic alignment of the county boundary with our seven councils, our health and social care services, our Constabulary and its police and crime commissioner, a single local enterprise partnership, all of which benefit Gloucestershire residents.

The aspiration of our devolution bid ‘We are Gloucestershire’ – which we continue to support - is to work ever closer on issues such as integration of health and social care services, children’s safeguarding, investing in our roads and promoting economic growth. The possible loss of Cotswold District would be a step in the opposite direction.

What is Leadership Gloucestershire’s response to Cotswold District Council’s plans?

One boundary one vision

We are Gloucestershire

We are Gloucestershire

Ministerial Challenge Session11 November 2015Briefing Pack

1 Practical arrangements 2 Presentation slides and notes 3 Statement of Intent - 27 July 2015 4 Devolution Bid – 4 September 2015

5 Governance a. Proposition for Combined Authority b. Business Case for Combined Authority and not an elected mayor 6 Other notes

Gloucestershire public services are already working together

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While the Ordnance Survey outline of Gloucestershire would remain as a historic border including the Cotswolds, the Cotswold District would no longer be part of the county for service provision.

The new councils would be primarily responsible for district services, with the addition of functions like libraries and local road repairs, whilst looking for an Oxfordshire-wide solution for strategic services. That means the majority of services the county council currently provides would be passed to quangos – either Oxfordshire Combined Authority or Oxfordshire Clinical Commissioning Group to provide. Or put another way, we estimate that 70% of the Cotswold budget would be in the hands of these unelected quangos.

Every county council service would have to be redesigned and either operated on a smaller scale, or passed to an Oxfordshire quango. Additionally, taxpayers would have to foot the costs of any change process (redundancies, new buildings etc).

The county council alone has over 100 contracts for service provision covering Cotswold District. Every single one would either require renegotiation or termination. By way of example, the transition cost of just one adult social care contract has been calucated at over £16 million. The cumulative cost for all public service contracts will be huge and would fall one way or another to the tax-payers of our county.

Examples of current strategic county-wide contracts in Gloucestershire that would have to be renegotiated or terminated:

• Waste Management circa. £20m each year - a 10 year contract

• Transport Frameworks circa. £13m each year - a 4 year contract

• Public Health contracts circa. £4m each year - a 3 year contract

• Fire Stations and training circa. £4m each year - a 25 year contract

• Highways circa. £40m each year - a 10 year contract

• Youth Support circa. £6m each year - a 3 year contract

• Energy circa. £7m each year - a 4 year contract

• Care Homes circa. £15m per each year - a 35 year contract

• Home Care Framework circa. £18m each year - a 7 year contract

• Mental Health contracts circa. £5m each year - a 5 year contract

• Street Lighting circa. £3m each year - a 25 year contract

• All Age Disability Support circa. £10m each year - a 4 year contract

• Social Care and Healthcare circa. £31m each year - a 6 year contract

As Gloucestershire has its own fire service and constabulary it is unclear who would provide these services to the Cotswolds if the proposal goes ahead. The picture for health services is also unclear.

How would the West Oxfordshire (Cotswolds) plan work in practice?

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70% of the Cotswold budget would be in the hands of unelected quangos

Every county council service would have to be redesigned

What would happen to county council services in the Cotswolds?

Adult Social Care: The county council cares for more than 920 people in the Cotswolds. Under these proposals adult social care across the Oxfordshire Vision area would be run by Oxfordshire NHS Clinical Commissioning Group (CCG). Cotswold residents would have no directly elected representatives (councillors) for adult social care, but would presumably pay a precept via their council tax towards the cost.

Children’s Services: The county council supports more than 150 vulnerable children and families in the Cotswolds and more than 10,000 school children. Under the new plans, this support would be delegated to a new Oxfordshire Combined Authority. It would be made up of one representative from each Oxfordshire District Council, as well as a representative from Oxfordshire’s LEP and Oxfordshire CCG.

Fire service: This is unclear. One scenario is that Oxfordshire would form a stand-alone Fire Authority to replace their current county council-run service and take over fire services in the Cotswolds. Given recent government changes, that would be likely to come under the control of the Thames Valley Police and Crime Commissioner. This could mean that Cotswold residents have no say at all on the fire service in their area. There is a suggestion that the service could still be provided by Gloucestershire, however this could no longer legally be part of the county council, requiring a new stand-alone fire authority to be created. This would add to costs and undermine the unique role that our fire service has developed by working with social care in supporting and safeguarding very vulnerable people on a daily basis in their own homes.

Strategic Transport: The big decisions on transport planning would be passed up to the Oxfordshire Combined Authority. People in the Cotswolds would have no directly elected representatives. The Oxfordshire Vision group’s list of priorities does not include the A417 Missing Link.

Road repairs: This would be the responsibility of the proposed West Oxfordshire (Cotswold) district. At present, Cotswold raises 17.7% of Gloucestershire’s council tax, but receives well over 30% of Gloucestershire’s capital highways funding. The rest of Gloucestershire subsidises Cotswold because it has a larger length of rural road, compared to its population. Merging with West Oxfordshire would cut funding for road repairs in Cotswold by over £3m per annum.

OxfordshireCCG

OxfordshireCombined Authority

ThamesValley

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OxfordshireCombined Authority

WestOxon

Cotswold

£3m funding gap

Yes. The full impact isn’t clear, however we could not continue to provide services the way we do today. It would also cast serious doubt on whether important investment to support our local economy, like the A417 Loop, would go ahead. Across Gloucestershire public sector partners already share many services and this work could not continue with Cotswold District Council in the same way.

Gloucestershire’s NHS leaders are particularly concerned about the proposals.They would mean that Oxfordshire CCG was responsible for adult social care in the Cotswolds, whilstGloucestershire was responsible for medical care. A resident in Northleach would still be taken to Gloucestershire Royal Hospital, but their discharge would be the responsibility ofdoctors based in Oxford. This would work against the partnership working already going on within Gloucestershire to prevent bed blocking.

Will there be any impact on other public bodies in Gloucestershire?

This is a recipe for bed blocking

Chair of NHS Gloucestershire Clinical Commissioning Group, Dr Helen Miller“We believe strongly that patients in the Cotswolds stand to benefit further if the current district remains fully aligned with the Gloucestershire county boundary. As such, we believe that with the strong partnership we have, we are well placed in Gloucestershire to progress with ever closer integration of health and social care leading to further improvements in communication between professionals and services that are better co-ordinated. We feel that this effective joint working could be adversely affected by the outline unitary proposal.”

We can’t say for certain what impact providing additional services would have on tax levels. However, when councils join together, their council tax levels are harmonised, so that the whole area pays the same. Today, residents in Band D West Oxfordshire pay £1,332.23 pa in district and county council tax. Residents of Cotswolds pay £1,216.90. As a result, harmonisation alone would lead to an increase in Cotswold bills of £57.67 and a decrease in West Oxfordshire bills of the same amount. Given the difficult financial climate all local authorities are living in, further council tax increases would seem likely in order to ensure the new services can be provided effectively.

What would happen to council tax in the Cotswolds?

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Dr Frank Harsent, Chief Executive of Gloucestershire Hospitals NHS foundation Trust“I firmly believe that it is in the interests of patients for Cotswold District Council to remain within Gloucestershire.”

“In this county we are well placed to progress and make the most out of greater integration of health and social care. This is based on strong partnership working.”

“Realising the benefits of a more joined up health and social care system would bring many advantages to patients. For example, healthcare professionals from our acute hospitals would be working more closely with community healthcare teams including social workers on a package of care to support a safe and effective discharge from our hospital into the community. Sharing information across teams and discussing care plans in such a way would be more joined up and timely for the patient.”

“In Gloucestershire this would work best with Cotswold District Council remaining within the existing boundaries of Gloucestershire.”

Stewart Edgar, Chief Fire Officer, Gloucestershire Fire and Rescue Service“Gloucestershire Fire and Rescue Service has seven fire stations located in the Cotswold district area and each of those play a vital role in the safety of Gloucestershire’s residents and its firefighters, not just in the individual station area but across the county. Firefighters from across the county in Gloucestershire have core and specialist skills which compliment each other to bring an incident to a successful conclusion.

My professional and technical opinion is that I, as the Chief Fire Officer, am not able to support any change of this proposed nature, one that will potentially compromise the safety of the communities of Gloucestershire and importantly the firefighters of Gloucestershire Fire and Rescue Service.”

Martin Surl, Police and Crime Commissioner for Gloucestershire“I have no doubt that any plans by the Cotswolds to leave Gloucestershire would be unwelcome. I have, therefore, asked the Chief Constable to set out the implications for policing and my Chief Executive to clearly set out the legal position from my perspective and the Constabulary’s. Gloucestershire in its current shape and size is the optimum to deliver services to its residents. I understand how attractive the county must be to other councils and police forces, but they must understand that whilst we will form meaningful and productive partnerships with them and be excellent neighbours, friends and allies, we have no appetite to be run by them”

Suzette Davenport, Chief Constable of Gloucestershire Constabulary“Gloucestershire has a fine and long tradition of being a single county and one of its many strengths is an inclusive approach among partner organisations to working together to serve local people. The fact that our boundaries align is an important factor in that. While some may think there are benefits in some areas in what is being put forward, I am not convinced that it is good value for money or that it will give all our communities the best public services”

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Cotswold District Council is planning on engaging consultants to carry out a feasibility study into the new proposals in April. The county council will be providing a robust response to the study which outlines the clear case for Cotswold District Council remaining as part of Gloucestershire.

Leadership Gloucestershire will continue to work on the ‘We are Gloucestershire’ devolution bid with the aim of securing government backing in the autumn as planned. There are many projects and issues that can be progressed before government approval and these will continue as planned to ensure the right deal remains on track.

What happens next?

Yes. Before the government will consider any proposal to create new unitary councils, public consultation has to take place in affected areas. We believe this is likely to happen during the summer months.

The county council will be working to explain the full facts to residents of the Cotswolds and encouraging them to have their say on the future of their local services.

Will the public get a say?

None of the dates are set in stone, however the key milestones below are likely.

April – feasibility study carried out

June/July/August – likely public consultation

October – final bid submitted to government by Oxfordshire Vision group

Early 2017 – decision from government

If yes, official start and elections to the new arrangements would likely be from May 2018.

What are the key dates?

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Geoffrey Clifton-Brown, MP for Cotswolds“This is an interesting proposal that I am studying with care, however it does occur to me that one of the consequences might be that council tax in The Cotswolds may increase to the level of council tax in Oxfordshire, and I am not sure that the people of The Cotswolds would be happy to have responsibility for their social services and strategic transport transferred to unelected bodies in Oxfordshire, derailing centuries old arrangements with the historic county of Gloucestershire.”

Dr Diane Savory OBE, Chair of GFirst LEP“The Cotswold district is a vital part of our economic composition. The LEP is investing in the Cotswolds through our Strategic Economic Plan; the business plan for the whole county. Our funding is developing an Innovation Centre for rural business and agricultural start-ups, has created new facilities for STEM subjects at Cirencester College, and is supporting a countywide skills strategy. We’ve supported hundreds of students in Cotswold schools through our education programmes, with over 100 business mentors from the Cotswold district offering their support to the future generation. Businesses in Gloucestershire have a strong history of working together – the loss of the Cotswold district would have a significant impact on established relationships and ways of working.”

Sir Henry Elwes KCVO, former Chairman and Vice Chairman of Gloucestershire County Council“It will be dangerous to turn commendable cross-county collaboration arrangements into cross-county government where existing government support arrangements will not be identical between Oxfordshire and Gloucestershire. There is a real risk that many well established county functions such as the Local Enterprise Partnership, Health, Police and Fire Services will be broken up leaving smaller and more costly units.”

Stephen Marslon, Vice Chancellor, University of Gloucestershire“The University of Gloucestershire is proud to be the University of and for the county. We are committed to working with all parts of the county, providing access to higher education, supporting businesses, and working with communities on a wide range of outreach, volunteering and cultural activities. The current configuration of Gloucestershire gives clear advantages in enabling us to work in close partnership with local authorities, the LEP, health services and public services, all committed to working together for the benefit of our county and its people.”

Further words of our partners and friends...

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Joint statement by Unison, GMB and UniteCotswolds joining Oxfordshire appears to be wholly for political and administrative convenience. We can see no benefit at all for our members or for the public services they are committed to delivering.”

Julie Girling, Conservative MEP representing South West England and GibraltarPersonally, having been a member of Gloucestershire County Council Cabinet and a Leader of Cotswold District Council, I have real doubts about the viability of this project. As an MEP, I work with Unitary Authorities across the South West region and I am absolutely sure the population of the proposed West Oxfordshire Unitary is way below the optimum level for an efficient and cost effective authority. There are too many uncertainties around how key services such as adult social care and road maintenance will be delivered. There is no need to look outside Gloucestershire’s borders for ways of improving service delivery, we should concentrate on building a strong combined authority which respects and builds on our historic strengths.”

Matthew Burgess, Principal and Chief Executive - Gloucestershire CollegeMoving the Cotswolds from Gloucestershire would not be helpful in terms of providing access to further education opportunities to residents in that area, many of whom study at the College’s campuses. It would certainly complicate arrangements for learners with high levels of need. Moving the Cotswolds from Gloucestershire, combined with devolution proposals to transfer adult skills budgets to LEPs, could also impact on the College’s ability to offer programmes to adults in that area.

John Mortimer, Director South West CLA (Country Land and Business Association) At a recent meeting of our Gloucestershire Committee, members expressed their concerned opposition to the proposal that Cotswold and West Oxfordshire District Councils should merge to create a new Unitary Authority. Localism has brought an increasingly complex geography and structure to local government and service delivery. In our committee’s view, this move would cause further significant upheaval the consequences of which could be far reaching. Not only would it have a costly effect on many county based services, such as Health Trusts, Police and Fire Services and the work of the County Council itself, but there would also be repercussions for the work of the LEP, in which we take a particular interest around the work of the Land Based Sector Group, and for organisations such as the Gloucestershire Community Council. The loss of scale in many of Gloucestershire’s governmental and quasi-governmental organisations could create a ripple effect that might have far reaching impacts, well beyond the boundaries of the two districts.

Further words of our partners and friends...

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Notes

GC

C_1

497

3.1

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