A PROGRAMME FOR EFFECTIVE GOVERNMENT - WHAT THE PARTY MANIFESTOS MUST ADDRESS IN 2015
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A
PROGRAMME
FOR
EFFECTIVE
GOVERNMENT
WHAT THE PARTY MANIFESTOS
MUST ADDRESS IN 2015INTRODUCTION
At the Institute for Government we have identified a series
of common problems and dilemmas that face, and will face,
governments of all parties if they are to achieve their goals.
In this paper, we look at the priorities of the main parties for
2015 and beyond. We outline the practical steps they must
take to make progress on these priorities, run a more effective
government and honour their manifesto commitments.
The main political parties publicly their plans must work in practice as
recognise that, if they come to well as sound good during a campaign.
power, they must: Parties need to work out how to make
the most of a £700-billion-a-year
• reduce the budget deficit and government machine so that by the
control public spending time of the 2020 general election,
they will be able to show that they
• achieve sustained economic have made a difference.1
growth over the long term
Recent polling carried out for the
• address long-term, complex social Institute for Government shows that
and economic challenges whose the public have little confidence that
costs and benefits cover decades politicians will keep their election
promises. But two-thirds say they
• improve the effectiveness and would be more likely to vote for a
efficiency of public services party that can show how it would
implement its policies in government. 2
• govern in a world where power
is spread more widely. Using Institute for Government
research on what works and what
Parties are examining how to achieve doesn’t, this document identifies what
these goals after the 2015 general the parties must do in government
election. If they are to be successful, to achieve their goals.
INTRODUCTIONREDUCING
THE DEFICIT
REDUCING ACHIEVING TACKLING IMPROVING GOVERNING
THE DEFICIT SUSTAINED COMPLEX PUBLIC IN A WORLD
GROWTH POLICY SERVICES WHERE POWER
CHALLENGES IS SPREAD
WIDELYWHAT POLITICAL know what parties’ main spending
PARTIES ARE SAYING plans are and don’t believe that
politicians should make promises
The deficit – how much government before the election if they are not
spending exceeds its income – has sure how they will pay for them. In
fallen over the last four years, the long term, parties suffer when
largely because of tighter control they promise the impossible. The
of government spending. The 2010 obvious example of this from 2010
Spending Review committed to cut was a commitment not to increase
public sector spending by £81bn in real tuition fees, which resulted in clear
terms, 3 and much of this reduction political consequences when it was
has already been achieved.4 reversed (whatever the merits of the
policy). Since 2010, financial pressure
All major parties have committed to has increased in some areas, such as
take further action on public finances. health, but promises of large cash
Without this, spending could exceed injections after the 2015 election
income by about 3.5% of GDP even are unlikely to be credible.
after the economy has recovered.5
Surveys have shown that the public
back them – more than 50% of the
85%
public believe that spending cuts
are necessary.6
however, further big deficit reductions
of the public agree
are unlikely to be achieved without
continued public support. Parties, and that politicians should
the public, don’t agree how quickly not make promises
to cut the deficit, or how to balance
tax and spending, but all parties must
before the election
demonstrate fiscal competence to if they are not sure
be credible. they will be able
to afford them in
WHAT WORKS government
AND WHAT DOESN’T
Pre-election periods can be
mishandled. The public want to
ReDUCING The DefICITCommitments to abolish provided for aircraft carriers but not
organisations and restructure the the planes to go with them, because
institutional landscape can be it didn’t allow time to complete a
tempting. however, without proper serious defence and security review.
consideration, these can become Our polling shows that there is strong
major distractions for a party in power consensus among the public that
and seldom generate the savings politicians should take time to get
they promise. the facts right when making spending
decisions, with 84% agreeing this
Post-election risks include ‘traditional’ is important.
spending reviews, which aim to get
a quick cabinet-level settlement and More importantly, reducing spending
tend to lack proper planning. for is getting harder. Most of the easily-
example, the 2010 Spending Review achievable cuts have been made and
Running a better spending review in 2015
A better spending review process would:
Cover a longer period of time – up to five years
2015 2018 2020
Build in more encourage collaboration Allow frontline
planning at the outset between departments services to innovate
ReDUCING The DefICIThave resulted in less public protest CASE STUDY
and dissatisfaction with services
than many would have predicted How to work
in 2010. The Civil Service believes
it has gone as far as possible to
across departments
reduce costs within individual to deliver savings
departmental budgets. What’s
needed in 2015 is to cut out One HMG Overseas provides
duplication across departments an example of where government
and transform services. however, has achieved savings by joining
the departmentally-based spending up across different departments.
review process doesn’t provide the
basis for this. It is a reform initiative shared between
eight arms of the UK government
After any spending review, the which have a presence abroad. It aims
task is to make reforms happen. to deliver efficiencies by encouraging
This may involve using established departments to join up across areas of
methods such as altering legislation shared responsibility and shared need,
and implementing changes by allowing them to achieve greater impact
controlling public sector wages, by focusing on their core mission.
reducing benefits or raising taxes. As part of the initiative, departments
The key thing here is to maintain are consolidating their corporate
public support. service functions, co-locating premises
where possible, and encouraging staff
But transforming services is to collaborate on matters of shared
different. Local services have policy interest. The departments and
already absorbed major budget cuts staff involved are working together
and many have found new ways of to identify other areas where further
working. Politicians need to create efficiencies might be made.
the conditions and incentives for
leaders of local authorities, police
forces and other organisations
to innovate further. Intelligent
decentralisation of power, rather
than central mandates, will
be essential.WHAT POLITICAL • Allow time for serious reform plans
PARTIES MUST DO TO to be developed; reviews (such as
REDUCE THE DEFICIT the Strategic Defence and Security
Review) to be completed; and
Prepare the ground publicly, challenge to come from outside.
and behind the scenes, prior
to the election. • Recognise that politicians need to
make departments work together
• Avoid commitments that won’t to achieve savings. The civil service
be credible in government. system will default to tried-and-
Organisations like the Office tested methods unless directed to
for Budget Responsibility have do otherwise.
established facts about the fiscal
situation. Use these to inform Make sure the changes agreed
your future plans and public by the spending review
commitments. actually happen.
• ensure the Civil Service is preparing • Learn from other spending
cross-departmental analysis that reduction examples and ask service
can provide the basis for a thorough professionals to find ways to make
spending review. efficiencies rather than mandate
them from the top down.
Set up a more robust spending
review process straight after • focus on encouraging innovation at
the election. local level, particularly by devolving
power and responsibility.
• Cover a significant period of time,
even a full five years, to avoid the
need for a mid-term review and to
provide the stability for leaders to
transform services.
ReDUCING The DefICITACHIEVING
SUSTAINED
GROWTH
REDUCING ACHIEVING TACKLING IMPROVING GOVERNING
THE DEFICIT SUSTAINED COMPLEX PUBLIC IN A WORLD
GROWTH POLICY SERVICES WHERE POWER
CHALLENGES IS SPREAD
WIDELYWHAT POLITICAL Ad hoc reviews can be helpful to agree
PARTIES ARE SAYING the best course of action, but the
UK has no effective mechanisms to
All parties want to boost long-term bring together independent experts
economic growth and support the and interest groups to develop
future prosperity of the UK economy. robust evidence bases and to foster
They want to help citizens and local consensus through informed debate
areas thrive by sharing the benefits about policy options. The proposals
of growth across the country and of the Armitt Review and the current
income scale. work of Infrastructure UK have
some potential to fill these roles.7
Parties’ plans to do this include But other countries have set up
addressing under-investment in dedicated and lasting institutions and
infrastructure, pursuing a more active forums. In Australia the Productivity
industrial strategy and creating Commission uses academic research,
stronger city regions (particularly in
the north of england) by devolving
more decision-making powers and
political accountability for growth.
Thinking about how
politicians make
WHAT WORKS
AND WHAT DOESN’T difficult decisions
about infrastructure,
78%
Disputed evidence, patchy public
support and policy instability make
it hard to implement infrastructure
projects that are likely to drive
growth. These problems often lead to
of people agree that
inaction and expensive delays, rather politicians should
than sound investment decisions and consult a wide range
effective delivery. Recent debates
about high-speed rail networks and of professionals
airport capacity in the south-east and experts
illustrate how contentious some
major projects are.
AChIevING SUSTAINeD GROWThpublic engagement and scrutiny to of policies designed to promote
help tackle contentious issues, and in economic growth and support specific
france the National Commission of sectors of the economy, though
Public Debate facilitates dialogue with some still remain sceptical of the
the public about new projects. long-term advantages of government
‘picking winners’.
When government does move
beyond the stage of debate and It is not clear whether Whitehall is
makes decisions on individual projects, equipped to identify opportunities
these initiatives often suffer from for strategic collaboration with the
lack of local community support. private sector and what instruments
Nearly 80% of the public agree it should use to intervene. The UK has
that politicians should consult local been good at attracting investment,
people who are affected by decisions but historically government has not
on infrastructure. When the public had the specialist skills needed to
is not effectively involved, financial understand complex delivery chains
compensation is rarely enough to and manage long-term relations
convince local people to back a with business. There is also a wider
project, as we have recently seen structural problem as responsibility
with fracking. for growth is split between the
Treasury and the Department for
Major infrastructure projects often Business, Innovation and Skills.
involve long-term investments
and take much longer than a single All the major parties have committed
Parliament to complete. They in principle to decentralise decision
are more likely to succeed where making to stimulate growth. however,
investors face a stable and predictable previous efforts to transfer power
policy framework underpinned to local areas, for example to city
by cross-party support, as the mayors, have not always succeeded
success of the 2012 Olympics and – often because of weak political
Paralympics showed. support, disputes between local and
central government, and failure to
As well as infrastructure, policy make reforms salient to the public.
makers are increasingly interested Parties need to plan how to overcome
in industrial strategy. There is a these problems.
growing acceptance of the benefits
AChIevING SUSTAINeD GROWThCASE STUDY
2015: The final report of
Political 2015 the Airports Commission
uncertainty is due
delays 2014 2014: The interim report
of the Airports Commission
infrastructure is published
2013
projects
2012 2012: Sir howard
The need for extra airport
Davies asked to chair a
capacity in the south- commission investigating
east has been recognised 2011 the future of airports in the
since the 1970s but there south-east
has been a failure to 2010 2010: Coalition agreement:
coordinate public and “We will cancel the third
political support behind runway at heathrow. We
2009 will refuse permission
any particular project.
for additional runways at
Gatwick and Stansted.”
2008
2009: Transport Secretary
2007 Geoff hoon announces
2008: Boris Johnson, Mayor government support
of London, announces a for a third runway and
study into the feasibility 2006 a sixth terminal building
of an island airport in the at heathrow
Thames estuary
2005
2004
2003: Labour begins a 2003 2003: DfT White Paper
study into the possibility of supports the provision
an airport at Cliffe in Kent, of a second runway at
to broad opposition from 2002 Stansted and a third
environmental groups runway at heathrowWHAT POLITICAL PARTIES • Show you are serious about
MUST DO TO CREATE decentralisation by giving one
SUSTAINED GROWTH or more city regions funding and
responsibility within areas such as
Create stable institutions and transport, skills, and housing as part
better public debate about growth. of the 2015 budget process.
• Set up forums and institutions, Build Whitehall’s capability to
or build on existing ones, to bring deliver a more active industrial
evidence to debates. Set out strategy.
policy options and bring together
the different interests involved • Build long-term relationships,
to build consensus. This will give systematically, with industry. Learn
politicians a better chance of seeing from initiatives like the consultative
through long-term investment and forum used by the Automotive
infrastructure projects. Council or collaborations like the
Aerospace Growth Partnership,
• engage the public earlier and more to harness the expertise and skills
effectively in new projects and don’t of industry.
rely on ‘tick-box’ consultation or
inadequate compensation.
Turn decentralisation ideas
into action.
• Make a clear manifesto pledge on
decentralising power, specifying
which powers will be devolved and
showing how the public will be able
to hold local politicians to account
for their performance on the
growth agenda.
AChIevING SUSTAINeD GROWThCASE STUDY
Project with a cost of
more than €300m or
Involve the public a total length of more
than 40 kilometres
in infrastructure
decision making
The National Commission of Public The CNDP judges
whether or not the
Debate (CNDP) in France is a state- project warrants
funded, independent organisation. public debate
It helps to ensure that the public
participate in decisions about
significant infrastructure projects
from an early stage – by setting A ‘Commission
Particulaire du Dèbat
out neutral information, organising Publique’ is appointed
public debate and gathering opinion
on whether a project is worthwhile
from a wide range of citizens.
This opinion can then influence
the design and implementation The phase of public
consultation (four
of projects. Although it doesn’t months plus two
have the power to make decisions, months possible
the Commission’s views are taken extension)
seriously. It usually allows up to
six months for consultation and
debate, so engaging with the public The CNDP completes
its report
is planned for in decision making –
not an afterthought or a simple
‘tick box’ exercise.
The decision is
conveyed to the senior
project officials and
made public
AChIevING SUSTAINeD GROWThTACKLING
COMPLEX
POLICY
CHALLENGES
REDUCING ACHIEVING TACKLING IMPROVING GOVERNING
THE DEFICIT SUSTAINED COMPLEX PUBLIC IN A WORLD
GROWTH POLICY SERVICES WHERE POWER
CHALLENGES IS SPREAD
WIDELYWHAT POLITICAL WHAT WORKS
PARTIES ARE SAYING AND WHAT DOESN’T
Parties realise that to serve the The day-to-day pressures of governing
electorate, the next government will seldom leave time for tackling long-
need to tackle problems threatening term, complex problems, so many
our future wellbeing. So as well as governments end up reacting to
addressing their immediate priorities crises instead of preventing them. But
of growth and deficit reduction, prevention is cheaper than cure. Crises
parties must consider how to often result in rushed legislation or
approach issues like energy security spending commitments that do not
and climate change, social cohesion offer value for money for the taxpayer.
and immigration, as well as public
health issues such as obesity and Too often governments respond
increasing antibiotic resistance. to complex problems by making
attractive but ill-considered
Not to act on these issues could commitments, without having fully
be expensive. for example, energy identified and analysed the issues.
scarcity will increase geopolitical The 2001 fuel Poverty Strategy, for
instability and increase household example, set ambitious, legislated
energy costs; fractured communities targets to eliminate fuel poverty
will be less able to support families among vulnerable households by
and individuals; and failures to address 2010. But fuel poverty continued to
lifestyle-related health problems rise, partly because of factors outside
will leave the NhS and other public government control. The targets that
services overburdened. When given politicians thought would be useful
the choice, nearly three quarters of became a source of embarrassment
people say they want politicians who as the external context changed.
are focused on the long term – even
if that means making decisions more The hallmarks of more successful
slowly – rather than politicians who approaches to complex policy
prioritise quick action. challenges include concrete evidence
and wide consultation with experts
TACKLING COMPLex POLICy ChALLeNGeSand those involved or affected. for Of course, the prime minister cannot
example, Lord Turner’s Pensions lead on all cross-cutting policy issues
Commission attracted cross- so other ministers need to step up
party interest and engaged with and be given ownership. Lessons can
experts to work out how an ageing also be learned from the devolved
population could manage financially administration in Scotland, which has
in retirement. restructured to approach policy in
a more joined-up way.
Success is more likely when
government embraces the ideas
of communities, businesses and WHAT POLITICAL
individuals. Legislation is not the PARTIES MUST DO TO
only tool government can use TACKLE COMPLEX POLICY
to address complex challenges. CHALLENGES
Recent innovations in policy include
trialling new policy ideas through Make long-term policy away from
experimentation and influencing daily pressures, using the right
individual decisions through evidence and tools.
behavioural insight, or ‘nudge’,
techniques. • Create space to build credible
evidence and fully assess policy
Many complex policy problems options rather than rushing to
require co-ordinated responses legislate, spend or set ill-considered
from a range of departments and targets. This could include setting
government agencies. Whitehall up teams to focus on strategic
departments are not set up to do issues away from day-to-day policy.
this, so it is important to take active Consider external commissions for
steps to drive co-ordination. Co- particularly contentious issues.
ordinating committees, central units
and joint budgets have limitations Set up the right decision-making
but can help. The National Security architecture for determining long-
Council, for example, has reorganised term policy.
how government deals with national
security to make decision making • Give influential and motivated
more collective. It also benefits from ministers responsibility for priority
strong prime-ministerial commitment cross-cutting policy areas. Make
– another ingredient for success. these ministers accountable to the
TACKLING COMPLex POLICy ChALLeNGeSprime minister and support them • Involve a range of people in the
with appropriate resources – that is, policy making process to get the
not just money but also specialist ideas and enthusiasm of other
advisers and other staff. sectors. encourage policymakers to
build networks and bring outsiders
• Use structures like cross- into policy early on, rather than
departmental units or shared consulting after decisions have
budgets to get different parts of been made.
government to work together. Co-
operation rarely happens naturally. • Allow people, communities and
professions to create their own
Support an environment that solutions – particularly when
encourages learning and adaptation a policy solution isn’t clear.
in policy. Remember government cannot
and should not control everything
• Build on existing structures, like in a top-down way.
the new ‘What Works’ centres that
produce and disseminate lessons
for practitioners or the ‘Policy Lab’
that is intended to bring design
techniques into government
policy making.
• Use a mix of tools and
techniques, like prototyping and
experimentation, behavioural
insight and capacity building in
organisations.
TACKLING COMPLex POLICy ChALLeNGeS72%
say they want
politicians who
28%
would prefer
are focused on politicians who
prioritise responding
the long term to issues quickly
A clear majority of people want politicians who focus on the
long term, even if it means they make decisions more slowly
(72%), rather than politicians who prioritise responding to
issues quickly, even if it means they spend more time reacting
to events than resolving long-term problems (28%).
TACKLING COMPLex POLICy ChALLeNGeSCASE STUDY
Review of pensions A commission, headed by business
expert Adair Turner, was established.
as a model for long- It wanted to build consensus, so
term policy making started with work to establish the
facts and build a shared understanding
In the early 2000s, pensions policy of their analysis before presenting the
was a highly political and divisive stark policy options and trade-offs
issue. With an ageing population government would have to decide
and following a number of changes on. It hosted events to bring in a
to both private and state pension wide range of expertise, including
provision, politicians needed to workshops to get citizens’ views. It
work out how they would ensure engaged with opposition parties as
pensioners were not left living in well as the government of the day.
poverty in the future. This process allowed the commission
to present recommendations which
all of the major parties could,
broadly, agree on.
TACKLING COMPLex POLICy ChALLeNGeSIMPROVING
PUBLIC
SERVICES
REDUCING ACHIEVING TACKLING IMPROVING GOVERNING
THE DEFICIT SUSTAINED COMPLEX PUBLIC IN A WORLD
GROWTH POLICY SERVICES WHERE POWER
CHALLENGES IS SPREAD
WIDELYWHAT POLITICAL health, education, welfare and justice.
PARTIES ARE SAYING This may make getting support for
further big changes much harder
Delivering government-funded in 2015.
services as spending falls isn’t easy,
especially given current demographic Small improvements to public
pressures. But even so, people expect sector processes can have big
public services to be effective and impacts. In one trial, her Majesty’s
treat them with respect, whether they Revenue and Customs boosted tax
are receiving cancer treatment or repayment rates by around 15%
renewing a driving licence. Parties are simply by changing the wording in
therefore seeking to identify changes letters.8 Making such improvements
that will make the biggest difference needs good organisational leadership;
to efficiency and effectiveness in solid information on customers and
areas such as health, education, costs; a willingness to experiment
employment, justice and policing. (and fail); and a steady flow of ideas
and information about what works
from frontline workers, service users
WHAT WORKS and communities.
AND WHAT DOESN’T
Successive governments have tried
historically, governments have tried to improve public service efficiency
to improve public services through through outsourcing. Private and
structural reform; routine process voluntary sector organisations now
improvements; outsourcing and the deliver around £90bn of public
creation of public service markets; services annually.9 Outsourcing can
and technology-enabled change. work well for transactional services
like waste collection. however,
evidence shows that performance more complex outsourcing projects
tends to dip in the first two years of often underperform due to perverse
major structural reforms, but they contractual incentives, weak public
can work if they directly lead to sector oversight, and a lack of
improvements at the front line. for transparency and competition –
example, ‘one stop shops’ for basic as illustrated by recent scandals in
government services can improve areas like electronic tagging.
customer service and reduce building
and administration costs. The 2010 Worryingly, half of the people in our
coalition government restructured recent survey felt that no-one takes
IMPROvING PUBLIC SeRvICeSresponsibility when problems occur WHAT POLITICAL PARTIES
in outsourced services. MUST DO TO IMPROVE
PUBLIC SERVICES
The Government estimates that
information technology will Slow down on outsourcing more
save some £1.2bn for business, services to allow greater focus on
consumers and the state by 2015.10 fixing broken and underperforming
yet, despite successes such as online public service markets.
tax returns, big IT-enabled changes
have frequently suffered delays and • Share information on the costs
cost overruns, as seen in the case of and performance of providers with
the NhS IT programme. evidence the public and Parliament to show
shows projects work when change that government is in control, and
is phased in, accountability is clear increase the focus on ensuring
and the correct project management value for money.
disciplines are used.11
CASE STUDY
Using customer Passenger focus, the independent
satisfaction data to transport watchdog, survey more than
50,000 rail passengers annually to
drive improvements gauge satisfaction with rail journeys,
in public services including frequency, punctuality and
value for money. The results of their
Collecting customer satisfaction surveys are open to all.
data and making it visible can
help providers of public services Satisfaction data is now also
to make improvements that used in the contracting process.
really matter to service users. Rail franchises must meet satisfaction
targets throughout their contract,
putting passenger experience front
and centre and creating more
transparency and accountability
between providers, rail users and
the government.
IMPROvING PUBLIC SeRvICeS• Build on existing efforts to • Phase in reforms so that the
increase commercial expertise approach can adapt as information
and skills in Whitehall, such as on what works improves and
the Commissioning Academy and circumstances change.
Major Projects Leadership Academy.
Pay for commercial expertise to • Safeguard and build on the central
manage multi-million-pound deals teams that challenge and support
and consider retention incentives projects, such as the Major Projects
to keep experts in post. Authority (MPA). Big changes need
effective scrutiny.
• Increase the scrutiny of new
outsourcing deals (particularly those Focus on creating the right
over £100 million) to make sure they conditions for the small
are sensible. This should include improvements that have
seeking independent, formal advice a big cumulative impact.
on competition issues from the
Competition and Markets Authority. • Invest in creating management
information similar to that used in
Prioritise just a few big structural or the UK’s most successful businesses,
IT-enabled reforms, engage widely, including better data on service
and phase in reforms to get the users and their preferences. Give
results you want. finance directors responsibility
for ensuring this informs decision
• Test ideas with those affected making and drives accountability.
to improve reform plans before
announcing them. Learn from past
successes and failures and don’t be
over-optimistic, particularly about
complex IT-enabled change.
• Use the energy and sustained
focus that junior ministers can
bring to implementation. ensure
departments have the specialist
skills needed to drive change
and deliver new services before
embarking on major change.
IMPROvING PUBLIC SeRvICeSCASE STUDY
The risks of
structural reform
NHS 2012 Leading to…
Health and
Social Care Act
REORGANISED
20 TIMES
IN 41 YEARS
170
organisations closed
1974 2015 240
new bodies created
Evidence shows that 10,000
performance tends to dip staff redundant12
in the first two years of
major structural reforms.
IMPROvING PUBLIC SeRvICeSGOVERNING
IN A WORLD
WHERE POWER
IS SPREAD
WIDELY
REDUCING ACHIEVING TACKLING IMPROVING GOVERNING
THE DEFICIT SUSTAINED COMPLEX PUBLIC IN A WORLD
GROWTH POLICY SERVICES WHERE POWER
CHALLENGES IS SPREAD
WIDELYWHAT POLITICAL WHAT WORKS
PARTIES ARE SAYING AND WHAT DOESN’T
Whoever wins power in 2015 will have Ministers and officials can create
to operate in an increasingly complex problems if they fail to appreciate
environment as the UK moves away the nature of deals with devolved
from its tradition of a centralised nations. for example, the devolved
state, two-party politics, stable administration in Wales has cited
majorities and a deferential electorate. frustration and practical problems
resulting from being consulted too
Politicians acknowledge that the late on relevant legislation. The mix
voting public is less inclined to of powers that have been devolved
identify with the major parties, is complex, and the devolution
and is increasingly sceptical about processes in Wales, Scotland and
them, politics and government more Northern Ireland will continue. An
generally.13 The long-term trend is incoming government must ensure
towards multi-party politics, changing they understand who they should
the dynamics in Whitehall and be working with and establish
Westminster and making majority practical measures to maintain
government less likely. good communication.
What’s more, power is not Parties can learn about governing
concentrated solely in the hands of without a single-party majority from
ministers. The current system requires recent UK and international experience.
co-ordination and negotiation with Tensions are inevitable when parties
the european Union; devolved nations; have distinct identities and priorities.
local authorities; city-region power Whatever the personal relationships,
bases; the wider public sector; and formal procedures need to be in place
party and opposition colleagues to support political parties and ensure
in Parliament. Parties are openly everyone knows what happens if
debating how these relationships disagreements develop.
should work.
Arguments between ministers and
Incoming ministers will also need to civil servants undermine government’s
work with the civil service leadership reputation and make it harder to do
and an array of fairly autonomous business. ‘Blame games’ damage the
Whitehall departments. trust needed to maintain productive
working relationships, prevent learning
GOveRNING IN A WORLD WheRe POWeR IS SPReAD WIDeLyfrom success and failure, and result
in divided leadership teams. Recent
rows over high profile project failures
Only 24%
of people say they
show that conventions governing the
relationship between ministers and
officials are outdated and can lead to
confusion about who is accountable
understand how for what.
political parties go Governments have not yet cracked how
about developing to establish a more trusting and open
their policy ideas relationship with the public. however
the public and most parliamentarians
do support more openness and
transparency, and recent governments
have responded to this by opening up
data and encouraging scrutiny.
CASE STUDY
Making coalitions work Over time however, Nick Clegg was
given more resource to support his
Making compromises is important Deputy Prime Ministerial role and in
when governing with partners. The 2011 more Liberal Democrat special
Conservative-Liberal Democrat advisers were appointed to work
coalition agreed to a principle of in departments where the Liberal
balance between their parties in Democrats had less presence. These
government, but as the Liberal political appointments represented
Democrats are the junior partners a compromise and balancing in the
and have fewer ministers they initially coalition relationship but also helped
found it harder to have the right level to improve communications. Special
of influence across Whitehall. They advisers are needed to undertake
had also committed to cutting the party political tasks that civil servants
number of special advisers – political cannot do, such as negotiating policy
appointees – across government. positions between parties.
GOveRNING IN A WORLD WheRe POWeR IS SPReAD WIDeLyWHAT POLITICAL PARTIES are still good. Consider forums for
MUST DO TO GOVERN IN joint decision making, like the ‘quad’
A WORLD WHERE POWER system used by the Conservative-
IS SPREAD WIDELY Liberal Democrat coalition; agreed
communication procedures; and
Rethink the relationship between guarantees that smaller parties
the UK government and devolved are properly resourced. Use civil
administrations. servants to ensure these procedures
are followed.
• ensure ministers and relevant civil
servants understand the limits • Allow space for all parties to
of their control and the nature of differentiate and keep their own
arrangements with devolved nations distinct identities, outside of
within their policy briefs. the core, agreed programme.
Parties can, for example, be
• Create ‘rules of the game’ and open in the media about where
appropriate mechanisms to involve, they are compromising on policy,
consult or co-operate with devolved or allow free votes on non-core
nations in policy development and legislation in Parliament.
announcements.
Support trusting relationships
Learn from the experience of between ministers and officials.
governing without a single-party
majority and how to make effective • Clarify how roles and responsibilities
political decisions with partners, are split between top civil servants
in the event of a coalition or and ministers. Set clear objectives,
minority government. including on spending and preparing
policy advice, for the most senior
• Agree a clear policy programme civil servants and hold them
and how parties will work together to account.
at the outset. Keep some flexibility
to review and refresh these • formalise the process of recruiting
agreements over time. the most senior officials so that
ministers have the final say on the
• Create ways to encourage openness best candidate for the job, from
between the parties at the start of a merit-based shortlist.
any coalition while relationships
GOveRNING IN A WORLD WheRe POWeR IS SPReAD WIDeLyBuild more openness and scrutiny The Office for Budget Responsibility
into government processes could scrutinise manifesto pledges
to increase the confidence of to see if they are properly costed.
Parliament and the public.
• Improve the quality of data about
• Build checks and balances government activities that is
into government, for example, available to the public.
by providing impartial evidence
and scrutiny.
A multi-party The two main parties’ share of
the vote has declined from a
system? peak of 97% in 1951 to 65% in
2010. There is evidence of a trend
towards a multi-party system.14
Total vote
97% share for the
two main parties
Total vote
share for the
two main parties
65%
1945 2010
GOveRNING IN A WORLD WheRe POWeR IS SPReAD WIDeLyGETTING READY
TO GOVERN
With the election looming, parties will focus on their campaigns,
but it is not too soon to start preparing for government. Whether
continuing as a party of government or returning to government
from time in opposition, there will be a period of adjustment into the
new parliament. Good preparation helps parties adapt quickly and
gives them the best chance of achieving their goals.
PREPARING TO BE Set the departmental agenda
A MINISTER Incoming or existing ministers moving
to new departments need time to
Start engaging with the familiarise themselves with their
Civil Service briefs and understand departmental
To avoid confusion about civil service dynamics. Ministers continuing in
impartiality, the Opposition needs post should use this time to refresh
clear guidance for pre-election their agenda and re-connect with
contact between shadow ministers their department. Many former
and senior officials. These talks give ministers have emphasised how
officials time to plan ahead and important it is to prioritise a few key
prepare the ground for the policy policies early on in the term, focus
priorities of a new government. They efforts on these, and then set out the
are also important for establishing longer-term direction of their thinking
relationships. Ministers already in to their ministerial colleagues and
government also need to talk to civil servants.
officials about their post-2015 plans.
Build a ministerial team
The Civil Service is constrained Ministers are often reluctant to
in the amount of work it can do engage in training and development.
in advance as it is still serving the But like leaders in other sectors,
incumbent government, but both they need to take time to reflect
sides need to prepare. on their performance and develop
GeTTING ReADy TO GOveRNtheir skills and teams to cope with PREPARING YOUR
the challenges ahead. Ahead of GOVERNMENT’S AGENDA
the election, this should include
team work with ministerial Get negotiating positions ready
colleagues and deciding how to Parties should be clear, if only
split ministerial responsibilities. privately, on their ‘red lines’ and
negotiating positions in case they do
Do targeted inductions not win an overall majority and need
and ongoing development to make deals with other parties.
In previous parliaments,
induction for new ministers Take time to get new agreements
has largely been limited to right and phase in the handover
ethical rules, the working of of power, if the outcome of
private offices and the basics the election is not a majority
of civil service machinery. government
New ministers would benefit In 2010 the Liberal Democrats and
from a fuller induction and Conservatives negotiated a coalition
continuous development agreement straight after the election,
opportunities, such as personal then a more detailed programme
appraisals, to get structured later. Cross-party negotiation is
feedback on their performance. difficult, especially in the aftermath of
an election and in the face of intense
GeTTING ReADy TO GOveRNinternal party interest and media early on. Parties that have just pressure. If the next government won power naturally want to get enters into a formal coalition, it straight on with implementing their should take time to get the agreement reforms. They should be wary, right – knowing that the novelty of however, of committing to major multi-party government is wearing legislative changes without taking off. A looser arrangement between advantage of the additional analysis, parties, or a minority government information and testing they can striking deals with other parties on an access in government. Introducing ad hoc, less permanent basis, will still many large bills simultaneously require consideration about where to can result in poor policy making, make concessions, the ground rules too little parliamentary scrutiny between parties and how a legislative and, ultimately, being forced programme will pan out. into u-turns. Stress test policies and give yourself flexibility Much detailed policy development can be done ahead of a new term, whether in opposition or government. This is particularly important for policies that will be launched GeTTING ReADy TO GOveRN
PREPARING YOUR APPROACH and departments. They should
TO THE CIVIL SERVICE consider what support the prime
minister will need and what cross-
Signal early what you want the cutting units or Cabinet committees
Civil Service to be like will be required.
Whether the Civil Service should be
leaner, more or less centralised, or Take responsibility for
better skilled in certain areas, is an civil service reform
important political consideration. Over the last five years, the Civil
Parties should start to indicate Service has proved it is adaptable
now what style of government by dealing with budget reductions,
they want to run and what their restructuring departments and
main priorities are, so that the Civil changes to working practices. The civil
Service can prepare. service reform agenda has progressed.
But further reform, aligned to the
Decide on structures next government’s priorities, will need
Parties must think about the clear leadership from the top of the
‘architecture’ of Whitehall, defining Civil Service, including the Treasury.
the role and relationships between the It must have visible commitment from
centre of government (Number 10, the prime minister and the support of
the Cabinet Office and the Treasury) ministers in their own departments.
GeTTING ReADy TO GOveRNCONCLUSION
It is clear that for parties to achieve their goals after 2015
they will need to govern differently. The Institute’s work
consistently shows that success in all areas will require
government to be more accountable, skilled, strategic,
joined up and outward looking.
The public want to see changes too. will continue to support them in the
Our recent polling shows they want run-up to 2015 and beyond. We will
politicians who prioritise fulfilling their produce more detailed advice on
promises, getting value for money, important but sometimes overlooked
implementing the best policies for issues such as policy making,
Britain and running the government outsourcing and Whitehall reform.
professionally. But what they see is
politicians who prioritise re-election, Ultimately, governments are judged by
political point scoring and making big the impact that they have. Governing
media announcements. in 2015 will not be easy, but whoever
is elected must seize the opportunity
The steps outlined in this document to create the effective government
will help all parties prepare to govern citizens want.
and the Institute for Government
CONCLUSIONpeople want people think at the
politicians to moment politicians
prioritise… prioritise…
53% Getting re-elected
51% Scoring political points
against other parties
Fulfilling the promises they
make before getting elected
46%
Getting best value for tax-payers 45%
Taking decisions about the long- 43% Making big announcements
term direction of the country in the media
41%
Running the government 40%
professionally
Implementing the policies 35%
they think are best for Britain
Representing their local area 23% Taking decisions about the
long-term direction of the country
Implementing the policies they
19% think are best for Britain
18%
Getting best value for tax-payers
16%
15% Fulfilling the promises they
14% make before getting elected
Running the government professionally
11% Representing their local area
9% None of these
None of these 8%
Getting re-elected 6%
5%
Making big announcements 4%
in the media
Scoring political points
against other partiesNOTES
1. National Audit Office (NAO), Whole of 8. Behavioural Insights Team, Annual update
Government Accounts 2012–2013: At a Glance, 2010–11, retrieved 2 September 2014 from
NAO website retrieved 2 September 2014 www.gov.uk/government/uploads/system/
from www.nao.org.uk/highlights/whole-of- uploads/attachment_data/file/60537/
government-accounts The total for the year Behaviour-Change-Insight-Team-Annual-
2012–13 was £717.3bn, net £178.3bn. Update_acc.pdf
2. Unless otherwise stated, the polling data cited 9. NAO, Managing Government Suppliers, The
in this report is from a poll carried out for the Stationery Office, 2013, retrieved 2 September
Institute for Government by Populus. Populus 2014 from www.nao.org.uk/wp-content/
interviewed 2,040 GB adults online between uploads/2013/11/10298-001-Governments-
8th and 10th August 2014. Results have been managing-contractors-hC-811.pdf
weighted to be representative of all GB adults.
10. UK Government press release, ‘UK to be the
for full results and for more information see
G8’s “most digital government” next year,
www.populus.co.uk
with billions of savings in sight’, Gov.UK online,
3. The Treasury, Spending Review 2010, The 9 January 2014, retrieved 2 September 2014
Stationery Office, 2010, retrieved 2 September from www.gov.uk/government/news/uk-to-
2014 from www.gov.uk/government/ be-the-g8s-most-digital-government-by-
uploads/system/uploads/attachment_data/ next-year-with-billions-of-savings-in-sight
file/203826/Spending_review_2010.pdf
11. Stephen, J., Myers, J., Watson, D., Magee, I.,
4. The Treasury, Spending Round 2013, System Error, The Institute for Government,
The Stationery Office, 2013, retrieved 2011, retrieved 2 September 2014 from
2 September 2014 from www.gov.uk/ www.instituteforgovernment.org.uk/
government/uploads/system/uploads/ publications/system-error
attachment_data/file/209036/spending-
12. Timmins, N., Never Again? The Story of the
round-2013-complete.pdf
Health and Social Care Act 2012, Institute for
5. This is the structural deficit. Office for Budget Government, 2012 retrieved 2 September
Responsibility, Economic and Fiscal Outlook, 2014 www.instituteforgovernment.org.uk/
The Stationery Office, 2014, retrieved 2 publications/never-again
September 2014 from
13. fox, R., Korris and M., Audit of political
cdn.budgetresponsibility.org.uk/37839-OBR-
engagement 11, hansard Society, 2014,
Cm-8820-accessible-web-v2.pdf
retrieved 2 September 2014 from
6. youGov, The Economy, youGov Limited, www.hansardsociety.org.uk/audit-of-political-
2013, retrieved 2 September 2014 from engagement-11/
d25d2506sfb94s.cloudfront.net/cumulus_
14. Paun, A., After the Age of Majority?
uploads/document/5obdsw2uhj/yG-Archives-
Multi-party Governance and the Westminster
Pol-Trackers-economy-161213.pdf
Model, Institute for Government,
7. Labour’s Policy Review, The Armitt Review, The 2011 retrieved 2 September 2014
Labour Party, 2013, retrieved 2 September 2014 www.tandfonline.com/doi/pdf/10.1080/
from www.yourbritain.org.uk/uploads/editor/ 14662043.2011.615167
files/The_Armitt_Review_final_Report.pdf
NOTeSABOUT THE INSTITUTE FOR GOVERNMENT We are an independent charity with cross-party governance. Our mission is to help make government in the UK more effective. Over the past five years, the Institute has been at the forefront of rigorous research in the quest for a more effective government. Working directly with leading politicians from all parties in Westminster and with senior civil servants in Whitehall, we have provided practical advice and learning to help them do their jobs better for the benefit of the public. Our work draws on best practice from around the world and our ideas are based on evidence of what works and what doesn’t. Our voice can be heard influencing the debate about government in a number of areas, and we will continue to promote a more effective way of working. In the run-up to the 2015 election and beyond we will: • help potential ministers from all parties prepare to make and implement policy and understand the realities of running a department. ABOUT The INSTITUTe fOR GOveRNMeNT
• help government departments to adopt better ways of interacting with arm’s-length bodies and the wider public and private sectors. • Promote solutions that improve the accountability of government both to Parliament and the public, including clearer central responsibilities for managing performance of the Civil Service. • Support UK government to adapt to new multi-party politics, wider dispersal of power and the changing nature of relations with devolved administrations. • Support the Civil Service to deliver the priorities of ministers, ensuring officials have the right structures, tools and skills to strengthen the way in which policies are developed and implemented. • Work with government to achieve more professional design and oversight of public service markets, including greater transparency. • Build on our work to promote financial leadership in government so that both government and the public are confident about how money is spent. • help improve implementation of major change in Whitehall departments. • Promote collective leadership of civil-service- wide reform. ABOUT The INSTITUTe fOR GOveRNMeNT
Copies of this report are available alongside other research work at: www.instituteforgovernment.org.uk @instituteforgov September 2014 © Institute for Government 2014 2 Carlton Gardens London SW1Y 5AA Tel: +44 (0) 20 747 0400 Fax: +44 (0) 20 7766 0700 Email: enquiries@instituteforgovernment.org.uk The Institute is a company limited by guarantee registered in England No. 6480524 Registered Charity No. 1123926
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