Dear Sir/Madam

COUNCIL - WEDNESDAY, 2ND DECEMBER, 2020

Please find enclosed a report to be included for consideration at the meeting of Council on Wednesday, 2nd December, 2020 .

3Local Government Reorganisation - Key Principles of the Final Submission (Pages 3 - 84)

To consider report PP47/20 which seeks to consider and endorse Eden District

Council’s preferred option for the configuration of Local Government Reorganisation in

Cumbria.

RECOMMENDATION that Council consider and endorse the Council’s preferred option, approved by the Executive on 24 November 2020 of two Unitary Authorities (North-South) for Local Government Reorganisation in Cumbria.

Yours sincerely

P Sutton

Interim Director of Corporate Services

Encs

Distribution

1.Reports to all Members of the Council for attendance.

2.Reports to Departmental Heads for information.

3.Reports to all remaining Councillors for information.

This page is intentionally left blank

Agenda Item 3

Report No: PP47/20

Eden District Council

Council

2 December 2020

Local Government Reorganisation – Key Principles of the

Final Submission

1Purpose

1.1To consider and endorse Eden District Council’s preferred option for the configuration of Local Government Reorganisation in Cumbria.

2Recommendations

2.1That Council consider and endorse the Council’s preferred option, approved by the Executive on 24 November 2020 of 2 Unitary Authorities (North-South) for Local Government Reorganisation in Cumbria.

3Report Details

3.1In September 2020 Executive agreed that Eden District Council work with Allerdale Borough Council, Carlisle City Council and Copeland Borough Council (the Authorities) on the development of options for establishing unitary councils in Cumbria.

3.2On 9 October the Secretary of State for Housing, Communities and Local Government (MHCLG) wrote to all Council Leaders in Cumbria formally inviting proposals for unitary local government for the area with a timetable of outline proposals to be submitted by 9 November and full proposals by

9 December 2020.

3.3The Authorities commissioned KPMG to support this work. Each of the Authorities submitted an outline submission by the deadline of 9 November (Appendix 1). The developing Case for Change that will form the basis of the final submission is attached at Appendix 2.

3.4This document sets out the vision and principles for establishing two new Unitary Authorities in Cumbria with a Combined Authority across the two. The Authorities and KPMG have been evaluating the options for how two Unitary Authorities could be configured. This evaluation is based on four key principles which were developed with members and officers from the Authorities:

∙Impact on service delivery

∙Financial benefits and sustainability

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∙Democratic representation

∙Growth

A fifth key principle, public support, will be added at final submission stage.

3.5Four options were evaluated:

∙A single county-wide Unitary

∙2 Unitary Authorities with an East - West configuration (Eden with Barrow and South Lakeland then Allerdale with Carlisle and Copeland)

∙2 Unitary Authorities with a North – South configuration (Eden with Allerdale and Carlisle then Barrow with Copeland and South Lakeland)

∙2 Unitary Authorities with a ‘northern four’ (Eden with Allerdale, Carlisle and Copeland West then Barrow with South Lakeland).

3.6The summary of the evaluation scoring is given in Appendix 3. The ranking of options are:

∙2 Unitary Authorities, North – South

∙2 Unitary Authorities, East – West

∙2 Unitary Authorities, ‘northern four’

∙Single county-wide Unitary.

The scoring supports the importance of a two unitary model. However the scoring is close between the East-West and North-South options is very close, significantly ahead of the ’northern four’ and single unitary options.

3.7MHCLG has stated that final submissions can only include a single preferred option. Therefore Executive on 24 November 2020 considered which of the options, East-West or North-South, they preferred.

3.8The Executive unanimously approved the 2 Unitary North – South option ie Eden, Allerdale and Carlisle as one authority and Barrow, Copeland and South Lakeland as the other.

3.9The Council’s submission will reflect this decision and this is report presents an opportunity for the Council to consider and endorse that proposal.

4Policy Framework

4.1The Council has four corporate priorities which are:

∙Sustainable;

∙Healthy, safe and secure;

∙Connected; and

∙Creative

4.2This report impacts on all priorities.

5Consultation

5.1The Devolution Members Working Group considered the evaluation of the options at their meeting of 20 November 2020. The recommendations of the Working Group to Executive were that:

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∙The two unitary and combined authority option is supported

∙The north/south option be put forward as the preferred option for Eden due to common links, interests and synergy of services

∙That the east/west option is not supported due to lack of common links, interests and synergy of services

6Implications

6.1Financial and Resources

6.1.1Any decision to reduce or increase resources or alternatively increase income must be made within the context of the Council’s stated priorities, as set out in its Council Plan 2019-2023 as agreed at Council on 7 November 2019.

6.1.2£50,000 from reserves has been allocated to support this work.

6.2Legal

6.2.1 There are no legal implications at this stage.

6.3Human Resources

6.3.1 There are no human resources implications.

6.4Statutory Considerations

7Other Options Considered

7.1The options considered are set out in paragraph 3.6.

8Reasons for the Decision/Recommendation

8.1To ensure the optimal solution for Local Government Reorganisation for Eden is identified.

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Page 6

Page

Appendix 1

Cumbria

Local

Government

Reorganisation

Outline Proposal

Eden District Council

November 2020

7

Page 8

Contents page

Contents

1

Purpose of this report

This document is the outline proposal for local government reorganisation in Cumbria submitted by Eden District Council. It details the case for change in Cumbria, how we are agreeing the best geographic model and the further detail that will be included in our full proposal.

Objectives of this report

The key objectives of this document are to:

•Clearly outline the case for change;

•Demonstrate our vision for local government in Cumbria and how that supports the delivery of key elements of the Government’s policy agenda;

•Document the criteria to agree a geographic model for future unitaries; and

•Outline the further detail to be included in the full proposal by the 9th December

Carlisle

Allerdale

Eden

Copeland

South

Lakeland

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Key opportunities for Cumbria

Cumbria has significant strengths and opportunities to grow and develop, from the existing strong tourism industry to nuclear and renewables assets that can enable it to lead the UK towards net zero ambitions.

Cumbria has significant assets and opportunities to develop and grow which include:

•The opportunity to establish an elected mayor to promote the region and

give a clear voice for the people and economy of Cumbria through devolution.

•Cumbria is a Centre of Nuclear Excellence: decarbonising heat, power and transport, and driving clean growth as we head towards Net Zero by 2050. Through the Barrow shipyard we are also at the core of the UK’s defence industries and nuclear deterrent.

•We have significant assets for renewable energy including a large coastline and plenty of wind which can support the UK’s clean energy agenda and net zero ambitions.

•Cumbria is home to a wealth of natural assets including the Lake District world heritage site, three Areas of Outstanding Natural Beauty, parts of the Yorkshire Dales National Park and the Cumbria Coast Marine Conservation Zone. These open spaces and their biodiversity supports tourism which brings over 47 million people and £3.1bn to the local economy every year.1

•We make a significant contribution to national rural economy with the commitment to innovate and the use of new technologies to support food self sufficiency and wider national agricultural policy.

3

1. Cumbria Tourism (https://www.cumbriatourism.org/what-we-do/awards/)

Challenges for Cumbria

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Cumbria faces a number of local challenges and issues while managing the national issues of devolution and EU Exit and the international challenges posed by COVID-19 and climate change.

In addition to national issues such as COVID-19, forthcoming white papers on devolution and planning, EU Exit, health and social care integration, climate change and digitisation, Cumbria faces some specific challenges including:

Large, rural and sparsely populated - Cumbria is the second largest county in the country but has a small and mostly rural population which means delivering high quality services fairly across the whole area is challenging.

Financial sustainability - Local government nationally is under significant financial pressure. Prior to COVID-19 the Councils in Cumbria required savings of £16.8m in 2020/21 on top of savings made since 2011.1

Shrinking and ageing population - The population is older than the national average and is expected to shrink which presents a challenge regarding skills, economic growth and adult social care.2

Inequalities- There are pockets of significant deprivation and significant variations in life expectancy, education and other key life factors across the county.

4

1.Medium Term Financial Plans of the seven councils

2.ONS population estimates

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The case for local government reorganisation

Local government reorganisation is supported by the authorities of Cumbria as it presents an opportunity to deliver better services to residents, more efficiently and will bring clarity to local government. It will enable stronger leadership for Cumbria and enable devolution to attract investment, strengthen the economy and level up the region.

The key benefits associated with a move to unitary local government are:

•Stronger voice to central government - Unitary government will give a strong voice for the region on a regional, national and international stage.

•Unlocking devolution – Local Government Reorganisation may enable a devolution deal with a possible mayoral Combined Authority and the region has ambitions to lead the way towards carbon negativity while creating jobs, promoting growth and ‘levelling up’ across the region.

•More efficient governance - The two-tier system creates duplication and overhead costs for residents which reduces the value for money that the people of Cumbria expect.

•Scale in service delivery – More efficient delivery will enable greater organisational sustainability to enable services to be resilient, efficient and improved.

•Integrating planning and delivery – the two-tier system separates planning from delivery which weakens the effectiveness of economic development. This also prevents joined up services e.g. separating delivery of children’s services from services that support children, such as leisure and cultural services.

•Clarity in democratic representation – The two-tier system creates confusion regarding the role of District and County councils. A unitary structure provides a single organisation to contact regarding residents’ local area.

This report assumes that local government reorganisation will take place in Cumbria, and focusses on the opportunities that it presents

The case for a two unitary model

A two unitary model is the only practical approach to supporting Cumbria, balancing population needs, size and efficiencies of scale with local geography, infrastructure and culture. Cumbria is a large, sparsely populated county

Two unitaries provides the right balance of population size and economies of scale with the practicalities of Cumbrian geography, culture, society and economy. Cumbria is too large to enable a single authority to be efficient and effective but the population is too small for three authorities to be efficient. Two unitaries will enable us to meet and exceed the expectations of our communities, particularly through post-Covid recovery.

•Two unitaries enables strong democratic representation for residents and place without placing too much pressure on town and parish councils to fill the gap

•Many residents do not identify with the boundaries of Cumbria County Council. The county came into being in 1974 replacing Cumberland and Westmorland and does not have a single unifying functional economy, socioeconomic geography or culture.

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•Cumbria has a low population density so, while the 500k population would be viable for a unitary, the population is spread over a large area which makes service delivery for the whole area more complex.

•Services need to be local and reflect their place. Two unitary authorities will enable localism in service deliver as well as integration and harmony in delivery e.g. focused economic development. Existing County services are delivered over multiple different footprints within Cumbria so two unitaries represents a consolidation of service delivery.

•Cumbria’s six largest cities and towns are in different districts and each have a very different identity and culture. Two unitaries will enable them to have a stronger voice and identity in how they are run, rather than centralising power in one hub.

•A future mayoral Combined Authority enables strategic planning and leadership while two balanced unitaries provides local service delivery and a strong basis for inclusive, clean growth.

6

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Our vision for local government in Cumbria

We will promote Cumbria with strong and fair representation for our communities and businesses. Our services will drive sustainable economic growth, enable safe and healthy lives and deliver value for money for everyone.

How we will achieve it

•Two unitaries providing local representation, responsibility and accountability as part of a strong Cumbria Combined Authority

•Local, responsive, accessible services, integrating planning and service delivery

•Strengthening our economy to lead the UK towards a cleaner, prosperous future

•Delivering high quality services, efficiently and

delivering value for our residents in collaboration with our partners

7

The evaluation criteria

This outline proposal does not include a preferred model for two unitaries in Cumbria as we are taking a detailed, evidence-based approach to understanding the options through five main evaluation criteria which are weighted to reflect our priorities for local government reorganisation

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Further details in the full proposal

We will submit a full proposal which contains our model for local government reorganisation in Cumbria including the financial analysis that supports it, evidence of public support and a high level timeline for implementing unitary government in Cumbria.

9

Page 17

10

Appendix 2

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Cumbria

Local

Government

Reorganisation

Case for Change

November 2020

Cumbria local government reorganisation – full proposal

Contents page

Contents

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Blea Tarn, South Lakeland

1

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Executive summary

2

Carlisle City Centre

Executive summary

Purpose of this report

This document is a Full Proposal recommending a two unitary model of local government reorganisation in Cumbria in response to the invitation dated 9th October 2020. This proposal has been developed in partnership between the four District, City and Borough Councils of north Cumbria and is submitted by XX and XX on behalf of the people of Cumbria.

•Clearly communicate the model of local government being proposed by XXX and XXX

•Detail the benefits associated with the proposed model.

•Set out high level considerations around how the proposed model could be implemented.

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An East & West and a North & South model have therefore been submitted which represent the best two options for unitary structures across the whole of Cumbria. The proposals detail the clear strength of a two unitary approach to local government and provide the arguments that support each model to be considered through formal and appropriate public consultation.

3

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Purpose and approach

4

Wasdale, Copeland

Purpose and approach

Purpose of this report

This document is a Full Proposal recommending a two unitary model of local government reorganisation in Cumbria in response to the invitation dated 9th October 2020. This proposal has been developed in partnership between the four District, City and Borough Councils of north Cumbria and is submitted by XX and XX on behalf of the people of Cumbria.

•Clearly communicate the model of local government being proposed by XXX and XXX

•Detail the benefits associated with the proposed model.

•Set out high level considerations around how the proposed model could be implemented.

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An East & West and a North & South model have therefore been submitted which represent the best two options for unitary structures across the whole of Cumbria. The proposals detail the clear strength of a two unitary approach to local government and provide the arguments that support each model to be considered through formal and appropriate public consultation.

5

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Purpose and approach

Approach to developing the Case for Change

This document has been prepared through extensive research, analysis of public information, tailored information requests, financial modelling and stakeholder engagement.

Virtual workshops have been held, attended by over 25 Leaders, Deputy Leaders, Members, Chief Executives and Senior Officers from across the District, City and Borough Councils.

Throughout the process the Councils have engaged with external partners to gather insight, views and supporting information.

6

Impact on service delivery

Purpose and approach

The evaluation criteria

In assessing the options for local government reorganisation in Cumbria we established five criteria that any successful model would need to achieve.

In assessing the options for local government reorganisation in Cumbria we established five criteria that any successful model would

needDEVELOPINGto achieve.Financial benefits and sustainability These incorporate the criteria outlined

in the invitation for proposals but also reflect the drivers, priorities and local

circumstances of Cumbria through Democratic representation the process. There are five main

evaluation criteria.

Growth

Public support

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7

To evaluate potential options in detail we developed subcriteria against each main criteria. These were weighted where 5 is critical to any future unitary model and 1 is less important.

Vision and principles for local government reorganisation

The Candlestick Chimney, Wh

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Our vision for local government in Cumbria

We will promote Cumbria with strong and fair representation for our communities and businesses. Our services will drive sustainable economic growth, enable safe and healthy lives and deliver value for money for everyone.

How we will achieve it

DEVELOPING• Two unitaries providingDRAFTlocal representation, responsibility and accountability as part of a strong

Cumbria Combined Authority

•Local, responsive, accessible services, integrating planning and service delivery

•Strengthening our economy to lead the UK towards a cleaner, prosperous future

•Delivering high quality services, efficiently and

delivering value for our residents in collaboration with our partners

10

Vision and principles for local government reorganisation

Principles for local government reorganisation in Cumbria

We have established principles, aligned with our evaluation criteria, to establish what local government reorganisation must achieve for Cumbria. It must…

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Impact on service delivery

•Maintain and reflect local community identity and integrate services around the needs and expectations of residents and businesses

•Be agile and flexible to drive continuous service improvement

•Understand and reflect the challenges of rurality and level up services that everyone can rely on

•Minimise disruption and the impact of reorganisation on residents

•Leverage and grow strong local partnerships across public services, with business and with third sector organisations

Financial benefits and

sustainability

•Establish financially sustainable, fit for purpose local government organisations

•Unlock efficiencies that can be reinvested in services to boost quality

•Develop greater self sufficiency through income generation and leveraging scale and buying power

Growth

•Enable sustainable, inclusive economic development and encourage business investment in the local economy

•Represent Cumbria on the national stage through a strong leader and voice to attract investment

•Provide access to funding and increase the prosperity and wellbeing of businesses and communities

Democratic representation

•Provide communities with strong local representation co-designed, run in partnership and delivered at a local level

•Drive strategic leadership through a Combined Authority

•Reflect, support and develop functional economic geographies in the county

Public support

•Attract the support of the people and communities of Cumbria

•Reflect how the people of Cumbria identify with place

11

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Challenges and opportunities

12

Fle

Challenges and opportunities

Key opportunities for Cumbria

Cumbria has significant strengths and opportunities to grow and develop, from the existing strong tourism industry to nuclear and renewables assets that can enable it to lead the UK towards net zero ambitions.

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Cumbria has significant assets and opportunities to develop and grow which include:

•The opportunity to establish an elected mayor to promote the region and give a clear voice for the people and economy of Cumbria through devolution and a Combined Authority.

•CumbriaDEVELOPINGis a Centre of Nuclear Excellence: decarbonising heat, power and transport, and driving clean growth as we head towards Net Zero by 2050. Through the Barrow shipyard we are also at the core of the UK’s defence industries and nuclear deterrent.

•We have significant assets for renewable energy including a large coastline and plenty of wind which can support the UK’s clean energy agenda and net zero ambitions.

•Cumbria is home to a wealth of natural assets including the Lake District world heritage site, three Areas of Outstanding Natural Beauty, parts of the Yorkshire Dales National Park and the Cumbria Coast Marine Conservation Zone. These open spaces and their biodiversity supports tourism which brings over 47 million people and £3.1bn to the local economy every year.1

•We make a significant contribution to national rural economy with the commitment to innovate and the use of new technologies to support food self sufficiency and wider national agricultural policy.

1.Cumbria Tourism (https://www.cumbriatourism.org/what-we-do/awards/)

Carlisle Courts

DRAFT

13

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Challenges and opportunities

Challenges for Cumbria

Cumbria faces a number of local challenges and issues while managing the national issues of devolution and EU Exit and the international challenges posed by COVID-19 and climate change.

In addition to national issues such as COVID-19, forthcoming white papers on devolution and planning, EU Exit, health and social care integration, climate change and digitisation, Cumbria faces some

specific challenges including:

DEVELOPINGLarge, rural and sparselyDRAFTpopulated - Cumbria is the second largest county in the country but has a small and mostly rural population

which means delivering high quality services fairly across the whole

area is challenging.

14

1.Medium Term Financial Plans of the seven councils

2.ONS population estimates

Challenges and opportunities

The case for local government reorganisation

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Local government reorganisation presents an opportunity to deliver better services to residents, more efficiently and will bring clarity to local government. It will enable stronger leadership for Cumbria and enable devolution to attract investment, strengthen the economy and level up the region.

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The case for a two unitary model

16

Challenges and opportunities

The case for a two unitary model

A two unitary model is the only practical approach to supporting Cumbria, balancing population needs, size and efficiencies of scale with local geography, infrastructure and culture. Cumbria is a large, sparsely populated county

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Two unitaries provides the right balance of population size and economies of scale with the practicalities of Cumbrian geography, culture, society and economy. Cumbria is too large to enable a single

authority to be efficient and effective but the population is too small

through post-Covid recovery.

for threeDEVELOPINGauthorities to be efficient. Two unitaries will enable us toDRAFT meet and exceed the expectations of our communities, particularly

This section outlines how a two unitary model will achieve the best outcomes for Cumbria, structured by our evaluation criteria of:

17

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Impact on service delivery

18

Sellafield, Copeland

Impact on service delivery

The right structures for the population and geography

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Cumbria has a low population density so, while the 500k population would be viable for a unitary, the population is spread over a large area which makes service delivery for the whole area more complex. Existing County services are delivered over multiple different footprints within Cumbria so two unitaries represents a consolidation of service delivery.

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Impact on service delivery

Enabling local, integrated services

Two unitaries will maintain and reflect local community identity and integrate services around the needs and expectations of residents and businesses. They will be agile and flexible to drive continuous service improvement and understand and reflect the challenges of rurality and level up services that everyone can rely on

Many services are not currently managed close to the residents who receive them, particularly in rural areas. This lack of subsidiarity prevents services reflecting local need

which makes them less responsive and less efficient. A twoDEVELOPINGunitary model for local government reorganisation will enable services to be more local, agile and responsive to their

communities. By reflecting place and particularly rurality and

A69

DRAFTM6Fig. X Carlisle to Barrow travel times1

sparsity, services can be designed to be more efficient and more effective.

One of the key benefits of unitary government is to integrate services, for example children’s services with many of the District services that enable safe, healthy childhoods. This approach enables planning to be more effective and services to work in harmony though not if they are integrated on a pan- Cumbria footprint.

Strategic functions such as strategic planning and economic development would function effectively in a pan-Cumbria Combined Authority but frontline services need to be embedded in their communities to deliver place-based policy.

1. Google maps

A595

A66

A591

A595

A66

M6

A6

A590

A65

Impact on service delivery

Improving children’s social care

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Children’s social care services are a critical factor when considering models of local government. Services in Cumbria require improvement and support a large number of children over a large area and a two unitary model offers opportunities to target and focus services.

1. Children looked after in England including adoption: 2018 to 2019

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Impact on service delivery

Improving children’s social care

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Impact on service delivery

Adult social care and healthcare

Healthcare is delivered through two footprints which cross County and District boundaries, reflecting the challenges of a pan-Cumbria service approach. A two unitary approach provides an opportunity to establish local, integrated, all-age services over a viable footprint.

Fig. X Health geography

DRAFT

North Cumbria Health and Care System

Lancashire and South Cumbria Sustainability

and Transformation Partnership

24

Impact on service delivery

Adult social care and healthcare

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Universal services and vibrant communities can support people to live independently

As two unitaries will be closer to the communities, culture, demographics and geography of their population they will be better able to stimulate community support and to provide services that promote resilience and independence for older adults. This will reduce some pressure on adult social care as well as promoting the

wellbeing and quality of life of residents.

ThereDEVELOPINGare clear links between children’s and adult’s provisionDRAFT and support. Therefore, having two common footprints for

children’s and adult’s services is an advantage.

Adults’ and children’s services operating in a two unitary footprint will be able to support young people who are vulnerable (including those who have been safeguarded) or have disabilities as they progress into adulthood. An all-age approach to core services will be appropriately tailored to enable seamless support at all ages, with well managed transitions.

These opportunities should be seen in the context of the expected White Paper on health and social care integration which may require a more fundamental review of services and governance.

25

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Financial benefits and sustainability

26

Carlisle Courts

Financial benefits and sustainability

Significant long term financial efficiencies

Two unitaries will establish financially sustainable, fit for purpose local government organisations and unlock efficiencies that can be reinvested in services to boost quality

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inertia that can develop within authorities.

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Financial benefits and sustainability

Significant long term financial efficiencies

•Design of a digital services platform to enhance customer experience and accessibility as well automating simple services and increasing data integrity.

•Making better use of adult and children social care data to focus preventative measures, such as targeted promotion of leisure and well being services

More financial details are included in section X and supported by Appendix X.

Base reorganisation efficiencies

£18.8m

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Financial benefits and sustainability

Significant long term financial efficiencies

Two unitaries will develop greater self sufficiency through income generation and leveraging scale and buying power.

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Two unitary authorities offers significant scale that can

enable efficiencies through buying power.Placeholder for examples of collaboration realising financial benefits and improved outcomes

District spend that is currently commissioned six times across

CumbriaDEVELOPINGcan be delivered through two larger contracts enabling economies of scale, such as in waste management. These

contracts can be designed for the local needs of each unitary while achieving significant savings across the region.

Two unitaries will have the potential to enhance income streams to achieve greater self sufficiency

Through supporting local businesses unitaries will benefit from their growth through business rates and will have opportunities to generate further income streams through integrated services and joined up planning. Establishing modern, fit-for-purpose, digital organisations may also enable unitaries to generate new income streams through shared, hosted or traded services with other organisations.

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Democratic representation

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Democratic representation

Strong democratic representation

Two unitaries will provide communities with strong local representation through smaller, balanced electorates which avoids the need to place significant responsibilities onto town and parish councils.

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Local government reorganisation will reduce the ratio of elected members to electorate but a two unitary model retains local representation for our

There are currently 84 County Councillors and 246

District Councillors representing an electorate ratio of

communities without placing undue pressure on townDEVELOPINGand parish councils.

1,515 per post in Cumbria. While specific councilor numbers will be a matter for future councils, Cumbrian residents will lose a level of local representation through local government reorganisation.

A two unitary model enables residents to maintain greater local representation through smaller, balanced electorates. This avoids the need to place significant responsibilities onto town and parish councils which are not used to such a role, are not consistently managed and are not in place across all of Cumbria.

DRAFT

Whitehaven Marina, Copeland

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Democratic representation

Enabling a strong Combined Authority

Two unitaries will drive strategic leadership through a Combined Authority. A future mayoral Combined Authority enables strategic planning and leadership while two balanced unitaries provides local service delivery and a strong basis for inclusive, clean growth.

A Combined Authority requires balanced, strong unitary authorities to combine. This dynamic ensures that the democratic mandate of both authorities is clear and ensures the system is effective, accountable and continues to develop.

A mayoral Combined Authority is a clear path to developing Cumbria and a two unitary model is required to provide clarity to residents

regardingDEVELOPINGthe role of unitary and Combined Authorities.DRAFT Unitary authorities need to be local to deliver services that address the needs and expectations of residents. A Combined Authority needs

to take a strategic perspective so can operate over a wider area. Clearly these roles cannot both be delivered effectively on the same footprint.

Running two unitary authorities also provides clarity to the electorate and will enable them to more easily engage with authorities rather than creating a new two-tier model of local government.

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Democratic representation

Supporting identity, towns and rurality

Two unitaries will reflect, support and develop functional economic geographies in the county. This will enable them to better reflect the individual communities and identities of the region.

Local government reorganisation enables local government to better reflect the communities and identifies of the region, rather than grouping them together.

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Cumbria is a large county with varied geography, culture

establish smaller authorities that can better reflect how people in the area identify themselves.

and DEVELOPINGmany different local identities within it. Local government reorganisation provides an opportunity to

The Cumbria brand has been successful in developing tourism but it covers over many different local perspectives, historical differences and socioeconomic divides.

The six largest towns and cities are in separate Districts so establishing two unitaries enables them to have a greater voice and representation in their local government.

Rural areas also need a particular approach to reflect ‘rurality and sparsity’, different conceptions of service delivery, and different rules on planning as we reflected in the recent ‘Levelling up our communities report’.1

1. Levelling up our communities: proposals for a new social covenant, Danny Kruger MP

DRAFT

Keswick market, Allerdale

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Growth

34

Carlisle station

Fig. X Top 100 firms in Cumbria

Growth

Strong, strategic leadership

Two unitaries will collaborate on strategic issues through a mayoral Combined Authority which will provide a strong leader and voice to attract investment on the national stage.

Devolution is a key driver for local government reorganisation in Cumbria. It provides an opportunity to strengthen and level up the region through new policy and financial powers, access to funding

Devolution provides Cumbria with an opportunity to unlock many of its economic assets and address inequalities across the county. A two

and an elected mayor to promote the region on national and internationalDEVELOPINGstages.

unitary model will ensure that the varied local economies and assets are appropriately considered and will provide local intelligence to support investment priorities.

Cumbria has a diverse economy from defence industries in Barrow, through tourism in the Lake District and nuclear excellence on the west coast to manufacturing in Carlisle. Two unitary model will ensure that the local economic profile of each unitary and key industries are appropriately represented in devolution discussions which will support economic development nationally as well as for Cumbria.

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DRAFT

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Growth

Strong, strategic leadership (continued)

A Combined Authority across a two unitary model in Cumbria will enable clear responsibilities and accountabilities between organisations. The Combined Authority will be able to develop strategic leadership and plans for transport, employment and housing around a shared vision for the future.

DEVELOPING

Cockermouth, Allerdale

Two unitaries supports the principles of local leadership and subsidiarity. It will enable local concerns to be managed by unitaries that are close to the

DRAFTpopulation while enabling strategic planning and decision- making to be made at a

Combined Authority level.

Two strong unitaries, working in a Combined Authority will provide a clear delineation of roles and responsibilities between unitaries and the Combined Authority. The model also enables constructive tension and competition to improve decision-making, leadership and funding allocation across Cumbria.

36

Growth

Enabling sustainable, inclusive economic development

A two unitary model of local government enables sustainable, inclusive economic development and attract business investment in the local economy.

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1.ONS, Earnings and hours worked, place of residence by local authority

2.IMD

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Growth

Enabling sustainable, inclusive economic development (continued)

Cumbria has significant assets to support the UK in achieving the target of net zero greenhouse gas emissions by 2050. These include natural and renewable energy assets, academic and agricultural innovation and nuclear capabilities which are internationally regarded.

The Cumbria LEP has a pathway to become the northern ‘Living

Lab’ for clean energy, decarbonizing heat, power and transport.

This includes a clean energy park to develop nuclear, hydrogen and

future fuels. The nuclear and wider energy supply chain capability is DEVELOPINGreflected in the Britain’sDRAFTEnergy Coast Business Cluster (BECBC), a 325-strong member organisation including global multinationals and

local SMEs from public, private, academic and third sectors.1

A two unitary model of local government, as part of a Combined Authority will give a strong, strategic voice to these industries as critical parts of national infrastructure and policy. It will also give greater access to funding and investment to support the development of future innovations to support the UK.

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1. Cumbria: Nuclear Prospectus, LEP

Growth

Enabling sustainable, inclusive economic development (continued)

The two tier system of local government in Cumbria creates inconsistencies, tensions and potential safety implications within the planning and approvals process. This results in uncertainty for investors and developers and weakens Cumbria’s economic development.

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The communities and businesses of Copeland and Allerdale have been at the centre of national nuclear and radioactive waste management policy and operations for over the last 70 years. Throughout

this time the local community and businesses have generatedDEVELOPINGa wealth of knowledge and intelligence about the issues and (the national and international)

economic development opportunities associated with national nuclear policy, about future low carbon ambitions, the challenges of decommissioning of legacy nuclear facilities and the management of the nations’ radioactive waste. Notwithstanding this local perspective, the Government’s Managing Radioactive Waste Safely process in 2014 was brought to a halt, despite support from Copeland and Allerdale Borough Councils, due to inconsistency and confusion in the two tier system. A two unitary system will maintain this local knowledge, intelligence and support for projects but reduces the bureaucratic and administrative tension created by the current system.

1. Cumbria: Nuclear Prospectus, LEP

DRAFT

Sellafield, Copeland

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Growth

Enabling sustainable, inclusive economic development

Two unitaries will provide access to funding and increase the prosperity and wellbeing of businesses and communities.

Cumbria has missed out on significant funding and investment through lack of a strong voice, friction between tiers of government and not having access to funding pools. A two unitary system will provide scale and

a clearDEVELOPINGvoice to access funding and support the prosperity of businesses and communities.

Operating as two unitaries across Cumbria will provide Councils with scale for funding and financing. This will enable cheaper borrowing with lower administration costs than seven separate organisations. It will also provide coordination and prioritisation with regard to new and existing funding streams being accessed by councils e.g. Towns Fund while retaining a local understanding of where that funding is needed most.

A mayoral Combined Authority across the unitaries will also enable access to gainshare funding, as well as function- specific funding streams. While the details of a devolution deal require negotiation, it should reflect the local needs of residents across Cumbria and a two unitary structure of local government reorganisation is a clear step to understanding those needs and achieving local ambitions for devolution.

DRAFT

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Public support

We have listened to our residents, businesses and communities through a range of media including:
Districts to confirm what they have done

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Public support

Our approach to public support

A two unitary model of local government will attract the support of the people and communities of Cumbria and reflect how the people of Cumbria identify with place.

To evidence the widespread public support for a two unitary model of local government in Cumbria we have worked with a wide range of stakeholders

including:

DistrictsDEVELOPINGto confirm who they have spoken to/worked withDRAFT

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Public support

Evidence of public support

We have included a small sample of the evidence of public support for the two unitary model of unitary government in Cumbria. Due to the timescales required by this submission we do not have a statistically representative sample.

Evidence from public support work

DEVELOPING DRAFT

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The case for East & West/ North & South Not included in this draft

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Carlisle station

East & West / North & South

East Cumbria and West Cumbria/ North Cumbria and South Cumbria

The…

DEVELOPINGAllerdaleDRAFTEdenAllerdaleEden

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East & West / North & South

Key strengths/challenges addressed

Use this slide to summarise the key arguments

DEVELOPING DRAFT

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East & West / North & South

Key statistics

Use this slide to summarise the key arguments

North/South

DEVELOPING DRAFT

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North Cumbria and South Cumbria

Key service delivery argument

Insert key strength from earlier slide

Key argument

Explanation and evidence

DEVELOPING DRAFT

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North Cumbria and South Cumbria

Key long term financial efficiencies argument

Insert key strength from earlier slide

Key argument

Explanation and evidence

DEVELOPING DRAFT

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North Cumbria and South Cumbria

Key democratic representation argument

Insert key strength from earlier slide

Key argument

Explanation and evidence

DEVELOPING DRAFT

50

North Cumbria and South Cumbria

Key growth argument

Insert key strength from earlier slide

Key argument

Explanation and evidence

DEVELOPING DRAFT

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Implementing local government reorganisation

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Bowness-on-Solway, Allerdale

IMPLEMENTING LOCAL GOVERMENT REORGANISATION

Implementation workstreams

As part of initial planning, nine workstreams have been identified to support detailed planning. These workstreams are described below. During Phase 1 and 2 activities require significant contribution and co-ordination from all authorities. At the start of Phase 3, when shadow authorities form, the majority of activities take place within unitaries separately, but with ongoing engagement and co- operation.

Programme Ensure that all planning, governance and delivery activities that support the programme and the other workstreams management & are in place and tracked. Ensure that effective governance structures are established in the new unitary authorities

governance and oversee development and delivery of a target operating model for the new authorities.

democratic deliver elections under the new structure.

LegalDEVELOPING& Establish the constitutions of the new authorities integrate into new legal entities. Manage all changes required to

Engagement & Develop and deliver a communications strategy. Carry out engagement with communities, parishes, towns and communications businesses.

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People

Customer contact & service delivery

Data, systems & technology

Finance

Estates

Contracts & commercial

Plan and manage the HR process and overall people and cultural change for each of new authorities. Carry out staff and trade union engagement.

Plan, design and deliver the new approach to customer engagement in each authority across all services. Integrate services within each of the new Councils, ensuring all existing services are aligned to new policies and process.

Review the existing IT assets and systems before designing and implementing the IT solutions for the new authorities, linked to the target operating model. Ensure that data is transferred and managed effectively during the transition, setting the authorities up to become data driven organisations.

Manage the financial transition to the new authorities, including setting the first budget for each of the new authorities. Develop and deliver a financial strategy for each of the new authorities.

Analyse the estate portfolio of the constituent authorities and determine the appropriate estate strategy for each of the new authorities.

Manage the contractual changes required, and ensure that the two new authorities are set up to take advantage of commercial opportunities.

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IMPLEMENTING LOCAL GOVERMENT REORGANISATION

Implementation phases (1/4)

Phase 1: Pre-planning

Stakeholder engagement and consultation is ongoing, as set out in the Public Support section.

Prior to the delivery of Local Government Reorganisation, there will be a need for cooperation and consensus building between key stakeholders across central and local government. Within Cumbria there will likely be competing bids for the structure of local authorities, and as such the Secretary of State will form a conclusion based on consultation with all parties involved.

The following key activities take place :

•Finalise a structured engagement plan for all partner authorities, impacted bodies, and key stakeholders.

•FurtherDEVELOPINGconsultation on the options put forward, seeking wider citizen engagement on theDRAFTtopic of local government reorganisation.

•Challenge sessions to build consensus.

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IMPLEMENTING LOCAL GOVERMENT REORGANISATION

Implementation phases (2/4)

Phase 2: Joint Committees

Design and more detailed planning work commences from the moment that the Secretary of State makes a decision on the future structure of local government in Cumbria.

Activities begin to focus on the establishment of the unitary authorities, but with coordination required across all seven current authorities.

The following key activities will take place:

Establish formal governance and programme management arrangements to be taken forward into new shadow authorities

• Confirm future service requirements and commence detailed service transition planning

• AgreeDEVELOPINGdetailed programme implementation planDRAFT

• Appoint programme team to support transition

• Align existing change activity across constituent authorities

• Review baseline IT architecture

• Baseline property portfolio and commence planning

• Agree communications strategy

• Agree high level HR transition plan

• Ongoing staff and trade union engagement and communications

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IMPLEMENTING LOCAL GOVERMENT REORGANISATION

Implementation phases (3/4)

Phase 3: Shadow authorities

In line with other Local Government Reorganisation processes, the District authorities expect shadow authorities to be in place one year prior to the vesting date.

•The two shadow authorities will be made up of Councillors and Officers from the current authorities, who will oversee the following key activities:

•Detailed integration planning and transition of services to the new unitary authorities, identifying cost and timelines.

•Organisation and operating model design, and initial structures for the new authorities.

•Appointment of Chief Executives and leadership teams.

•StaffDEVELOPINGtransition process, focussed on the need to retain a skilled workforce with the rightDRAFTculture. TUPE of staff to new authorities.

•Establishment of new payroll arrangements.

•Management of data as part of initial IT systems transition;

•Ongoing stakeholder engagement, including reinforcing current partnerships and formation of new partnerships, where appropriate.

•Budget setting for the new authorities.

•Consolidation of funding arrangements, council tax equalisation, business rates collection, harmonisation of HRA, alignment of treasury management and reserves.

•Ongoing staff and trade union engagement and communications.

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IMPLEMENTING LOCAL GOVERMENT REORGANISATION

Implementation phases (4/4)

Phase 4: Unitary authorities

At the point that new authorities formally come into existence, greater focus can be placed on the long term strategy for the future authorities.

•Authorities may vary in their level of ambition, but likely activities include:

•Establishment of a transformation programme, with responsibility for confirming and implementing a target operating model for the new authority and leveraging synergies. This is likely to include detailed review of:

•Customer contact;

•Service delivery;

•Back office/enabling services;

•DEVELOPINGIT and data strategy;DRAFT

•People, organisational development and culture;

•Estates.

•Implementation of new Enterprise Resource Planning (ERP/Customer Relationship Management (CRM) systems, or further consolidation of current systems.

•Detailed review of existing contracts and third part spend, consolidating and rationalising spend whilst seeking to take advantage of economies of scale.

•Consolidation of fees and charges.

•Alignment of pay, terms and conditions.

•Ongoing change management and communications.

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IMPLEMENTING LOCAL GOVERMENT REORGANISATION

Transition of services

— Refinement of functional operating models and services, aligned to new geographies;

Review and refinement of service policies, processes and procedures, including Service Level Agreements for each level of service provision;

— Restructure of membership on boards, reviewing local representation;

Next Steps

As set out in this section, the District and Borough Councils have commenced high level implementation planning, and are seeking to engage the County Council to progress more detailed joint planning. Recent local government reorganisation processes, for example in Dorset, will provide invaluable insight, as well as confidence that the formation of two unitary authorities across a County area can be delivered successfully and on time.

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Appendices

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Appendix X

Tables, figures and references

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Appendix X

Glossary

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Appendix [] - Financial assumptions and benchmarking

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DEVELOPING DRAFT

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Detailed implementation planning will be fundamental to successful local government reorganisation.

Whilst timings are uncertain, the timeline that the District and Borough Councils are working to is set out below. Activities and milestones are considered against four high level phases, which are explained in the following pages.

Fig X. Timeline for transition to a unitary structure

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Appendix 3 - Summary of Evaluation Scoring

5.00

4.50

4.00

3.50

3.00

2.50

2.00

1.50

1.00

0.50

-

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